Department of Energy 

Oak Ridge Office of Environmental Management 

P.O. Box 2001 

Oak Ridge, Tennessee 37831 

April 7 , 2014 

Stephen F. Tyahl a, P.E., CHMM 

Project Manager, RCRA Corrective Action Office 

Waste Management Division (WST-5) 

U.S. EPA Region IX 

75 Hawthorne St. 

San Francisco, California 94 105 

DEPARTMENT OF ENERGY PETITION FOR A SITE-SPECIFIC ONE-TIME 

VARIANCE FROM A TREATMENT STANDARD UNDER THE HAZARDOUS WASTE 

LAND DISPOSAL RESTRICTIONS REGULATIONS 

Dear Mr. Tyahla: 

Enclosed is a petition fo r a site-specific one-time vari ance from the treatment standards under the 

Resource Conservation and Recovery Act (RCRA) Land Disposal Restrictions (LDRs). This 

variance is requested for 34 containers of radioacti vely contaminated hazardous waste (mixed 

low-level waste) in the form of amalgam currentl y stored at the Department of Energy's (DOE) 

East Tennessee Technology Park (ETTP). This amalgam waste was one of several waste 

streams produced utili zing a treatment train consisting of vacuum assisted thermal desorption 

(VTD) followed by separation of the condensate to isolate the organics from the elemental 

mercury and amalgamation of the elementa l mercury. The amalgamation process is the 

applicable treatment technology for radioactively contaminated elemental mercury waste under 

the LDRs. However, portions of the amalgam fai led to meet the RCRA LOR treatment 

standards. 

Through an open and competitive bid process, DOE received only one bid for treatment of this 

waste stream. The bid proposes the same treatment train as the first attempt (VTD). DOE 

believes it is inappropriate to retreat this stabilized waste form due to the facts that I) the waste is 

currently in a stable form, 2) it is unlike ly that re-treating with the method previously used will 

meet the appropriate LOR standard, 3) Re-treati ng will likely create up to eight process residual 

streams and result in a 300% increase in total waste volume, and 4) to do so is an inefficient use 

of government resources. Additional details are included in the enclosed petition. 
S. Tyahla -2- April 7, 2014 

DEPARTMENT OF ENERGY PETITION FOR A SITE-SPECIFIC ONE-TIME 

VARIANCE FROM A TREATMENT STANDARD UNDER THE HAZARDOUS WASTE 

LAND DISPOSAL RESTRICTIONS REGULATIONS 

Therefore, in accordance with 40 CFR 268.44(h). DOE requests EPA Region IX Waste 

Management Division's consideration of the enclosed petition for the radioactively contaminated 

amalgam. If you have any questions about this petition, or if you need additional information, 

please contact Brian DeMonia of my staff at (865) 241-6182. 

Enclosure 

cc: w/enclosure 

Terry Allen. EM-90 

Colin Colverson, CC- 1 0 

Richard Martin. SE-32 

Jay Mullis, EM-93 

Sincerely, 

Engineering, Safety and Quality Division 
REQUEST FOR A SITE SPECIFIC TREATABILITY 

VARIANCE FOR VTD Amalgam 

Petitioner and Facility Information 

Petitioner's Name and Address 

U.S. Department of Energy 

Oak Ridge Office of Environmental Management 

P.O. Box 2001 

Oak Ridge, TN 37831 

Petitioner's Primary Point of Contact 

Brian DeMonia, Environmental Scientist 

Engineering, Safety and Quality Division 

Oak Ridge Office of Environmental Management 

P.O. Box 2001 

Oak Ridge, TN 37831 

demoniabc@emor.doe.gov 

Generating Facilitv's Name and Address. EPA Identification Number. and Contact Name and Telephone 

Number 

U.S. Department of Energy 

East Tennessee Technology Park 

TN Highway 58 

Oak Ridge, TN 37831 

EPAID#: ____________________________ ___ 

Contact Name: Jim Kopotic 

Company: U.S. Department of Energy Oak Ridge Office of Environmental Management 

Phone Number: 865-576-9441 

E-mail: kopoticjd@emor.doe.gov 

Summary Statement of the Proposed A~ion 

The Department of Energy (DOE) requests a site-specific treatability variance pursuant to 40 Code of 

Federal Regulations (CFR} 268.44(h) for an amalgam of a radioactively contaminated elemental mercury 

mixed waste stream. Currently, thirty four 55-gallon containers of this amalgam waste are being stored 

at the East Tennessee Technology Park in Oak Ridge, Tennessee. This amalgam waste was one of 

several waste streams produced utilizing a treatment train consisting of vacuum assisted thermal 

desorption followed by separation of the condensate to isolate the organics from the elemental mercury 

and amalgamation of the elemental mercury. The amalgamation process is the applicable treatment 

technology for radioactively contaminated elemental mercury waste under the Land Disposal 

