Full opinion text
OPINION LECHNER, District Judge. This is an action brought by the United States of America (the “Government”) against Eastern of New Jersey, Inc. and Eastern of New Jersey Terminals, Inc. (collectively, “Eastern”) for injunctive relief and civil penalties pursuant to the Resource Conservation and Recovery Act of 1976 (“RCRA”), 42 U.S.C. §§ 6921 et seq., and the regulations promulgated thereunder. Jurisdiction is alleged pursuant to 42 U.S.C. § 6928 and 28 U.S.C. §§ 1331, 1345 and 1355 and appears to be appropriate. Currently before the court are several motions by the Government and Eastern for summary judgment pursuant to Fed. R.Civ.P. 56. Eastern moves for summary judgment on all Claims in the Amended Complaint except the Twelfth Claim. The Government moves for summary judgment on all Claims in the Amended Complaint. For the reasons set forth below, both the Government’s and Eastern’s motions for summary judgment with respect to the First through Ninth Claims are denied. Summary judgment is granted in favor of the Government dismissing Eastern’s defense of estoppel. Summary judgment is further granted in favor of the Government with respect to the Tenth Claim. Both the Government’s and Eastern’s motions for summary judgment with respect to the Eleventh, Twelfth and Thirteenth Claims are denied. Summary judgment is granted in favor of the Government with respect to the Fourteenth Claim to the extent it alleges Eastern failed to maintain a log pursuant to 40 C.F.R. § 266.43(b)(6)(i); summary judgment is granted in favor of Eastern with respect to the Fourteenth Claim to the extent it alleges Eastern failed to retain analyses pursuant to 40 C.F.R. § 266.43(b)(6)(i). In addition, the Fifteenth Claim is dismissed as having been withdrawn. Facts Eastern of New Jersey, Inc. and Eastern of New Jersey Terminals, Inc. are corporations organized under the laws of New Jersey. They jointly own, maintain and operate a place of business (the “Facility”) in Jersey City, New Jersey. Eastern markets fuel oil to industrial and non-industrial fuel oil consumers, or “burners,” and other fuel oil marketers. Eastern’s customers include school, churches, geriatric centers, apartment buildings and public agencies. Eastern also purchases reprocessed used or waste oil, which is then blended with virgin oil at the Facility and resold. Eastern receives used oil from several suppliers, in-eluding Lionetti Oil Recovery, Inc. (“Lionetti”), L & L Oil Service Inc. (“L & L”) and B & L Oil Corp (“B & L”). It is uncontroverted Eastern was not regulated under RCRA until 1985, when the regulations promulgated under RCRA were issued. See 40 Fed.Reg. 49,164 (1985) (codified at 40 C.F.R. pts. 261, 264, 265, 266 & 271). As part of its effort to ensure compliance with the RCRA regulations, on 8 April 1987, the Environmental Protection Agency (the “EPA”) conducted an inspection of the Facility. The EPA collected several samples of oil from tanks at the Facility. See Def. Motion Brief, Exhibit C (EPA report on inspection of Eastern). For example, the EPA collected a sample from Tank Number 30 at the Facility. Tank Number 30 contained reprocessed used oil which Eastern obtained from its suppliers and intended to blend with virgin oil. A test of that sample purportedly indicated the sample contained halogens in amounts greater than one thousand parts per million (“ppm”). See Def. Motion Brief, Exhibit C (EPA report, dated July 1988, regarding 8 April 1987 inspection of Facility); see also Flynn Decl., Exhibit E. That sample also allegedly contained significant concentrations of individual chlorinated solvents such as tetrachloroethylene and 1,1,1-trichloro-ethane. The sample also purportedly contained concentrations of lead in excess of the specification requirement for lead pursuant to 40 C.F.R. § 266.40(e). On 7 July 1987, Eastern notified the EPA pursuant to 40 C.F.R. § 266.43(b)(3) of its used oil management activities. Answer, II92. Subsequently, the EPA sent to Eastern a questionnaire, dated 14 February 1989, pursuant to 42 U.S.C. § 6927, seeking information regarding Eastern’s used oil marketing activities. See Def. Brief, Exhibit R (questionnaire and Eastern’s response). On 28 February 1989, the EPA conducted a second inspection of the Facility. See Def. Brief, Exhibit B (“Wilk Deposition”) at 26-27. Eastern concedes receiving used oil which was “off-specification used oil fuel.” Off-specification used oil fuel means the used oil contained amounts of certain hazardous materials in excess of the amounts set forth in 40 C.F.R. § 266.40(e). Eastern, however, contends none of the oil sold to their customers was off-specification used oil fuel. Answer, 1147. In contrast, the Government alleges the oil marketed to Eastern’s customers was off-specification used oil fuel. Amended Complaint, 1150. The Government has brought fifteen Claims against Eastern in the Amended Complaint. The first nine Claims are brought under 40 C.F.R. Part 266, Subpart D, which governs the burning of hazardous waste for energy recovery. In the First Claim, the Government contends Eastern failed to notify the EPA of its hazardous waste fuel activities pursuant to 40 C.F.R. § 266.34(b) and 50 Fed.Reg. 49,164. Amended Complaint, 111155-56. In the Second Claim, the Government contends Eastern failed to obtain from its customers the required certifications pursuant to 40 C.F.R. § 266.34(e)(1). Amended Complaint, H1Í 59-60. Under 40 C.F.R. § 266.34(e)(1), Eastern’s customers would have to certify either that they have notified the EPA of their use of hazardous waste as fuel or that, if the customer is a burner, then the hazardous waste oil sold by Eastern will be burned only in an industrial furnace or boiler identified in 40 C.F.R. § 266.31(b). See Amended Complaint, II 59. In the Third Claim, the Government contends Eastern failed to provide the required certification to other oil marketers from whom Eastern accepted waste fuel that Eastern has notified the EPA of its hazardous waste fuel activities pursuant to 42 U.S.C. § 6930 and 40 C.F.R. § 266.-34(e)(2). Amended Complaint, HIT 63-64. In the Fourth Claim, the Government contends Eastern failed to submit a Part A RCRA permit application or to notify either the EPA or the New Jersey Department of Environmental Protection of its hazardous waste fuel oil storage activities pursuant to 40 C.F.R. §§ 266.34(c) and 270.10(e) and N.J.A.C. 7:26-12.3. Amended Complaint, P 67-68. In the Fifth Claim, the Government contends Eastern failed to develop the written waste analysis plan which is required of marketers of hazardous waste fuel oil pursuant to 40 C.F.R. §§ 266.34(c) and 265.13(b) and N.J.A.C. 7:26-9.4(b)(2). Amended Complaint, P 71-72. In the Sixth Claim, the Government contends Eastern has failed to comply with 40 C.F.R. §§ 266.34(c) and 265.112 and N.J.A.C. 7:26-9.8(c), which require marketers of hazardous waste fuel oil and owners or operators of hazardous waste facilities to have a written closure plan. Amended Complaint, P 75-76. In the Seventh Claim, the Government contends Eastern has failed to establish financial assurance for closure pursuant to 40 C.F.R. §§ 266.34(c) and 265.143 and N.J.A.C. 7:26-9.10. Amended Complaint, P 79-80. In the Eighth Claim, the Government contends Eastern has failed to prepare manifests for the transportation of hazardous waste fuel pursuant to 40 C.F.R. §§ 266.34(d) and 262.20(a) and N.J.A.C. 7:26-7.4(a)(3). Amended Complaint, P 83-84. In the Ninth Claim, the Government contends Eastern has failed to retain certain certifications pursuant to 40 C.F.R. § 266.34(f). Amended Complaint, If 87-88. The Tenth through Fifteenth Claims are brought under 40 C.F.R. Part 266, Subpart E, which governs the burning of used oil for energy recovery. In the Tenth Claim, the Government contends Eastern has failed to file with the EPA a timely notification of their used oil activities pursuant to 40 C.F.R. § 266.43(b)(3) and 50 Fed.Reg. 49,164. Amended Complaint, P 91-92. In addition, the Government contends Eastern has failed to notify the EPA of its activities as marketers of off-spe.cification used oil fuel pursuant to 40 C.F.R. § 266.43(b)(3). Amended Complaint, II94. In the Eleventh Claim, the Government contends Eastern failed to obtain from its first customers the required certifications pursuant to 40 C.F.R. § 266.34(b)(5)(i). Amended Complaint, P 97-98. Under 40 C.F.R. § 266.