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Puna Emergency Response Report on the Review of Hawai’i County Emergency Operations Plan and Puna Geothermal Venture Emergency Response Plan Visits to Hawai’i August 5-9, 1996 included: COUNTY OF HAWAI’I CIVIL DEFENSE, FIRE DEPARTMENT AND OTHER LOCAL AGENCIES PUNA GEOTHERMAL VENTURE, 14-3860 Kapoho-Pahoa Road, Pahoa, HI STATE OF HAWAI’I DEPARTMENTS OF HEALTH AND CIVIL DEFENSE Final Report August 2000 United States Environmental Protection Agency, Region 9 REPORT DISCLAIMER The contents of this report reflect information concerning the County of Hawaii and Puna Geothermal Venture obtained during a U.S. Environmental Protection Agency (U.S. EPA) review. The emergency response plans review visits were conducted from August 5-9, 1996 and observations as presented in this report provide a snapshot of conditions existing at the facility at that time. They do not represent proposed or ongoing changes at the facility or Hawaii County. The recommendations and observations contained in this report are not mandatory actions that the facility or Hawaii County must implement. In addition, the U.S. EPA makes no assurances that if implemented, the recommendations and observations contained in this report will prevent all future chemical accidents, equipment failures, or unsafe management practices, and/or provide protection from any future enforcement actions under any applicable law or regulation. EPA takes notice that some of the recommendations in the draft report have been adopted already. ii TABLE OF CONTENTS GLOSSARY iv EXECUTIVE SUMMARY iiv 1 INTRODUCTION 1 1.1 Purpose 1 1.2 Scope 1 1.3 Community Concerns 2 1.4 Legal Authorities 2 1.5 Background 3 2 THE REVIEW TEAM 17 3 PLANNING AND OPERATING SAFELY 18 3.1 Guidelines for Facility Emergency Response Planning 18 3.2 Guidelines for County Emergency Response Planning 20 3.3 Operating Safely 23 4 HOW THE REVIEW TEAM EVALUATED THE EMERGENCY RESPONSE PLANS 25 4.1 General 25 4.2 Hawai’i County Emergency Operations Plan 25 4.3 Criteria for Review of the Hawai’i County Emergency Operations Plan 25 4.4 Puna Geothermal Venture Emergency Response Plan 25 4.5 Criteria for Review of the PGV Emergency Response Plan 25 5 COUNTY OF HAWAI’I EMERGENCY OPERATIONS PLAN 27 5.1 General 27 5.2 Basic Plan 28 5.3 Annexes 29 5.4 Geothermal Incident Standard Operating Procedure 31 5.5 Findings and Recommendations 31 iii 6 PUNA GEOTHERMAL VENTURE EMERGENCY RESPONSE PLAN 40 6.1 General 40 6.2 Employee Emergency Plans and Fire Prevention Plans - 29 CFR 1910.38 Findings and Recommendations 41 6.3 Hazardous Waste Operations and Emergency Response - 29 CFR 1910.120 Findings and Recommendations 42 7 OVERARCHING ISSUES 48 7.1 General 48 7.2 Findings and Recommendations 48 TABLES Table 1: Summary of Hydrogen Sulfide Releases 5 Table 2: Summary of Public Comments 8 Table 3: Components of PGV’s Emergency Response Plan 18 Table 4: NRT Guidance 21 Table 5: Summary of Prevention Requirements 24 APPENDICES Appendix A: Visits to State and County Departments and Agencies -- Field Notes Appendix B: Visit to the Puna Geothermal Venture Facility -- Field Notes Appendix C: Emergency Response Plan, Version 6.3, Table of Contents Appendix D: HAZWOPER/Emergency Response Guidelines and Training Program Appendix E: PGV Emergency Action Plan and Notification Guidelines Appendix F: Hawai’i County Emergency Operations Plan, Table of Contents Appendix G: Hawaii County Fire Department, Emergency Response Procedure to PGV Appendix H: Request for Documents to Review iv APPENDICES [Continued] Appendix I: Health Consultation Appendix J: Integrated Contingency Planning “Oneplan” Guidance and EPA Chemical Accident Prevention Regulations 40 CFR Part 68 Appendix K: Compilation of Recommendations Appendix L: Letter to U.S. Senator Daniel Inouye from Felicia Marcus, EPA Regional Administrator Appendix M: Correspondence on January 2000 Release Appendix N: Comment Letters to Draft Report Appendix O: EPA’s Response to Comments Appendix P: Referral Letters Appendix Q: Hydrogen Sulfide Literature Review v Glossary of Acronyms ATSDR Agency for Toxic Substances and Disease Registry CAMEO Computer Aided Management of Emergency Operations CAP Chemical Accident Prevention Program CERCLA Comprehensive Environmental Response, Compensation and Liability Act CFR Code of Federal Regulations CSA Chemical Safety Audit DOI Department of the Interior, U. S. DOL Department of Labor, U. S. DOT Department of Transportation, U. S. EAP Emergency Action Plan EMT Emergency Medical Technician EOC Emergency Operations Center EOP Emergency Operations Plan EPA Environmental Protection Agency, U. S. EPCRA Emergency Planning and Community Right-to-Know Act ESRF Emergency Steam Release Facility ERP Emergency Response Plan FEMA Federal Emergency Management Agency, U. S. HDOH