## Department of Energy Oak Ridge Offi c e of En v iro n me nt al Ma na geme nt 

### P

. O

. Box 2001 O ak Ridg e , T e nn essee 37831 

### April 7 , 20 1 4


### Stephen F. Tyahl a, P.E. , CHMM Project Manage r, RCRA Corrective Action Office Waste Manageme nt Division (WST

- 5) U.S. EPA Region IX 75 Hawthorne S t. San Franc isco , Ca li fornia 94 105 

### DEPARTMENT OF ENERGY PETITION FOR A SITE -SPEC IFIC ONE-TIME VARIANCE FROM A TREATMENT STANDARD UNDER THE HAZARDOUS WASTE LAND DISPOSAL RESTRICTIONS REGULATIONS
Dear Mr. Tyah la:
Enc losed is a petiti on fo r a s ite -sp ecific one-time va ri ance from the treatme nt standard s un der the Reso urce Co nservation and Recovery Act (RCRA) Land Di s po sal Restriction s (LDR s)

. T hi s va riance is req ues ted for 34 containers of radioac ti ve ly contami nated hazardou s waste (mixed low- leve l was te) in th e form of a ma lgam curre ntl y s tored at the Departme nt of E ne rgy's (DOE) Eas t Te nn essee Technology Park (ETTP). T hi s ama lgam waste was on e of several waste streams prod uced utili z ing a treatme nt train co ns is tin g of vac uum ass isted thermal desorption (VTD) foll owed by separatio n of the condensate to iso late the organics from the e lementa l merc ury and amal gamation of the e le menta l mercury. The ama lgamation process is th e appl icab l e treatme nt techn o logy fo r rad ioact ive ly co nta min ated e lemental mercury waste under the LDRs . However, portio ns of the amalgam fai led to m eet the RCRA LOR treatment s tandard s . Through an open and competiti ve bid process , DOE rece ived on ly one bid for treatmen t of th is waste stream. T he b id propo ses t he sam e treatme nt tra in as th e fir st attempt (VTD). DO E be li eves it is in app ropriate to retreat thi s s tab ili zed was te form du e to the fac t s that I ) the waste is c urre ntl y in a stable fo rm , 2) it i s unlike l y th at re-treatin g w ith the method prev ious ly use d w ill meet the a ppropriate LOR s tandard , 3) Re -treati ng w ill like ly create up to e ig ht proce ss res id ua l stream s and res ult in a 300% increase in total waste vo lum e, an d 4) to do so is an inefficient use of governm e nt resources. A dditional deta il s are included in the enclo sed petition.

### S. Tyahl a 

### -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

T herefore , in acco rdanc e w ith 40 CFR 268.44( h)

. DO E requ est s EPA Reg ion I X Waste Manage me nt Di v ision 's consideration of the e ncl osed pe titi o n f o r the radioactive ly co ntaminated amalgam. If yo u have any que s tion s abou t thi s pet itio n, or if yo u need additional information , please contac t Brian DeMonia of my staff at (865) 241-6182.

Encl os ure

cc: w/enc los ure Terry Allen. EM

- 90 Co lin Co lverson, CC

- 1 0 Richard Martin. SE-32 J ay Mulli s, EM

- 93 S incerel y ,

Engin eerin g, Saf ety and Quality Di v is ionREQUEST 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, downblending 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 

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A0-01 7, REV

. 7



## . .

APPEND IX 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(1 000489

# K25Cl000490

# K25C1000509