-34(b)(5)(i), Eastern's customers would have to certify either that they have notified the EPA of their used oil management activities or that, if the customer is a burner, then the off-specification used oil fuel sold by Eastern will be burned only in an industrial furnace or boiler identified in 40 C.F.R. § 266.41(b). See Amended Complaint, II97. In the Twelfth Claim, the Government contends Eastern has failed to provide the required certification to the first oil marketers from whom it accepted waste fuel that Eastern has notified the EPA of its used oil management activities pursuant to 40 C.F.R. § 266.43(b)(5)(ii). Amended Complaint, P 101-02. In the Thirteenth Claim, the Government contends Eastern has failed to utilize invoices which complied with 40 C.F.R. § 266.43(b)(4), 40 C.F.R. § 266.43(b)(i)-(vi) and 50 Fed.Reg. 49,164. Amended Complaint, P105-06. In the Fourteenth Claim, the Government contends Eastern has failed to retain analyses or operating logs of its used oil shipments pursuant to 40 C.F.R. § 266.43(b)(6)(i). Amended Complaint, P 109-10. In the Fifteenth Claim, the Government contends Eastern has failed to retain copies of invoices and certifications pursuant to 40 C.F.R. § 266.43(b)(6)(ii). The Government seeks injunctive relief pursuant to 42 U.S.C. § 6928(a) directing Eastern to comply with all applicable requirements under RCRA and the regulations promulgated thereunder. In addition, the Government seeks an award of civil penalties under 42 U.S.C. § 6928(g) in an amount not to exceed $25,000.00 for each day of each violation by Eastern of RCRA and the regulations promulgated thereunder. Discussion A. Summary Judgment Standard of Review To prevail on a motion for summary judgment, the moving party must establish “there is no genuine issue as to any material fact and that [it] is entitled to judgment as a matter of law.” Fed.R.Civ.P. 56(c). The present court’s task is to determine whether disputed issues of fact exist, but a district court cannot resolve factual disputes in a motion for summary judgment. Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 249-50, 106 S.Ct. 2505, 2510-11, 91 L.Ed.2d 202 (1986); see Nathanson v. Medical College, 926 F.2d 1368, 1380 (3d Cir.1991) (Summary judgment may not be granted “if there is a disagreement over what inferences can be reasonably drawn from the facts even if the facts are undisputed.”). All evidence submitted must be viewed in a light most favorable to the party opposing the motion. Boyle v. Governor’s Veterans Outreach & Assistance Center, 925 F.2d 71, 75 (3d Cir.1991); Weldon v. Kraft, Inc., 896 F.2d 793, 797 (3d Cir.1990); see Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574, 587, 106 S.Ct. 1348, 1356, 89 L.Ed.2d 538 (1986); Todaro v. Bowman, 872 F.2d 43, 46 (3d Cir.1989); Joseph v. Hess Oil, 867 F.2d 179, 182 (3d Cir.1989). “‘Any ‘unexplained gaps’ in material submitted by the moving party, if pertinent to material issues of fact, justify denial of a motion for summary judgment.’ ” Ingersoll-Rand Fin. Corp. v. Anderson, 921 F.2d 497, 502 (3d Cir.1990) (quoting O’Donnell v. United States, 891 F.2d 1079, 1082 (3d Cir.1989)). Although the summary judgment hurdle is a difficult one to overcome, it is by no means insurmountable. As the Supreme Court has stated, once the party seeking summary judgment has pointed out to the court the absence of a genuine issue of material fact, its opponent must do more than simply show that there is some metaphysical doubt as to the material facts____ In the language of the Rule, the non-moving party must come forward with ‘specific facts showing that there is a genuine issue for trial.’ ... Where the record taken as a whole could not lead a rational trier of fact to find for the non-moving party, there is no ‘genuine issue for trial.’ Matsushita, 475 U.S. at 586-87, 106 S.Ct. at 1356 (emphasis in original, citations and footnotes omitted). In other words, the inquiry involves determining “ ‘whether the evidence presents a sufficient disagreement to require submission to a jury or whether it is so one-sided that one party must prevail as a matter of law.’ ” Brown v. Grabowski, 922 F.2d 1097, 1111 (3d Cir.1990) (quoting Anderson v. Liberty Lobby, 477 U.S. at 251-52, 106 S.Ct. at 2511-12), cert. denied, — U.S.-, 111 S.Ct. 2827, 115 L.Ed.2d 997 (1991). The Supreme Court elaborated on the summary judgment standard in Anderson v. Liberty Lobby: “If the evidence [submitted by a party opposing summary judgment] is merely colorable ... or is not significantly probative ... summary judgment may be granted.” 477 U.S. at 249-50, 106 S.Ct. at 2511 (citations omitted). The Supreme Court went on to note in Celotex Corp. v. Catrett, 477 U.S. 317, 106 S.Ct. 2548, 91 L.Ed.2d 265 (1986): “One of the principal purposes of the summary judgment rule is to isolate and dispose of factually unsupported claims or defenses, and we think it should be interpreted in a way that allows it to accomplish this purpose.” Id. at 323-24, 106 S.Ct. at 2553 (footnote omitted). Once a case has been made in support of summary judgment, the party opposing the motion has the affirmative burden of coming forward with specific facts evidencing a need for trial. See Fed.R.Civ.P. 56(e); see also Maguire v. Hughes Aircraft Corp., 912 F.2d 67, 72 (3d Cir.1990) (non-moving party may not rest upon mere allegations); Schoch v. First Fidelity Bancorporation, 912 F.2d 654, 657 (3d Cir.1990) (neither unsupported allegations in pleadings and memoranda of law nor conclusory allegations in affidavits will establish genuine issue of material fact); Hozier v. Midwest Fasteners, Inc., 908 F.2d 1155, 1165 (3d Cir.1990) (cannot create issue of fact merely by questioning credibility of movant’s witnesses; circumstantial evidence may raise issue of fact); Aronow Roofing Co. v. Gilbane Building Co., 902 F.2d 1127, 1128 (3d Cir.1990) (“summary judgment will be granted where the non-moving party fails to ‘establish the existence’ of an element essential to the case”); Carlson v. Arnot-Ogden Memorial Hosp., 918 F.2d 411, 413 (3d Cir.1990) (“nonmoving party must adduce more than a mere scintilla of evidence in its favor"). When opposing parties both move for summary judgment on the same issues, as in this case, a district court may not assume there are no genuine issues of material fact and the dispute cannot be decided as a matter of law unless the parties so agree. Fanty v. Pennsylvania, 551 F.2d 2, 12 (3d Cir.1977) (Hunter, J., dissenting) (citing Rains v. Cascade Indus., Inc., 