Restrictions (LDRs). However, portions of the amalgam failed to meet the Resource Conservation and 

Recovery Act (RCRA) Land Disposal Restriction (LOR) treatment standards. 
Through a competitive bid process the Department of Energy received only one bid for treatment of this 

waste stream. The bid proposes the same treatment train as the first attempt. These thirty four 

containers in the subject waste stream are the remnants of the original waste stream that failed LOR 

after processing through the treatment train, and it is speculative to conclude that application of a very 

similar treatment process would yield a different result. Therefore, the DOE is submitting this site 

specific treatability variance request for the amalgamated mercury/organically contaminated mixed 

waste stream. DOE is requesting this variance because the treatment method proposed for this waste 

to meet the otherwise applicable LOR treatment standards is considered inappropriate. Specifically, 

DOE believes it is inappropriate to retreat this stabilized waste form due to the facts that 1) the waste is 

currently in a stable form, 2) it is unlikely that the method previously used can meet the appropriate LOR 

standard, 3) to attempt to do so is an inefficient use of government resources, and 4) reprocessing, 

through use of the VTD technology can create up to eight process residual streams and result in a 300% 

increase in total waste volume( http:/ /www.clu-in.org/download/contaminantfocus/pcb/PCB-EPA-600-S13-079.pdf) .. 

Instead, based on the information presented below, DOE proposes to dispose of the 34 containers in the 

Mixed Low-Level Waste Cell #18 at the Nevada Nuclear Security Site (EPA ID #NV3890090001) after 

macro-encapsulation of the six containers of metal-bearing waste. 

Background/Prior Efforts to Meet LDRs 

The waste stream at issue resulted from the treatment of 494 containers (14,148 kilograms) of 

radioactively contaminated Resource Conservation and Recovery Act (RCRA) regulated waste . The 

waste was the result of remedial activities on the Department of Energy (DOE) Oak Ridge Reservation 

(ORR) and carried a variety of listed and characteristic waste codes. Due to nuclear activities associated 

DOE's mission, the waste was also classified as low-level waste and thus, considered mixed low-level 

waste (MLLW). The waste was part of a large legacy waste population due to the lack of available 

treatment technologies for MLLW. Under RCRA regulations, the waste was required to be treated to 

meet the LOR standards in 40 CFR Part 268 which, in accordance with 40 CFR 268.9, included the 

standards for Underlying Hazardous Constituents (UHCs). One of the UHCs identified in the waste is 

polychlorinated biphenyls (PCBs). Under TSCA regulations (see 40 CFR 761.61), the original waste was 

designated as a PCB Bulk Remediation waste. 

This prior treatment effort was carried out by Materials and Energy Corporation (M&EC) at the DOE East 

Tennessee Technology Park under Atomic Energy Act (AEA) authority and a RCRA Part B permit issued by 

the State of Tennessee (RCRA Permit# TNHW-099). The original waste stream was derived from a 

variety of remedial action activities on the DOE ORR. The original treatment train methodology included 

vacuum assisted thermal desorption (VTO) to volatilize the organics and mercury; condensing the 

organics/mercury faction; separation of organics from the elemental mercury in the condensate; and 

amalgamation of the elemental mercury. The separated organics and the original residuals from the VTD 

process have been successfully dispositioned. M&EC has received the Environmental Protection Agency 

Region 4 approval to commercially treat PCB Bulk Remediation Waste by Thermal Desorption per 40 CFR 

761.61(c). 

Via a ~ulfur-based amalgamation process, approximately 37,985 kilograms of amalgamated mercury was 

produced by the VTD train and resulted in a dry, soil-like matrix with no free liquids (see attached 

photos). Analytical results showed that the amalgam waste in 34 containers (7,094 kilograms) did not 

meet applicable LOR treatment standards. 
Waste Description 

For the 34 containers at issue, the treatment train failed in its attempt to completely separate the 

organics from the elemental mercury, resulting in the failure of a portion of those containers to meet 

LOR treatment standards for PCBs {32 containers) or methanol (2 containers). In addition, six of the 34 

containers failed to meet LOR standards for metals, either as a UHC or as a primary constituent. 