Hawaii Department of Health HIOSH State of Hawai’i Department of Labor and Industrial Relations, Hawai’i Occupational Safety and Health Division HAZMAT Hazardous Materials HAZWOPER Hazardous Waste Operations and Emergency Response HRS Hawai’i Revised Statutes H2S Hydrogen Sulfide ICS Incident Command System IDLH Immediately Dangerous to Life and Health NICS National Institute for Chemical Studies NRT National Response Team NRT-1 National Response Team-1 Hazardous Materials Emergency Planning Guide NRT-1A National Response Team-1A Criteria for Review of Hazardous Materials Emergency Plans OSC On-Scene Coordinator PGV Puna Geothermal Venture PHA Process Hazards Analysis PM10 Particulate Matter 10 microns or less in diameter PPE Personal Protective Equipment ppm parts per million PSM Process Safety Management RBDS Radio Broadcast Data System RMP Risk Management Plan RMPP Risk Management and Prevention Program SARA Superfund Amendments and Reauthorization Act SOP Standard Operating Procedure UFC Uniform Fire Code USC United States Code vi August, 2000 Final Report Executive Summary This report summarizes a review of emergency response capabilities for Hawai’i County and Puna Geothermal Venture (PGV). The U. S. Environmental Protection Agency (EPA) assembled an independent team of experienced individuals (the “Review Team”). EPA tasked them to review emergency response plans and conduct site visits and interviews. This project was a follow- up to the EPA’s 1995 compliance inspection of the PGV facility and a response to community requests. The purpose of the project was to provide an independent evaluation of the emergency response plans, with the long–term objective of preventing chemical accidents and improving emergency response capabilities. The review team conducted site visits in Hawai’i from August 5 through August 9, 1996. During that time, team members received information from state and local agencies, PGV, and the community (composed primarily of area residents). EPA held public meetings at the Pahoa Community Center and the University of Hawai’i, Hilo Campus Center to discuss the review. These meetings offered the review team an opportunity to meet with residents of the Puna area. Many who attended the public meetings expressed strong concerns about their health and safety being jeopardized by the operation of the PGV facility. A major release of hydrogen sulfide from the facility is the principal hazard to the community. The public also expressed concern about the need for public alert and notification systems and plans for shelter-in-place and evacuation. Some meeting attendees raised concerns that PGV management was concealing details about operations and potential emergencies from the neighboring community. Other meeting attendees expressed confidence in the capabilities of the PGV management to operate the facility safely and efficiently. The Hawai’i County Emergency Operations Plan is a multiple hazards plan that primarily addresses natural disasters, terrorism, and war. Annex M of this plan, the Oil and Hazardous Substances Response Plan, was the section reviewed in detail by the review team. The review team found Annex M in urgent need of an update to bring it into compliance with Emergency Planning and Community Right-to-Know laws and address public concerns. Annex M is not complete, and the County and State have not updated the plan since they signed it in 1990. vii August, 2000 Final Report The Oil and Hazardous Substances Response Plan (Annex M) acknowledges accidental releases of hazardous substances as human-made hazards. However, it does not address the public and environmental threats from a serious release of hazardous substances from an operating facility (e.g., PGV). The plan also lists several appendices as “under preparation.” However, at the time of the review, these appendices were still missing. In particular, the Review Team was concerned about the capability of local responders to carry out a timely response in the PGV facility. Hawai’i County responders need to evaluate their capacity for emergency response and their ability to participate as part of an Incident Command System. The Hawai’i County Fire Department, Pahoa Substation should work with PGV to gauge the potential severity of an incident. During the site visit to PGV, facility personnel explained both the technology and procedures within their respective areas of responsibility. Overall, the facility’s internal planning, preparedness and response activities are covered in PGV’s Emergency Response Plan. PGV seems able to respond to most incidents, except fire. However, at the time of the review the PGV Emergency Response Plan did not fully address coordination issues between the facility and the local response agencies.

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