402 F.2d 241, 245 (3d Cir.1968); 6 J. Moore, Federal Practice ¶ 56.13 (2d ed. 1976); 10 C. Wright & A. Miller, Federal Practice and Procedure § 2720 (1973)), cert. denied sub nom., 440 U.S. 957, 99 S.Ct. 1497, 59 L.Ed.2d 770 (1979). B. Regulatory Framework This action involves governmental regulation of used oil. Under RCRA, the EPA was charged with the tasks of developing and promulgating criteria for identifying hazardous waste and promulgating standards for the handling of hazardous waste in order to protect human health and the environment. See 42 U.S.C. §§ 6921 & 6922. Subsequent amendments to RCRA also charged the EPA with the task of promulgating regulations governing the use of hazardous waste as fuel. See 42 U.S.C. § 6924(q). Accordingly, the EPA promulgated regulations governing the burning of hazardous wastes for energy recovery. See 40 C.F.R. Part 266, Subpart D (“Subpart D”). In addition, the EPA promulgated regulations governing the burning of used oil for energy recovery. See 40 C.F.R. Part 266, Subpart E (“Sub-part E”). Used oil is defined as “any oil that has been refined from crude oil, used, and, as a result of such use, is contaminated by physical or chemical impurities.” 40 C.F.R. § 266.40(b); see 40 C.F.R. § 266.-40(a) (“Used oil fuel includes any fuel produced from used oil by processing, blending or other treatment.”). Subpart D regulates the marketing of hazardous wastes. Under Subpart D, “[pjersons who market hazardous waste fuel are termed ‘marketers’____ Marketers include generators who market hazardous waste fuel directly to a burner, persons who receive hazardous waste from generators and produce, process, or blend hazardous waste fuel from these hazardous wastes, and persons who distribute but do not process or blend hazardous waste fuel.” 40 C.F.R. § 266.34. A marketer may market hazardous waste fuel only: (1) To persons who have notified EPA of their hazardous waste fuel activities and have a U.S. EPA Identification Number; and (2) If the fuel is burned, to persons who burn the fuel in boilers or industrial furnaces identified in paragaraph [sic] (b) of this section. 40 C.F.R. § 266.31(a). Hazardous waste fuel may be burned only in certain devices. See 40 C.F.R. § 266.31(b)-(c). The EPA has also promulgated certain regulations governing the activities of marketers of hazardous wastes, including the following: (e) Required notices. (1) Before a marketer initiates the first shipment of hazardous waste fuel to a burner or another marketer, he must obtain a onetime written and signed notice from the burner or marketer certifying that: (1) The burner or marketer has notified EPA and identified his waste-as-fuel activities, and (ii) If the recipient is a burner, the burner will burn the hazardous waste fuel only in [a]n industrial furnace or boiler identified in § 266.31(b). (2) Before a marketer accepts the first shipment of hazardous waste fuel from another marketer, he must provide the other marketer with a one-time written and signed certification that he has notified EPA under section 3010 of RCRA and identified his hazardous waste fuel activities; and (f) Recordkeeping. In addition to the applicable recordkeeping requirements of Parts 262, 264, and 265 of this chapter, a marketer must keep a copy of each certification notice he receives or sends for three years from the date he last engages in a hazardous waste fuel marketing transaction with the person who sends or receives the certification notice. 40 C.F.R. § 266.34(eMf)- As mentioned, the EPA has also promulgated certain regulations governing the marketing and burning of used oil for energy recovery. See Subpart E; see also 40 C.F.R. § 266.43(a) (defining “marketer” of used oil fuel). Generally, used oil which is also a hazardous waste is excluded from regulation under Subpart D and is included under Subpart E. 40 C.F.R. § 266.30(b)(1). Under Subpart E: (d) Used oil burned for energy recovery is subject to regulation under this subpart rather than as a hazardous waste fuel under Subpart D of this part if it is a hazardous waste solely because it: (1) Exhibits a characteristic of hazardous waste identified in Subpart C of Part 261 of this chapter, provided that it is not mixed with a hazardous waste; or (2) Contains hazardous waste generated only by a person subject to the special requirements for small quantity generators under § 261.5 of this chapter. 40 C.F.R. § 266.40(d). Significantly, however, not all used oil burned for energy recovery is excluded from regulation under Subpart D. Subpart E also provides, in pertinent part: ... [UJsed oil that is mixed with hazardous waste and burned for energy recovery is subject to regulation as hazardous waste fuel under Subpart D of Part 266. Used oil containing more than 1000 ppm of total halogens is presumed to be a hazardous waste because it has been mixed with halogenated hazardous waste listed in Subpart D of Part 261 of this chapter. Persons may rebut this presumption by demonstrating that the used oil does not contain hazardous waste (for example, by showing that the used oil does not contain significant concentrations of halogenated hazardous constituents listed in Appendix VIII of Part 261 of this chapter). 40 C.F.R. § 266.40(c) (emphasis added). As mentioned, “off-specification used oil fuel” is defined as used oil fuel which exceeds any specification level set forth in 40 C.F.R. § 266.40 at table. See 40 C.F.R. § 266.40(c). The EPA has also promulgated certain regulations governing the marketing of off-specification used oil fuel. Subpart E provides, in pertinent part: (e) Except as provided by paragraph (c) of this section, used oil burned for energy recovery, and any fuel produced from used oil by processing, blending, or other treatment, is subject to regulation under this subpart unless it is shown not to exceed any of the allowable levels of the constituents and properties in the specification shown in the following table. Used oil fuel that meets the specification is subject only to the analysis and recordkeeping requirements under § 266.43(b)(1) and (6). Used oil fuel that exceeds any specification level is termed “off-specification used oil fuel”. USED OIL EXCEEDING ANY SPECIFICATION LEVEL IS SUBJECT TO THIS SUBPART WHEN BURNED FOR ENERGY RECOVERY Constituent/property Allowable level Arsenic........ 5 ppm maximum Cadmium........ 2 ppm maximum Chromium....... 10 ppm maximum Lead........... 100 ppm maximum Flash Point.... 100 °F minimum Total Halogens. 4,000 ppm maximum 40 C.F.R. § 266.40(e) (footnotes omitted). Under Subpart E: (a) A person may market off-specification used oil for energy recovery only: (1) To burners or other marketers who have notified EPA of their used oil management activities stating the location and general description of such activities, and who have an EPA identification number; and (2) To burners who burn the used oil in an industrial furnace or boiler identified in paragraph (b) of this section. 