Natural Gas Extraction - Hydraulic Fracturing
Hydraulic Fracturing Study Plan
Natural gas plays a key role in our nation’s clean energy future. The U.S. has vast reserves of natural gas that are commercially viable as a result of advances in horizontal drilling and hydraulic fracturing technologies enabling greater access to gas in shale formations. Responsible development of America's shale gas resources offers important economic, energy security, and environmental benefits.
EPA is working with states and other key stakeholders to help ensure that natural gas extraction does not come at the expense of public health and the environment. The Agency’s focus and obligations under the law are to provide oversight, guidance and, where appropriate, rulemaking that achieve the best possible protections for the air, water and land where Americans live, work and play. The Agency is investing in improving our scientific understanding of hydraulic fracturing, providing regulatory clarity with respect to existing laws, and using existing authorities where appropriate to enhance health and environmental safeguards.
On this page:
- Improving our scientific understanding of hydraulic fracturing
- Providing regulatory clarity and protections against known risks
- Assuring compliance
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Promoting transparency and conducting outreach
Improving our Scientific Understanding of Hydraulic Fracturing
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EPA is undertaking a national study to understand the potential impacts of hydraulic fracturing on drinking water resources. The study will include a review of published literature, analysis of existing data, scenario evaluation and modeling, laboratory studies, and case studies. EPA will release initial study results in a 2012 report and an additional report at the end of 2014. Learn more about EPA's study of hydraulic fracturing and its potential impact on drinking water resources at epa.gov/hfstudy.
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Ground Water Investigation near Pavillion, Wyoming: At the request of Pavillion residents, in 2008, EPA began investigating water quality concerns in private drinking water wells. Since that time, in conjunction with the state of Wyoming, the local community, tribes, and the owner of the gas field, Encana, EPA has been working to assess ground water quality and identify potential sources of contamination.
- Read the draft report (PDF) (121 pp, 15 MB)
- December 8, 2011 press release
- More information on the groundwater investigation
The draft report is available for a public comment period and a peer-review process led by a panel of independent scientists.- Federal Register notices announcing the public comment period (PDF) and the extension of the comment period (PDF)
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Submit your comments through Regulations.gov through March 12, 2012
Providing Regulatory Clarity and Protections against Known Risks
Although the national study should enhance our scientific knowledge, some concerns associated with overall natural gas and shale gas extraction, including hydraulic fracturing, are already well known. These operations can result in a number of potential impacts to the environment, including:- Stress on surface water and ground water supplies from the withdrawal of large volumes of water used in drilling and hydraulic fracturing;
- Contamination of underground sources of drinking water and surface waters resulting from spills, faulty well construction, or by other means;
- Adverse impacts from discharges into surface waters or from disposal into underground injection wells; and
- Air pollution resulting from the release of volatile organic compounds, hazardous air pollutants, and greenhouse gases.
Because natural gas development is increasing rapidly in many regions, prudent steps to reduce these impacts are essential now even as further research to understand potential risks continues. EPA is:
► Ensuring that hydraulic fracturing using diesel fuels is properly permitted
A core element of the Safe Drinking Water Act’s (SDWA) Underground Injection Control (UIC) program is setting requirements for proper well siting, construction, and operation to minimize risks to underground sources of drinking water. The Energy Policy Act of 2005 excluded hydraulic fracturing, except when diesel fuels are used, for oil and gas production from permitting under the UIC Program. This was because of concern about the risks to drinking water from diesel fuels.
- EPA and states share primary responsibility ("primacy") for implementing the UIC program
- EPA is developing UIC guidance for permitting hydraulic fracturing activities that use diesel fuels
► Ensuring the safe disposal of wastewater and stormwater from hydraulic fracturing activities
As the number of shale gas wells in the U.S. increases, so too does the volume of shale gas wastewater that requires disposal. Wastewater associated with shale gas extraction can contain high levels of total dissolved solids (TDS), fracturing fluid additives, metals, and naturally occurring radioactive materials. In partnership with states, EPA is examining the different disposal methods employed by industry to ensure that there are regulatory and permitting frameworks in place to provide safe and legal options for disposal of flowback and produced water. These options include:
♦ Underground injection of waste disposal fluids from oil and gas wells (Class II wells)
In many regions of the U.S., underground injection is the most common method of disposing of fluids or other substances from shale gas extraction operations. Disposal of flowback and produced water via underground injection is regulated under the Safe Drinking Water Act’s Underground Injection Control (UIC) program.
Related study:♦ Wastewater discharges to treatment facilities
The Clean Water Act (CWA) effluent guidelines program sets national standards for industrial wastewater discharges based on best available technologies that are economically achievable. Effluent guidelines for oil and gas extraction prohibit the on-site direct discharge of wastewater from shale gas extraction into waters of the U.S. While some of the wastewater from shale gas extraction is reused or re-injected, a significant amount still requires disposal. However, no comprehensive set of national standards exists at this time for the disposal of wastewater discharged from natural gas extraction activities. As a result, some shale gas wastewater is transported to treatment plants (publicly owned treatment works (POTWs) or private centralized waste treatment facilities (CWTs)), many of which are not properly equipped to treat this type of wastewater.