The condensate collected from this prior treatment process contained organics and mercury derived 

from waste streams that carried a variety of listed and characteristic waste codes. Therefore, any 

treatment method selected for the condensate would have to meet the Universal Treatment Standards 

{UTS) found in 40 CFR 268.48 for UHC's. With the exception of two containers which failed to meet the 

treatment standards for lead by a very small margin and one that exceeded standards for methanol, all 

of the primary hazardous constituents have been successfully treated (see attachment). As noted 

above, the predominant UHC of concern is polychlorinated biphenyls (PCBs). 

Metals (lead, thallium, and nickel) are also present above LOR standards in 6 containers. DOE proposes 

to treat these 6 containers by macro-encapsulation to maximize environmental protection and avoid the 

potential for leaching or migration. Two containers marginally fail the LOR treatment standards for 

methanol and are proposed for direct disposal. All containers are classified as PCB Bulk Remediation 

waste and are suitable for direct disposal per 40 CFR 761.61. 

Treatment Options 

The Federal Facilities Compliance Act of 1992 {42 U.S.C. 6961 et seq.), requires DOE to prepare a plan 

(the Site Treatment Plan, or STP) for developing treatment capacities and technologies for each facility 

at which DOE generates or stores MLLW. Stream M1781 identifies a population of waste which was 

returned to the STP after it was determined that the treatment facility could not in fact meet LORs after 

treatment. The waste stream was returned to the STP with the Tennessee Department of Environment 

and Conservation's (TDEC) concurrence, and has since been awaiting an appropriate treatment option. 

The only current treatment option offered to DOE (which was the result of a thorough competitive bid 

process) proposes the reprocessing of the 34 containers in a VTD unit located in Clive, Utah. The first 

step in reprocessing would require the destabilization of the amalgamated waste matrix. Destabilization 

includes the addition of a non-hazardous inert material (e.g. silica) to a small volume of waste, 

facilitating downblending at a ratio of 2.6/1 to allow proper operation of the reaction vessel. In 

addition, it is estimated that 7,500 gallons of condensate will be generated, once again requiring the 

separation of organics from the elemental mercury amalgamation. This treatment option of these 

drums will therefore yield three new primary waste streams; waste residue from the VTD vessel, 

organics, and elemental mercury. In addition, up to 5 secondary waste streams could be generated. 

The residue from the reaction vessel would be disposed of as mixed low-level waste, organics would 

again require incineration, and the elemental mercury would be amalgamated. The result of 

implementing this option could be an increase of 300% from the original waste volume and at an 

estimated cost of $4,800,000 based on a firm fixed-priced competitive bid. 
Rationale for Considering the Treatment Option as Technically Inappropriate 

Exposure to Radiation and Hazardous Chemicals 

A major driver for the technically inappropriate nature of the proposed treatment regime is the principle 

of reducing the number of unnecessary occupational, safety and health exposures for individuals 

managing and maintaining the waste stream. Further treatment of the amalgam would unnecessarily 

expose workers to radiation from the various radionuclides present in the waste. Workers would be 

exposed during the reopening of the containers, down blending operations, separation, and reamalgamation phases of the treatment process. Although exposures can be minimized through 

application of engineering controls and personal protection equipment, as low as reasonably achievable 

(ALARA) principles compel DOE to pursue options that eliminate or greatly reduce the exposure to 

radiation. The appropriate avoidance to unnecessary risk of radiation exposure or contamination is the 

granting of this variance, in conformance with ALARA principles and the appropriate technical approach. 

In addition, destabilization of the amalgam and subsequent treatment via condensation and reamalgamation could unnecessarily expose workers to mercury. Approval of this variance would require 

handling of only 6 containers during the stabilization or encapsulation process. Although we expect 

that controls would be in place to protect workers, OSHA's hierarchy of protection would dictate that 

we pursue processes that would eliminate or greatly reduce the exposure to mercury. The appropriate 

technical approach to manage this waste stream would avoid unnecessary exposure to mercury. 

Granting a variance would eliminate or greatly reduce worker exposure by eliminating or reducing the 

need for handling the waste. Direct disposal of the 34 containers would eliminate the potential 

chemical or radiological exposures of workers. If macro-encapsulation is performed on the 6 containers 

previously mentioned, chemical and radiological exposures again would be eliminated since there would 

be no need to open and handle the waste. If stabilization is performed on the 6 containers, worker 

exposure would be significantly reduced relative to the VTD train since only a select number of drums 

would require opening. 