40 C.F.R. § 266.41(a). Like hazardous waste under Subpart D, off-specification used oil may be burned for energy recovery only in certain devices. See 40 C.F.R. § 266.41(b). Marketers of used oil fuel and off-specification used oil fuel are subject to the following requirements: (b) ... (1) Analysis of used oil fuel. Used oil fuel is subject to regulation under this subpart unless the marketer obtains analyses or other information documenting that the used oil fuel meets the specification provided under § 266.40(e). (2) Prohibitions. The prohibitions under § 266.41(a); (3) Notification. Notification to EPA stating the location and general description of used oil management activities. Even if a marketer has previously notified EPA of his hazardous waste management activities under section 3010 of RCRA and obtained a U.S. EPA Identification Number, he must renotify to identify his used oil management activities. (4) Invoice System. When a marketer initiates a shipment of off-specification used oil, he must prepare and send the receiving facility an invoice containing the following information: (i) An invoice number; (ii) His own EPA identification number and the EPA identification number of the receiving facility; (iii) The names and addresses of the shipping and receiving facilities; (iv) The quantity of off-specification used oil to be delivered; (v) The date(s) of shipment or delivery; and (vi) The following statement: “This used oil is subject to EPA regulation under 40 C.F.R. Part 266”; (5) Required Notices, (i) Before a marketer initiates the first shipment of off-specification used oil to a burner or other marketer, he must obtain a onetime written and signed notice from the burner or marketer certifying that: (A) The burner or marketer has notified EPA stating the location and general description of his used oil management activities; and (B) If the recipient is a burner, the burner will burn the off-specification used oil only in an industrial furnace or boiler identified in § 266.41(b); and (ii) Before a marketer accepts the first shipment of off-specification used oil from another marketer subject to the requirements of this section, he must provide the marketer with a one-time written and signed notice certifying that he has notified EPA of his used oil management activities; and (6) Recordkeeping—(i) Used oil fuel that meets the specification. A marketer who first claims under paragraph (b)(1) of this section that used oil fuel meets the specification must keep copies of analysis [sic] (or other information used to make the determination) of used oil for three years. Such marketers must also record in an operating log and keep for three years the following information on each shipment of used oil fuel that meets the specification. Such used oil fuel is not subject to further regulation, unless it is subsequently mixed with used oils so that it no longer meets the specification. (A) The name and address of the facility receiving the shipment; (B) The quantity of used oil fuel delivered; (C) The date of shipment or delivery; and (D) A cross-reference to the record of used oil analysis (or other information used to make the determination that the oil meets the specification) required under paragraph (b)(6)(i) of this section. (ii) Off-specification used oil fuel. A marketer who receives or initiates an invoice under the requirements of this section must keep a copy of each invoice for three years from the date the invoice is received or prepared. In addition, a marketer must keep a copy of each certification notice that he receives or sends for three years from the date he last engages in an off-specification used oil fuel marketing transaction with the person who sends or receives the certification notice. 40 C.F.R. § 266.43(b) (note omitted). In essence, this regulatory scheme creates three tiers of regulation of used oil: “Hazardous used oil is regulated strictly, off-specification used oil is regulated less strictly, and specification used oil is regulated only slightly.” Hazardous Waste Treatment Council v. United States Environmental Protection Agency, 861 F.2d 277, 288 (D.C.Cir.1988), cert. denied, 490 U.S. 1106, 109 S.Ct. 3157, 104 L.Ed.2d 1020 (1989). The court in Hazardous Waste Treatment Council, in upholding the regulations and the propriety of their promulgation, noted: “This regulatory scheme reflects the EPA’s expert judgment concerning the amount of regulation necessary to protect human health and the environment from the adverse effects of various types of used oil.” Id. RCRA provides several means for the EPA to enforce the regulations promulgated under RCRA. For example, the EPA may seek a compliance order: (1) Except as provided in paragraph (2), whenever on the basis of any information the Administrator determines that any person has violated or is in violation of any requirement of this sub-chapter, the [EPA] may issue an order assessing a civil penalty for any past or current violation, requiring compliance immediately or within a specified time period, or both, or the [EPA] may commence a civil action in the United States district court in the district in which the violation occurred for appropriate relief, including a temporary or permanent injunction. 42 U.S.C. § 6928(a)(1). In addition, the EPA may seek criminal penalties for violations of RCRA. See 42 U.S.C. § 6928(d). The Government in this case, however, has sought to have a civil penalty imposed upon Eastern pursuant to 42 U.S.C. § 6928(g), which provides: “Any person who violates any requirement of this subchapter shall be liable to the United States for a civil penalty in an amount not to exceed $25,000 for each such violation. Each day of such violation shall, for purposes of this subsection, constitute a separate violation.” Id. As mentioned, Eastern moves for summary judgment with respect to the First through Eleventh, Thirteenth and Fourteenth Claims in the Amended Complaint. The Government moves for summary judgment with respect to the First through Fourteenth Claims in the Amended Complaint. The First through Ninth Claims are brought under Subpart D, while the Tenth through the Fourteenth Claims are brought under Subpart E. Determination of these summary judgment motions requires the interpretation of the relevant regulations promulgated under RCRA. It has been noted that a court interpreting an administrative agency’s rules must look to “the plain words of the regulation and any relevant interpretations of the Administrator.” 2 K. Davis, Administrative Law Treatise § 7.22 (2d ed. 1979) (quoting Bowles v. Seminole Rock & Sand Co., 325 U.S. 410, 413-414, 65 S.Ct. 1215, 1217, 89 L.Ed. 1700 (1945)); see New York State Comm’n on Cable Television v. FCC, 571 F.2d 95, 98 (2d Cir.) (“look to the ‘common sense’ of the ... regulation, to its purpose, to the practical consequences of the suggested interpretations, and to the agency’s own interpretations”), cert. denied, 439 U.S. 820, 99 S.Ct. 85, 58 L.Ed.2d 112 (1978). The administrative agency’s interpretation of its own rule is controlling unless it is plainly erroneous or inconsistent with the regulation. K. Davis, supra at § 7:22. Significantly, a regulation must be interpreted in a manner which would effectuate the purpose of the administrative agency which promulgated the regulation. United States v. Unitank Terminal Serv., 724 F.Supp. 1158, 1165 (E.D.Pa.1989). Any ambiguity in a regulation must therefore be resolved in a manner consistent with the statutory and regulatory scheme. Id. In addition, a court must bear in mind the practical effects of its interpretation of the regulation. Id.; see New York State Comm’n, 571 F.2d at 98. The preamble to a regulation may be relevant to interpreting the regulation. Fidelity Fed. Sav. & Loan Ass’n v. De La Cuesta, 458 U.S. 141, 158, 102 S.Ct. 3014, 3025, 73 L.Ed.2d 664 (1982); Unitank, 724 F.Supp. at 1165. There does not appear to exist any controlling EPA interpretations