Long-Term Surveillance REPORT · SUBJECT: Disposal Site Long-Term Surveillance and Maintenance TO: Don Ofte, Manager, IDO As a result of ideas generated following the 1986 Remedial

Long-Term Surveillanceand Maintenance Program

REPORT

GIO-2000-1 39-TAR

Long-Term Surveillance

and Maintenance Program

1999 Report

Long-Term Surveillance and Maintenance ProgramU.S. Department of Energy

Grand junction OfficeGrand junction, Colorado

March 2000

Front cover photographs (clockwise from top)

An LTSM Program inspector traverses the top slope of the Mexican Hat, Utah, Disposal Cell.

Limited grazing is allowed on the gross-covered disposal cell at Edgemont, South Dakota.

LTSM Program personnel inspect a rock-filled drain installed at the Burrell, Pennsylvania,Disposal Site to channel run-on water away from the cell.

The sealed heat-exchanger building (with the "Sheldon Station" sign) is all that remainsabove the ground surface at the Hallam, Nebraska, Decommissioned Reactor Site.

A plant ecologist removes the aboveground plant material to measure the leaf area indexat the Lakeview, Oregon, Disposal Site.

This report was prepared as an account of work sponsored by an agency of the United StatesGovernment. Neither the United States Government nor any agency thereof, nor any oftheir employees, makes any warranty, express or implied, or assumes any legal liability orresponsibility for the accuracy, completeness, or usefulness of any information, apparatus,product, or process disclosed in this report, or represents that its use would not infringeprivately owned rights. Reference herein to any specific commercial product, process, orservice by trade name, trademark, manufacturer, or otherwise, does not necessarilyconstitute or imply its endorsement, recommendation, or favoring by the United StatesGovernment or any agency thereof. The views and opinions of authors expressed herein donot necessarily state or reflect those of the United States Government or any agency thereof.

Long-Term Surveillance and Maintenance Program 19cJ)9 Report

Page iii

ContentsFo rew o rd ............................................... v

A cro nym s ................................................ vi

Protecting the Health of Future Generations ................. 1

Stewardship of DOE Low-Level RadioactiveW aste Disposal Sites ...................................... 3

LTSM Program Stewardship Activities ........................ 5

1999 Program Accomplishments ........................... 7

LTSM Program Planning and Implementation ................ 12

M issions and O bjectives ................................... 12

Organization and Administration ............................ 12

A ssum ptions ........................................... 1 3

R isks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 4

LTSM Projects and Sites ................................... 16

UM TRCA Title I Disposal Sites .............................. 16

UM TRCA Title II Disposal Sites .............................. 20

NW PA Section 151 Sites ................................... 21

C ERC LA Sites ........................................... 22

W eapons Program Site .................................... 22

D& D Program Sites ...................................... 23

Long-Term Radon Management Project ....................... 23

Grand Junction Office Remedial Action Project .................. 23

FU SRA P Sites ........................................... 24

Cover Monitoring and Long-Term Performance Project ........... 24

Contacts/Resources ....................................... 26

This report was prepared by MACTEC Environmental Restoration Services (ERS)for the U.S. Department of Energy Grand Junction Office under

DOE Contract Number DE-ACi 3-96GJ87335.

Long-Term Surveillance and Maintenance Program 1999 Report

ý__. , .1". Long-Term Surveillance and Maintenance Program 1999 Report

Page v

ForewordIn 1999, the Long-Term Surveillance and Maintenance (LTSM) Program at theU.S. Department of Energy (DOE) Grand Junction Office marked its 11 th yearof operations.

Currently, the LTSM Program has custody of 26 disposal sites with low-level radio-active material. By 2006, approximately 60 sites are expected to be assigned to theLTSM Program for custody and care. The program ensures protection of the environ-ment from the potentially hazardous materials contained at the assigned sites andmaintains the sites in full compliance with applicable regulations.

Stewardship services provided by the program during 1999 included inspectingsites, conducting minor maintenance, monitoring groundwater, supervising permits,monitoring institutional controls, providing information and assistance to otheragencies and stakeholders, and managing records. This work was accomplishedwhile improving methods and procedures to reduce costs and increase efficiencies.