In October 2011, as part of the CWA section 304(m) planning process, we announced a schedule to develop standards for wastewater discharges produced by natural gas extraction from underground coalbed and shale formations. To ensure that these wastewaters receive proper treatment and can be properly handled by treatment plants, we will gather data; consult with stakeholders, including ongoing consultation with industry; and solicit public comment on a proposed rule for coalbed methane in 2013 and a proposed rule for shale gas in 2014.
- Effluent guidelines (CWA section 304(m)): 2010 effluent guidelines program plan
- EPA and states share responsibility for implementing treatment and disposal of wastewater from shale gas extraction under the National Pollutant Discharge Elimination System (NPDES) View a state-by-state map of NPDES program authority (PDF) (1 pp, 663 K)
Related study:EPA is also updating chloride water quality criteria for the protection of aquatic life under CWA section 304(a)(1). EPA's recommended Water Quality Criteria are used by states when considering updates to applicable state water quality standards. Such standards provide a basis for establishing acceptable discharge limits. Because flowback and produced water from fracturing operations have very high levels of total dissolved solids (TDS), and chlorides are the major component of the TDS, updating the water quality criteria for chloride will provide an updated scientific basis on which to issue discharge permits. A draft criteria document is expected in early 2012.
In March 2011, EPA issued a set of questions and answers that provide state and federal permitting authorities in the Marcellus Shale region with guidance on permitting treatment and disposal of wastewater from shale gas extraction.
EPA plans to supplement these frequently asked questions with additional guidance directed to permitting authorities, pretreatment control authorities and POTWs. This guidance will provide assistance on how to permit POTWs and CWTs by clarifying existing CWA authorities and obligations.
♦ Stormwater discharges from oil and gas operations or transmission facilities
Under the CWA, oil and gas exploration, production, processing, or treatment operations or transmission facilities, including associated construction activities, are not required to obtain National Pollutant Discharge Elimination System (NPDES) permit coverage for stormwater discharges unless there is a reportable quantity spill or the discharge causes or contributes to a water quality violation.
♦ Use of surface impoundments (pits or ponds) for storage or disposal
In some cases, operators use surface storage tanks and pits to temporarily store hydraulic fracturing fluids for re-use or until arrangements are made for disposal. States, tribes, and some local governments have primary responsibility for adopting and implementing programs to ensure proper management of these wastes. EPA is currently evaluating industry practices and state requirements and is considering the need for technical guidance on the design, operation, maintenance, and closure of pits under the Resource Conservation and Recovery Act (RCRA) in order to minimize potential environmental impacts.
♦ Recycling of wastewater
Some drilling operators elect to re-use a portion of the wastewater to replace and/or supplement fresh water in formulating fracturing fluid for a future well or re-fracturing the same well. Re-use of shale gas wastewater is, in part, dependent on the levels of pollutants in the wastewater and the proximity of other fracturing sites that might re-use the wastewater. This practice has the potential to reduce discharges to treatment facilities or surface waters, minimize underground injection of wastewater and conserve water resources.
► Addressing air quality impacts associated with hydraulic fracturing activities
There have been well-documented air quality impacts in areas with active natural gas development, with increases in emissions of methane, volatile organic compounds (VOCs) and hazardous air pollutants (HAPs). EPA, the Department of the Interior, other federal agencies and states are working to better characterize and reduce these air emissions and their associated impacts. Through the Natural Gas STAR program, EPA and partner companies have identified technologies and practices that can cost-effectively reduce methane emissions from the oil and natural gas sector in the U.S. and abroad. Through the Clean Construction USA program, EPA is promoting newer, more efficient technology and cleaner fuels to innovate the ways in which hydraulic fracturing equipment and vehicles reduce emissions. EPA also administers Clean Air Act regulations for oil and natural gas production, including regulations on reporting greenhouse gas emissions.
- June 2011 USDA/EPA/Department of Interior memorandum of understanding (MOU) setting forth expectations and agreements for addressing air quality analyses and mitigation measures through the NEPA process related to federal oil and gas planning, leasing, or field development decisions:
Press release | MOU (PDF) | Questions and answers about the MOU (PDF)You will need Adobe Reader to view some of the files on this page. See EPA's PDF page to learn more.
- Natural Gas STAR Program
- Clean Construction USA program
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Oil and natural gas air pollution standards (Oil and Natural Gas Sector: New Source Performance Standards and National Emission Standards for Hazardous Air Pollutants Reviews)
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July 28, 2011 proposal to reduce emissions of smog-forming volatile organic compounds (VOCs) and air toxics from the oil and natural gas industry.