of the relevant regulations apart from the preambles to the regulations. The only court decision addressing Subpart D and Subpart E merely held the regulations were properly promulgated. See Hazardous Waste Treatment Council, 861 F.2d at 288. Therefore, the issues raised by these summary judgment motions will depend upon an interpretation of the relevant regulations in light of their plain meaning and regulatory purpose. C. The First through Ninth Claims Eastern moves for summary judgment with respect to the First through Ninth Claims on two grounds. First, Eastern contends the Government cannot trace the source of the oil sampled on 8 April 1987. Def. Brief at 6. Therefore, Eastern argues, the Government cannot show that the oil sampled is subject to regulation under Subpart D because the Government cannot show that the sampled oil did not come from small quantity generators exempted from Subpart D. Id. at 6-7. Second, Eastern argues the Government is estopped from bringing claims under Sub-part D because Eastern detrimentally relied upon representations made by EPA officials that Eastern had not violated EPA regulations relating to hazardous waste fuel. Id. at 12. The Government argues Subpart D applies to Eastern and there is no genuine issue of material fact that Eastern has violated Subpart D. Gov’t Brief at 2. Furthermore, the Government argues the facts as alleged by Eastern do not satisfy the strict standard for applying estoppel principles against the Government. Id. The Government moves for summary judgment on the First through Ninth Claims. 1. Applicability of Subpart D Under Subpart E, “used oil that is mixed with hazardous waste and burned for energy recovery is subject to regulation as hazardous waste fuel under Subpart D....” 40 C.F.R. § 266.40(c). For purposes of determining whether used oil is hazardous waste regulated under Subpart D rather than Subpart E, the regulations under RCRA provide: ... Used oil containing more than 1000 ppm of total halogens is presumed to be a hazardous waste because it has been mixed with halogenated hazardous waste listed in Subpart D of Part 261 of this chapter. Persons may rebut this presumption by demonstrating that the used oil does not contain hazardous waste (for example, by showing that the used oil does not contain significant concentrations of halogenated hazardous constituents listed in Appendix VIII of Part 261 of this chapter). Id. It appears Eastern is subject to regulation under Subpart D. It is uncontroverted, for example, that the test of a sample of used oil taken from Tank 30 on 8 April 1987 indicated the oil contained halogens in excess of one thousand ppm. See Def. Motion Brief, Exhibit C; Flynn Deck, Exhibit E. Accordingly, it is presumed Eastern’s used oil is hazardous waste. Eastern has attempted to rebut this presumption by introducing statements from some of its suppliers. These suppliers state that none of the used oil they supplied Eastern was hazardous waste under RCRA. See LoBello, Sr. Aff., 114; Bocchino Aff., Exhibit; Lionetti Aff., 112; Wyckoff Aff., ¶ 2. In addition, several suppliers of Lionetti, L & L and B & L state they did not provide hazardous waste to Lionetti, L & L or B & L. See Wyszkowski Deck, ¶ 3; Blum Deck, ¶ 6; Scheibe Deck, 114; Kiley Deck, II3; Cannavale Deck, II3; Bright Deck, ¶ 2; Michaels Deck, ¶ 3; Brady Deck, 113; Schubert Deck, 113; Weidmann Deck, 113; DeRoide Deck, ¶ 3; Nielson Deck, 113; Goldner Deck, 113; Wagner Deck, H 3; Wilson Deck, ¶ 3; Mason Deck, 114; Jancuk Deck, If 3; Griffith Deck, ¶ 3; James J. Vouglitois Deck, II3; Lindabury Aff., 113; Malanga Deck, 115; Dunsmore Deck, ¶ 4; Kahler Aff., ¶ 4; Zajac Deck, 114; Samms Deck, 113. None of the material submitted by Eastern, however, is sufficient to rebut the presumption that Eastern’s used oil, because it contains halogens in excess of 1000 ppm, is hazardous waste regulated under Subpart D. Most of the declarations and affidavits submitted by Eastern contain nothing more than conclusory statements that no hazardous waste was shipped to Eastern or its primary suppliers. Indeed, many of the statements are qualified by language indicating the supplier only believes, as opposed to knows in fact, that used oils shipped to Eastern’s suppliers was not hazardous waste. See, e.g., Wyszkowski Deck, 113; Cannavale Deck, 113; Michaels Deck, 113; Wagner Deck, 113; Januck Deck, If 3; Griffith Deck, 113; Vouglitois Deck, 113; Lindabury Aff., 113; Samms Deck, II3. The materials submitted by Eastern do not rebut the presumption that Eastern’s used oil is regulated as a hazardous waste under Subpart D. Moreover, it is uncontroverted that at least some of Eastern’s used oil contained halogens in excess of 1000 ppm. Therefore, there is no genuine issue of material fact that Eastern’s used oil is regulated under Subpart D as hazardous waste. Summary judgment is granted in favor of the Government with respect to the applicability of Subpart D in the First through Ninth Claims. 2. Small Quantity Generator Exemption The next relevant issue is whether Eastern is exempt from regulation under Sub-part D by virtue of the small quantity generator exemption. See 40 C.F.R. § 266.40(d)(2). a. Burden of Proof Eastern contends the sampled oil was not subject to regulation under Sub-part D because of the inability of the Government to carry its burden of proving the sampled oil was not mixed with hazardous waste from small quantity generators. Def. Brief at 9. Eastern contends Subpart D does not apply to the sampled oil because the sampled oil may have come from small quantity generators, which would make it exempt from Subpart D. Def. Opp. at 4; see 40 C.F.R. § 266.40(d)(2). Under Subpart E, [u]sed oil burned for energy recovery is subject to regulation under this subpart rather than as a hazardous waste fuel under Subpart D of this part if it is a hazardous waste solely because it ... [cjontains hazardous waste generated only by a person subject to the special requirements for small quantity generators under § 261.5 of this chapter. 40 C.F.R. § 266.40(d)(2).8 **** Although Eastern contends the burden of proving used oil came from small quantity generators rests with the Government, the burden properly rests on the party claiming exemption under section 266.40(d)(2). See Hazardous Waste Treatment Council, 861 F.2d at 289. In Hazardous Waste Treatment Council, the court held “the burden will be on the holder of the oil to prove that the hazardous waste part of the mixture was produced by a small quantity generator.” Id. at 289. Eastern makes several arguments in support of its proposition that the burden of proving Eastern is not exempted from regulation under Subpart E rests on the Government. Eastern contends RCRA placed a burden of proof on the regulated entity only with respect to rebutting the presumption that wastes are hazardous under section 266.40(c). Def. Opp. at 7-8. As mentioned, section 266.40(c) creates a rebuttable presumption that used oil is hazardous waste when it is mixed with halogenated hazardous waste and contains more than 1000 ppm of total halogens. 