Potential Releases to the Environment 

The majority of environmental statues, the Clean Air Act included, have a primary goal of encouraging or 

otherwise promoting reasonable Federal, State, and local governmental actions for pollution 

prevention. In addition to worker exposure, the suggested treatment would result in the unnecessary 

potential releases of mercury and radionuclides to the air. Although through application of engineering 

controls we would not expect air pollution limits to be exceeded, zero chance at emissions would 

certainly be preferred for protection of the environment. This treatment would also result in avoidable 

secondary waste that will require possible treatment and disposal 

Waste Volume Increase 

Treatment of this waste will result in an approximately 3-fold increase in the volume of waste that must 

be disposed due to the necessary addition of silica and the regeneration of condensate. As previously 

mentioned, the VTD technology can create up to 8 secondary waste streams. Creation of a larger 

volume of waste requiring additional treatment and mixed waste disposal capacity is considered 

technically inappropriate, particularly when the waste in its current form is stable and not reasonably 
subject to leaching or harmful dispersion. Implementation of the proposed treatment process would 

generate secondary waste in the forms of personal protective equipment, filter media, and empty 

containers, etc. 

Disposal Site 

DOE proposes to dispose of the waste in the MLLW Cell #18 at the Nevada Nuclear Security Site in 

Nevada, EPA ID# NV3890090001. This site has been selected due to its arid climate, depth to 

groundwater, permit status, and long-term environmental mission. Disposal in Cell #18 is authorized by 

RCRA Permit# NEVHW101. In addition, under 40 CFR 761.612(a)(3) for PCB Remediation Waste, this 

waste may be disposed of in a permitted RCRA subtitle C landfill. Cell #18 is a double lined cell that is 

authorized and routinely receives PCB Bulk Remediation waste. This variance would allow for the 

technically appropriate direct disposal of these drums in a safe and stable manner in a disposal site that 

is sufficiently engineered to manage the waste stream for the predictable future. 

Requested Variance 

Based on the rationale above, DOE requests that EPA authorize the land disposal of the 28 non-metal 

bearing containers with no further treatment, and the remaining 6 metal-bearing containers after 

macro-encapsulation. If approved, further exposure to radiological and chemical constituents to 

workers would be greatly reduced or eliminated; the creation of greater volume of waste would be 

minimized; and the probability of future environmental insult would be reduced if the preferred disposal 

option were approved. 
Mercury and Organically Contaminated MLLW 

Radiolog~cal Data 

Enrichment FEM U-235 Count Container ld. WID No. U-235 

(%) (g) 

1 K25C1000458 1<209740 0.37 1.06E-06 

2 K25C1000459 .1<209741 0.23 O.OOE+OO 

3 K25C1101058 1<209742 0.24 O.OOE+OO 

4 K25C1000461 1<209743 0.24 O.OOE+QO 

5 K25C1000462 1<209744 0.24 O.OOE+OO 

6 K25C1 000464 1<209746 0.38 9.89E-06 

7 K25C1000465 1<209747 1.09 3.67E-02 

8 K25C1000466 1<209748 0.22 O.OOE+OO 

9 K25C1000467 1<209749 0.27 O.OOE+OO 

10 K25C1 000468 1<209750 0.50 O.OOE+OO 

11 K25C1 000469 1<209751 1.09 3.74E-02 

12 K25C1000472 1<209754 o:24 4.82E-08 

13 K25C1000483 1<209765 0.21 4.94E-08 

14 K25C1 000484 1<209766 0.21 7.12E-08 

15 K25C1000485 1<209767 0.21 5.35E-08 

16 K25C1 000486 1<209768 0.22 3.39E-10 

17 K25C1000487 1<209769 0~32 5.90E-08 

18 K25C1002001 1<209770 0.24 O.OOE+OO 

19 K25C1000517 1<209771 0.30 3.55E-08 

20 K25C1 000516 1<209772 0.30 3.55E-08 

21 K25C1002002 1<209773 0.28 2.03E-08 

22 K25C1 0.00513 1<209775 .0.20 7.42E-10 

23 K25C1000511 1<209777 0.21 1.06E-09 

24 K25C1000509 1<209779 0.32 6.56E-10 

25 K25C1 000507 1<209780 0.25 1.48E-07 

26 K25C1000508 1<209781 0.32 6.35E-10 

27 K25C1000506 1<209783 0.25 1.93E~07 

28 K25C1000505 1<209784 0.25 1.93E-07 

29 K25C1000504 1<209785 0.25 1.36E-07 

30 K25C1 000492 1<209797 0.37 2.48E-09 

31 K25C1 000491 1<209798 0 .. 25 1A~E-Q7 

32 K25C 1000490 1<209799 0.32 6.84E-10 

33 K25C1000489 . 1<209800 0.32 3.59E-10 

34 K25C1000518 1<209801 0.25 5.95E-08 
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.~0~017, REV~ 7 

APP~N-OlX C, PAGE 1 

. 5(17i1988 

12/20/2005 

·.' .. 