- Proposed rule (PDF) (604pp, 1.1 MB)
- Fact sheet (PDF) (8pp, 419k)
- Overview presentation (PDF) (15pp, 250k)
- Regulatory impact analysis (PDF) (204pp, 1.6 MB)
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Greenhouse Gas Reporting Program
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July 28, 2011 proposal to reduce emissions of smog-forming volatile organic compounds (VOCs) and air toxics from the oil and natural gas industry.
Assuring Compliance
EPA targets enforcement to ensure compliance with laws and regulations, with an emphasis on correcting violations with significant potential harm to human health and the environment. In addition to self-directed investigations, EPA receives thousands of leads and incident reports relating to oil and gas activities that could impact air or water quality. EPA works with state and local governments to respond to incidents, encourage diligent accident prevention, and provide effective and prompt response when emergencies occur. EPA's offices around the nation ("Regions" or "Regional offices") provide guidance and grants to state regulators, perform inspections, conduct enforcement actions, and issue permits and information request letters, in order to ensure that existing laws are effectively implemented.
- National Enforcement Initiatives: Assuring energy extraction sector compliance with environmental laws
- October 2000 Compliance Assistance Sector Notebook: Profile of the Oil and Gas Extraction Industry
Promoting Transparency and Conducting Outreach
Within the federal government, EPA has played a lead role in conducting stakeholder outreach to individual citizens, communities, tribes, state and federal partners, industry, trade associations and environmental organizations that have a strong interest in the Agency's work and policies related to hydraulic fracturing and shale gas extraction. EPA is committed to full transparency and providing opportunities for stakeholder input on all agency actions.
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Petition by 120 environmental and public health organizations requesting that EPA issue Toxic Substances Control Act (TSCA) Section 4 and 8 rules requiring toxicity testing and reporting of health and safety studies on oil and gas exploration and production chemicals.
- Read the petition (August 4, 2011) (PDF) (30 pp, 10.6 M)
- November 2, 2011 EPA notification to petitioners (PDF) (2 pp, 548 K)
- November 23, 2011 EPA notification to petitioners (PDF) (2 pp, 939 K)
While EPA has not granted the entire petition, consistent with the priorities identified in the President’s Blueprint for a Secure Energy Future (PDF) and with the Secretary of Energy Advisory Board recommendations on steps to support the safe development of natural gas resources , EPA will launch a stakeholder and public engagement process to seek input on the design and scope of developing reporting requirements.
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December 2009 letter from EPA Region 2 to New York State Dept. of Environmental Conservation (NYSDEC) (PDF) commenting on the NYSDEC's September 2009 Supplemental Generic Environmental Impact Statement (SGEIS) as part of NYSDEC's process of reviewing permit applications for hydraulic fracturing operations, including in the Marcellus Shale. -
EPA Region 3 Online FOIA Reading Room - Key Documents about Mid-Atlantic Oil and Gas Extraction (Region 3 is located in Philadelphia and covering the Marcellus and Utica Shales in Pennsylvania, West Virginia, Virginia and western Maryland)
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EPA's Hydraulic Fracturing Study:- Stakeholder involvement strategy for EPA's study of hydraulic fracturing and its potential impact on drinking water resources
- August 2011 request by EPA requesting participation in EPA's Hydraulic Facturing Study
- September 2010 request by EPA to provide data on the chemical composition of fluids used in the hydraulic fracturing process
- November 2011 Study Plan (PDF)
- Quality assurance project plans
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Testimony:- Testimony of Cynthia Dougherty, Director, Office of Groundwater and Drinking Water, before the Subcommittee on Water and Power, Committee on Energy and Natural Resources, U.S. Senate, October 20, 2011 (PDF) (5 pp, 28 K) -- Discussion of EPA’s role in ensuring that public health and water quality are protected during natural gas extraction and production activities.
- Testimony of Bob Perciasepe, Deputy Administrator, before the Subcommittee on Water and Wildlife, Committee on Environment and Public Works, U.S. Senate, April 12, 2011 (PDF) (7 pp, 35 K) -- Discussion of EPA's role in ensuring that public health and the environment are protected during natural gas extraction and production.
Natural Gas Drilling Tipline
Report illegal disposal of wastes or other non-emergency suspicious activity related to oil and natural gas development.
- Call 1-877-919-4372 (toll free), or
- Email eyesondrilling@epa.gov
You can provide tips anonymously if you do not want to identify yourself.
Related Information
Additional EPA information:
Other federal government information:
- What is shale gas? (U.S. Energy Information Administration)
- Review of emerging resources: U.S. shale gas and shale oil plays (U.S. Energy Information Administration)
- U.S. Department of Energy Natural Gas Subcommittee of the Secretary of Energy Advisory Board
- Subcommittee website shalegas.energy.gov
- August 11, 2011 press release announcing the subcommittee's recommendations
- Draft report (PDF) (41 pp, 761 K)
- Share your ideas and submit comments on the report