40 C.F.R. § 266.40(c). Significantly, section 266.40(c) does not refer to small quantity generators. Therefore, the rebuttable presumption under section 266.40(c) is inapposite to the burden of proving exemption under section 266.40(d)(2). Eastern also contends the holding in Hazardous Waste Treatment Council placed the burden of proving exemption on the regulated entity only with respect to rebutting the presumption that wastes are hazardous under section 266.40(c). Def. Opp. at 7-8. Nowhere in the burden of proof discussion in Hazardous Waste Treatment Council, however, did the court mention the rebuttable presumption. Indeed, the language of the court could not be more clear: “[T]he burden will be on the holder of the oil to prove that the hazardous waste part of the mixture was produced by a small quantity generator.” Hazardous Waste Treatment Council, 861 F.2d at 289. The argument that the small quantity generator exemption relates to rebutting the presumption of hazardous waste is logically inconsistent with the regulations under RCRA. The rebuttable presumption relates to a means by which waste may be deemed not hazardous. See 40 C.F.R. § 266.40(c). In contrast, the small quantity generator exemption relates to whether hazardous wastes are regulated under Sub-part D or Subpart E. See id. at § 266.-40(d)(2). Significantly, the small quantity generator exemption applies to wastes which are already deemed hazardous. Id. Eastern also argues the preamble to the final version of the rule codified at section 266.40(d)(2) is silent as to which party bears the burden of proving a marketer is exempt from Subpart D. Def. Brief at 10. Eastern argues this silence is telling because other regulations explicitly placed the burden of proof on the marketer or regulated entity. Id. In addition, Eastern points out that although the preamble to the proposed rule regarding the exemption of small quantity generators placed the burden on the regulated entity, the burden of proof language was omitted from preamble to the final rule. Id. Eastern contends a principle of statutory construction provides that when proposed language is omitted from the final version of a statute, the proposed language is not to be read into the final version. Def. Brief at 10 (citing Landers v. National R.R. Passengers Corp., 485 U.S. 652, 656 n. 3, 108 S.Ct. 1440, 1442 n. 3, 99 L.Ed.2d 745 (1988); Monessen Southwestern Ry. Co. v. Morgan, 486 U.S. 330, 339 n. 8, 108 S.Ct. 1837, 1844 n. 8, 100 L.Ed.2d 349 (1988)). The principle relied upon by Eastern, however, is inapposite because no statute is being considered. Rather, an administrative rule and a preamble to an administrative rule proposed by a federal agency are being considered. Preambles to regulations are relevant to the construction of the final version of the regulation. See, e.g., Fidelity Fed. Sav. & Loan Ass’n, 458 U.S. at 158, 102 S.Ct. at 3025; Unitank, 724 F.Supp. at 1165. An examination of the preamble to the proposed version of section 266.40(d)(2) and the preamble to the final version of section 266.40(d)(2) indicates the burden of proving exemption is properly placed on the party seeking exemption. On 11 January 1985, the EPA released proposed rules relating to the regulation of used oil fuel under RCRA. See 50 Fed. Reg. 1,684 (to be codified at 40 C.F.R. pt. 266) (proposed 11 January 1985). In the preamble to the proposed rules, the EPA announced it was proposing that used oil generated by a small quantity generator would be regulated as used oil fuel rather than hazardous waste, even if the used oil exhibited some characteristics of hazardous waste or was mixed with some hazardous waste. 50 Fed.Reg. at 1,692. The EPA reasoned that used oil from small quantity generators should not be regulated as a hazardous waste because it is not ordinarily adulterated by the addition of halogens. Id. The EPA reiterated the already codified principle that hazardous wastes which are mixed with ordinary wastes are presumptively classified as hazardous wastes. Id. at 1,691 (citing 40 C.F.R. § 261.3(a)(2)). Accordingly, used oil mixed with hazardous waste would be presumptively classified and regulated as hazardous waste and not as used oil if it contained chlorine in excess of a certain level. 50 Fed.Reg. at 1,692; see id. at 1,691. In order to avoid regulation of used oil as hazardous waste, the EPA noted: A marketer, blender or user might argue that the material is exempt from the hazardous waste regulations and remains a used oil because it was generated by a small quantity generator. They would have the burden of proof on this issue. See, e.g., SEC v. Ralston Purina Co., 346 U.S. 119, 126 [73 S.Ct. 981, 985, 97 L.Ed. 1494] (1953) (party claiming the benefits of an exception to a broadly remedial statutory or regulatory scheme has the burden of proof to show that they meet the terms of the exception). As part of this burden, they would have to show that the used oil has never been commingled with hazardous waste ... from large quantity generators. Since used oil from small quantity generators is not typically adulterated at these levels, we do not think this burden can be satisfied other than in exceptional cases. 50 Fed.Reg. at 1,692 (emphasis added, footnote omitted). The preamble to the final rule did not contain the passage allocating the burden of proving exemption to the party seeking exemption. See 50 Fed.Reg. at 49,178-79. The EPA stated that the comments received regarding the proposed rule indicated small quantity generators were not commonly mixing hazardous waste with used oil. 50 Fed.Reg. at 49,178. Rather than promulgate a rule which exempted used oil from small quantity generators from all regulation, however, the EPA adopted a rule which classified used oil mixed with hazardous waste as hazardous waste. Id. at 49,179. The EPA opted to classify such a mixture as hazardous waste for the same reason the EPA created a presumption that certain wastes were hazardous: The EPA sought to avoid promulgating rule which would allow marketers to circumvent regulation by adulterating hazardous waste with non-hazardous waste. Id. The EPA, rather than regulating such a mixture as the hazardous waste, opted to regulate the mixture as used oil, despite its classification as hazardous waste. Id. In light of the history and purpose of section 266.40(d)(2), the EPA cannot be said to have abandoned the principle that a party seeking exemption bears the burden of proving the applicability of the exemption. The same concern was addressed by the EPA in the preambles to both the proposed and final rules. The EPA was concerned with marketers of used oil circumventing regulation by mixing non-hazardous waste used oil with hazardous waste. Both the final rule and the proposed rule address exempting a mixture of hazardous waste and used oil from regulation. The proposed rule contemplated designating such a mixture as hazardous waste only if it met the requirements of the presumptive classification of hazardous waste. The final rule differed from the proposed rule only by classifying such a mixture as hazardous waste regardless of the presumption. Both the proposed and final rule regulate hazardous waste used oil as used oil and not as hazardous waste. Because the proposed and final rule share the same concerns, the mere absence of the burden of proof language in the preamble to the final rule does not suggest the EPA abandoned the burden of proof issue. Eastern concedes the EPA ordinarily places the burden of proving an exemption from regulation on the party seeking the exemption. Def. Brief at 11 (citing 40 C.F.R. § 261.2(f)). Eastern, however, contends it is not seeking exemption from regulation. Rather, it contends it is merely seeking to be regulated under Subpart E and not Subpart D. Def. Brief, at 11. The