5/.17/1988 

7/212QQ~ .. 

' .... ?18/2009 . 

~1/1)19~0 

12/19/2006 

5/17/1988 

272 

176 

147 

166 

854 

1773 

. 136 

288 

1 

262 

174 
27b.2 56754 PCB Remediatior Wast~ 5/17/1988 152 

27b.2 ' 56755 PCB Remediation Waste 5/17/1988 183 

27b.2 56756 PCB Remediation Waste 5117/1988 139 

) 

·--

·. 

A0-01 7, REV. 7 

. . APPENDIX C, PAGE 2 
WID# 

K209740 

K209741 

K209742 

K209743 

K209744 

K209746 

K209747 

K209748 

K209749 

K209750 

K209751 

K209754 

K209765 

K209766 

K209767 

K209768 

K209769 

K209770 

K209771 

34 Containers: Constituents Not Meeting LOR Standards 

Constituent 

PCB 

PCB 

PCB 

PCB 

PCB 

Lead 

Methanol 

PCB 

Lead 

PCB 

Lead 

PCB 

Thallium 

PCB 

Lead 

PCB 

PCB 

bis (2-ethylhexyl) 

phthalate 

Methanol 

PCB 

PCB 

PCB 

PCB 

Fluoranthene 

Nickel 

PCB 

PCB 

UHCor 

Code 

UHC 

UHC 

UHC 

UHC 

UHC 

0008 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

0008 

UHC 

UHC 

UHC 

U154 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

UHC 

LOR limit Units Value 

10.00 mg/kg 33.000 

10.00 mg/kg 34.900 

10.00 mg/kg 803.000 

10.00 mg/kg 354.000 

10.00 mg/kg 121.000 

0.75 mg/1 0.971 

0.75 mg/1 10.300 

10.00 mg/kg 47.000 

0.75 mg/1 2.500 

10.00 mg/kg 49.800 

0.75 mg/1 3.010 

10.00 mg/kg 16.200 

0.20 mg/1 0.210 

10.00 mg/kg 203.000 

0.75 mg/1 1.100 

10.00 mg/kg 71.900 

10.00 mg/kg 

28.00 mg/kg 5.600 

0.75 mg/1 2.720 

10.00 mg/kg 33.800 

10.00 mg/kg 32.100 

10.00 mg/kg 12.900 

10.00 mg/kg 12.000 

3.40 mg/kg 5.300 

11.00 mg/1 12.100 

10.00 mg/kg 353.620 

10.00 mg/kg 11.800 

Units Notes 

mg/kg 

mg/kg 

mg/kg 

mg/kg 

mg/kg 

mg/1 TCLP 

mg/1 TCLP 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/kg 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/kg 

mg/kg 

mg/kg 

mg/kg 

mg/1 TCLP 

mg/kg 

mg/kg 
Fluoranthene UHC 3.40 mg/kg 5.300 mg/kg 

PCB UHC 10.00 mg/kg 21.900 mg/kg 

K209772 Fluoranthene UHC 3.40 mg/kg 8.500 mg/kg 

Phenanthrene UHC 5.60 mg/kg 5.640 mg/kg 

K209773 PCB UHC 10.00 mg/kg 125.000 mg/kg 

K209775 PCB UHC 10.00 mg/kg 144.000 mg/kg 

K209777 PCB UHC 10.00 mg/kg 14.200 mg/kg 

K209779 PCB UHC 10.00 mg/kg 12.000 mg/kg 

K209780 PCB UHC 10.00 mg/kg 21.900 mg/kg 

K209781 PCB UHC 10.00 mg/kg 125.000 mg/kg 

K209783 PCB UHC 10.00 mg/kg 127.000 mg/kg 

K209784 PCB UHC 10.00 mg/kg 111.000 mg/kg 

K209785 PCB UHC 10.00 mg/kg 53.100 mg/kg 

K209797 PCB UHC 10.00 mg/kg 10.600 mg/kg 

K209798 PCB UHC 10.00 mg/kg 46.000 mg/kg 

K209799 PCB UHC 10.00 mg/kg 125.000 mg/kg 

K209801 PCB UHC 10.00 mg/kg 125.000 mg/kg 

K209801 PCB UHC 10.00 mg/kg 46.000 mg/kg 
K25Cl000489 
K 5(1000489 

K25Cl000490 
K25C1000509