distinction Eastern attempts to make, however, is a distinction without substance. It is apparent Eastern seeks to be exempted from regulation under Subpart D. The fact that Eastern is amenable to being regulated under Subpart E simply has no bearing on whether it is more properly regulated under Subpart D. As mentioned, Eastern has conceded the EPA ordinarily places the burden of proving exemption from regulation on the party seeking the exemption. Def. Brief at 11. Furthermore, the placement of the burden on Eastern in this case is consistent with the general principle that a party seeking exemption from the application of a statute or regulation bears the burden of proving it meets the requirements of the asserted exemption. See United States v. First City Nat’l Bank, 386 U.S. 361, 366, 87 S.Ct. 1088, 1092, 18 L.Ed.2d 151 (1967); United States v. Columbus Country Club, 915 F.2d 877, 882 (3d Cir.1990), cert. denied, — U.S. -, 111 S.Ct. 2797, 115 L.Ed.2d 971 (1991). Accordingly, the next relevant inquiry is whether Eastern has raised a genuine issue of material fact as to whether its marketing of used hazardous waste oil is exempted from regulation under Subpart D because of the small quantity generator exemption. b. Meeting the Burden of Proving Exemption To be exempted from regulation under Subpart D, Eastern would have “to prove that the hazardous waste part of the mixture was produced by a small quantity generator.” Hazardous Waste Treatment Council, 861 F.2d at 289; see 40 C.F.R. § 266.40(d)(2). Notably, the relevant regulations do not explicitly state whether all or part of a regulated entity’s used oil must come from small quantity generators for the exemption to apply. The court in Hazardous Waste Treatment Council stated that to be exempted from regulation under Subpart D, a regulated entity would have “to prove that the hazardous waste part of the mixture was produced by a small quantity generator.” 861 F.2d at 289 (emphasis added). Moreover, under Subpart E, [u]sed oil burned for energy recovery is subject to regulation under this subpart rather than as a hazardous waste fuel under Subpart D of this part if it is a hazardous waste solely because it ... [cjontains hazardous waste generated only by a person subject to the special requirements for small quantity generators under § 261.5 of this chapter. 40 C.F.R. § 266.40(d)(2) (emphasis added). Section 266.40(d)(2), by the use of the term “only,” indicates all the hazardous waste used oil Eastern mixed with virgin oil must have been supplied by small quantity generators in order for Eastern to avail itself to the exemption under section 266.40(d)(2). The decision in Hazardous Waste Treatment Council is consistent with the language of section 266.40(d)(2). Accordingly, Eastern can meet its burden of proving exemption only if it shows all, not just part, of its hazardous waste used oil came from small quantity generators. Eastern has proffered declarations from two of its suppliers of used oil, Lionetti and L & L, to support its contention that it receives used oil only from small quantity generators. Lionetti “obtains used oil from both large quantity generators and small quantity generators. The used oil is sold to such places as Eastern and is usually held on site for a one to two-week period.” Lionetti Cert., ¶ 2. According to Lionetti, during “the two week period prior to April 7, 1987 EPA inspection of [Lionetti] (March 24, 1987 to April 7, 1987) indicates that a total of 380,559 gallons were received by [Lionetti] of which 104,-758 gallons were from large quantity generators. The percentage of waste oil received from small quantity generators, in other words, is 72% of the total and 28% of the total is from large quantity generators.” Id. Similarly, L & L appears to receive significant amounts of used oil from small quantity generators. L & L estimates “at least 90 percent of the used oil that L & L collects for recycling is from [ ]small quantity generators____ [T]he percent of the used oil collected by L & L for recycling was approximately the same percentage noted in paragraph 2 during the period from January through March, 1987.1 LoBello, Jr. Decl., ¶¶ 2-3. Eastern has introduced material suggesting its suppliers receive used oil from purported small quantity generators. None of this material unequivocally indicates, however, that the small quantity generator used oil was actually provided to Eastern. For example, Lionetti merely states that its used oil is “sold to such places as Eastern____” Lionetti Cert., 112. Significantly, Lionetti does not state its used oil from small quantity generators is actually sold to Eastern. Nonetheless, it appears there is a genuine issue of material fact whether Eastern is exempt from regulation under Subpart D. It is uncontroverted that Lionetti and L & L provide used oil to Eastern. Moreover, it appears significant proportions of Lionetti’s and L & L’s used oil comes from small quantity generators. Accordingly, summary judgment in favor of either the Government or Eastern is denied with respect to the First through Ninth Claims in the Amended Complaint. 3. Estoppel Eastern contends that even if it is subject to regulation under Subpart D, the Government should be estopped from asserting the First through Ninth Claims because of misleading and improper conduct on the part of EPA officials. Def. Brief at 12. In order to assert an estoppel defense against the Government, a defendant must show (1) the Government made a misrepresentation (2) upon which the defendant reasonably relied (3) to his or her detriment. Equibank, N.A. v. Wheeling-Pittsburgh Steel Corp., 884 F.2d 80, 88 (3d Cir.1989); United States v. St. John’s Gen. Hospital, 875 F.2d 1064, 1069 (3d Cir.1989); United States v. Asmar, 827 F.2d 907, 912 (3d Cir.1987); Public Interest Research Group v. Yates Indus., Inc., 757 F.Supp. 438, 448 (D.N.J.1991); Russo Dev. Corp. v. Thomas, 735 F.Supp. 631, 637 (D.N.J.1989). In addition, a defendant must show affirmative misconduct on the part of the Government. Equibank, 884 F.2d at 88; St. John’s Gen. Hospital, 875 F.2d at 1069; Asmar, 827 F.2d at 912; Public Interest Research Group, 757 F.Supp. at 448; Russo Dev. Corp., 735 F.Supp. at 637. The burden of proof is on the party claiming estoppel. Asmar, 827 F.2d at 912. The requirement that there must be affirmative misconduct on the part of the Government stems from the principle that “the Government may not be estopped on the same terms as any other litigant.” Heckler v. Community Health Serv. of Crawford County, Inc., 467 U.S. 51, 60, 104 S.Ct. 2218, 2224, 81 L.Ed.2d 42 (1984) (footnote omitted). “ ‘[Cjourts invoke the doctrine of estoppel against the [Government with great reluctance.’ ” Equibank, 884 F.2d at 88 (quoting United States v. Browning, 630 F.2d 694, 702 (10th Cir.1980), cert. denied, 451 U.S. 988, 101 S.Ct. 2324, 68 L.Ed.2d 846 (1981)). Indeed, the Supreme Court has noted it has “reversed every finding of estoppel that [it has] reviewed.” Office of Personnel Management v. Richmond, — U.S.-, 110 S.Ct. 2465, 2470, 110 L.Ed.2d 387 (1990), reh’g denied, — U.S. -, 111 S.Ct. 5, 111 L.Ed.2d 821 (1990). Eastern contends the Government’s failure to apprise Eastern that it had violated the regulations promulgated under RCRA constitutes a misrepresentation. Def. Brief at 22. Eastern contends the Government failed to apprise it of the possible violations, even after Eastern specifically inquired. Id. Eastern contends it reasonably relied upon the Government’s representation that Eastern was in compliance with the regulations promulgated under RCRA because the regulations were confusing. Def. Brief at 22. Eastern contends its reliance was detrimental because had it known it was in violation of the regulations under RCRA, it would have acted either to comply with the regulations, to show it was not marketing hazardous waste or to settle any issue of possible liability. Def. Brief at 23. Even assuming the Government made these misrepresentations upon which Eastern allegedly detrimentally relied, Eastern has failed to show affirmative misconduct on the part of the Government. Eastern contends the Government engaged in affirmative misconduct when it failed both to apprise Eastern of the regulations promulgated under RCRA and to assist Eastern in complying with the regulations. Def. Brief at 22. The Government, however, does not have a duty to apprise the public of regulations which are readily available to the public. The Supreme Court has noted “the failure to give effective notice of information that ... was concededly published in the Federal Register ... does not ‘give rise to an estoppel against the Government.’ ” Lyng v. Payne, 476 U.S. 926, 935, 106 S.Ct. 2333, 2340, 90 L.Ed.2d 921 (quoting INS v. Hibi, 414 U.S. 5, 8-9, 94 S.Ct. 19, 22, 38 L.Ed.2d 7 (1973) (per curiam)), reh’g denied, 478 U.S. 1031, 107 S.Ct. 11, 92 L.Ed.2d 766 (1986). In Public Interest Research Group, the court was also faced with an argument that the Government had failed to apprise a defendant of the relevant regulatory provisions and how the defendant could comply with those regulations. In Public Interest Research Group, the defendant held a permit from a state regulatory authority which allowed the defendant to discharge certain amounts of pollutants into a body of water adjacent to the defendant’s manufacturing plant. 757 F.Supp. at 442. The permit required the defendant to test the discharged pollutants for silver content. Id. at 448. The defendant argued the Government should be estopped from arguing the defendant violated the testing requirement because Government officials had on one occasion misrepresented that testing was not necessary and on several other occasions failed to state whether testing was necessary. Id. at 448-49. The court rejected defendant’s argument. The court first reasoned that the Government’s silence was ambiguous and that “[i]t would be unreasonable to rely on silence in order to ignore the clear wording of a permit.” Id. at 449. The court then explained it was unreasonable to rely on the misrepresentation that testing was not needed. Id. The court stated: “[Rjeliance on oral assurances for interpretation is generally inappropriate, especially where those statements run counter to express written provisions or a permit.” Id. In this case, the regulations set forth in Subpart D were disseminated to the public in 1985. Consequently, there is no basis upon which Eastern could argue the Government should be estopped because it failed to apprise them of Subpart D when the relevant regulations governing Eastern’s used oil management activities were published in 1985. See Lyng, 476 U.S. at 935, 106 S.Ct. at 2340. In addition, the Government cannot be said to have a duty to assist Eastern in complying with the RCRA regulations such that failure to assist constitutes affirmative misconduct. Eastern, for example, contends the EPA failed to inform it that it should have tested both its incoming and outgoing used oil for hazardous waste. Def. Brief at 12-13. It has been held, however, that “neither carelessness ... nor a reluctance to be of assistance ... are tantamount to affirmative misbehavior.” United States v. Ven-Fuel, Inc., 758 F.2d 741, 761 (1st Cir.1985). Therefore, the alleged refusal of the Government to assist Eastern in complying with regulations of which Eastern should have been aware does not justify an assertion of estoppel against the Government. Eastern also contends the EPA engaged in affirmative misconduct by praising Eastern’s operations when the Government should have informed Eastern that it was in violation of the regulations. Def. Brief at 22. Eastern contends the EPA failed to notify Eastern that it had violated Subpart D prior to bringing suit. Id. at 12. In essence, Eastern contends the EPA should have openly communicated with Eastern regarding how it could comply with EPA regulations rather than collect evidence to use against Eastern in a lawsuit. Id. at 13-15. The failure of the Government to apprise Eastern of the possibility it was violating the regulations, however, does not meet the strict standard for finding the Government is estopped from enforcing regulations. See New Jersey v. Department of Health and Human Serv., 670 F.2d 1284, 1297-98 (3d Cir.) (failure to apprise insufficient to establish estoppel), cert. denied, 459 U.S. 824, 103 S.Ct. 56, 74 L.Ed.2d 60 (1982). Even if the EPA had erroneously informed Eastern that it was in compliance with RCRA, that erroneous information does not justify estopping the Government from enforcing RCRA. It has been held that the erroneous dissemination of information by a Government agent does not establish estoppel when the party asserting the estoppel defense had a legal duty to comply with a regulatory framework. United States v. Louisiana-Pacific Corp., 682 F.Supp. 1122, 1140 (D.Colo.1987) (citing Emery Mining Corp. v. Secretary of Labor, 744 F.2d 1411 (10th Cir.1984)). In this case, Eastern had an obligation, regardless of what the EPA told it, to comply with the RCRA regulations. Therefore, Eastern cannot be heard to complain that the Government misinformed or failed to inform Eastern of its potential liability. Eastern contends the conduct of the EPA officials who inspected the Facility violated the EPA’s inspection manual. Def. Brief at 21; Def. Opp. at 10. One EPA manual provides, for example, that EPA officials should conduct courteous discussions with used oil marketers and tactfully offer suggestions. See Def. Brief, Exhibit G at 4-31-4-33. Significantly, this EPA manual specifically states an EPA “inspector should not ... suggest to the owner/operator or facility representative that they are in criminal violation of RCRA or that they will be receiving a court action of any kind.” Id. at 4-25. Moreover, an EPA inspector “should avoid providing any advice or assistance that would prejudice the government’s case in a subsequent enforcement action____” Id. at 4-33. The refusal of EPA officials to inform Eastern of the potential violation of RCRA does not appear to be inconsistent with this manual. For example, in keeping with the mandate to offer suggestions, EPA officials informed Eastern its used oil was off-specification. Wilk Deposition at 32. Even if the silence of EPA officials is construed as somehow discourteous or unhelpful, that would appear to be only a minor breach of the manual motivated perhaps by a desire to avoid compromising an EPA enforcement action. Significantly, the Supreme Court has noted a minor breach of an administrative agency’s internal manual is insufficient to estop the Government. Schweiker v. Hansen, 450 U.S. 785, 789-90, 101 S.Ct. 1468, 1471-72, 67 L.Ed.2d 685 (per curiam), reh’g denied, 451 U.S. 1032, 101 S.Ct. 3023, 69 L.Ed.2d 401 (1981). Eastern argues the Government should have commenced an administrative proceeding to compel Eastern to comply with RCRA,