The LTSM Program is in a unique position of having acquired actual stewardshipexperience while many sites in the DOE complex and elsewhere still are undergoingremediation. LTSM Program sites and methods provide test cases and lessons learnedfor other stewards. To fulfill the obligation to share this information, the LTSM Programserves as a resource to stewardship and stakeholder working groups at many sites, toDOE Headquarters, and to workers in other countries.

LTSM Program outreach activities continued in 1999. A public information site onthe World Wide Web was inaugurated in March. A second Stewardship Workshopwas held in Grand Junction in September. LTSM Program experts expandedcooperative research projects with other Federal agencies to investigate isolationand monitoring technologies.

I am pleased to present this report of the operations and recent accomplishments ofthe DOE Grand Junction Office LTSM Program. In this report, we provide descriptionsof the spectrum of activities that constitute a working stewardship program as well asthe condition of and concerns about the sites in our custody. For more informationabout the LTSM Program, please contact me at (970) 248-6037 or visit our WorldWide Web site at http://www.doegjpo.com/programs/Itsm/.

Russel EdgeLTSM Program ManagerU.S. Department of EnergyGrand Junction Office


Page vi

AcronymsAEC U.S. Atomic Energy Commission

CERCLA Comprehensive Environmental Response, Compensation, and Liability Act of1980 or Superfund Program (42 United States Code [U.S.C.] 9601, et seq.)

CFR Code of Federal Regulations

D&D Defense Decontamination and Decommissioning [Program]

DOE U.S. Department of Energy

FUSRAP Formerly Utilized Sites Remedial Action Program

GJO Grand Junction Office

LTSM Long-Term Surveillance and Maintenance

NPL National Priorities List

NRC U.S. Nuclear Regulatory Commission

NWPA Nuclear Waste Policy Act of 1982 (42 U.S.C. 10101 et seq.)

RCRA Resource Conservation and Recovery Act of 1976 (42 U.S.C. 6901, et seq.)

UMTRCA Uranium Mill Tailings Radiation Control Act of 1978 (42 U.S.C. 7901, et seq.)

UMTRA Uranium Mill Tailings Remedial Action [Project]


Page 1

Protecting the Health of Future GenerationsRadioactive materials have been commer-cially extracted from ores in the UnitedStates since the early 1 900s. Accompanyingthis production has been the creation ofradioactive waste. Historically, these wastematerials have been abandoned, with nocontrols on exposure or redistribution.Many of the activities sponsored by theFederal government also resulted ingeneration of low-level radioactive waste.

For much of the "nuclear age," healthofficials were not aware of the dangersposed by these materials. However, asthe potential effects became apparent, theU.S. Department of Energy (DOE) and theU.S. Congress acted to mitigate this threatto public and environmental health. Publicresources were committed to remediateradioactive waste sites and isolateremaining wastes from the environment.

Unfortunately, most radioactive wastematerials remain hazardous for long periodsof time. Cleaning up a contaminatedsite solves the immediate need to blockexposure pathways to current populations.Long-term care is required, though, toensure that the wastes remain isolated fromthe environment and do not threaten the Two views of tailings discarded in the open-pit mine athealth of future generations. Congress Spook, Wyoming, from uranium ore-processingrecognized this need when it stipulated that operations at that site (circa 1 960s).DOE would provide stewardship services forsites remediated under the Uranium MillTailings Radiation Control Act (UMTRCA).Stewardship requirements are implicit inother environmental protection regulationsthat apply to radioactive waste cleanup orenvironmental protection.


Page 2

Chronicle of Low-Level Radioactive Waste

1914 to 1928 Western U.S. sandstones mineralized with both uranium and vanadiumoxides are mined for their radium content. Most of the ore is processedin Denver, Colorado, and Canonsburg, Pennsylvania.

1920s Demand increases for vanadium as a component of steel. Mines andmills are opened on the Colorado Plateau to produce the metal.Uranium is discarded as a waste material.

1943 The Manhattan Engineer District establishes a refinery at Grand Junctionto concentrate uranium from vanadium slimes produced at mills inthe region.

1946 Passage of the Atomic Energy Act (superseded by the Atomic Energy Actof 1954) establishes civilian control of nuclear power production andauthorizes the U.S. Atomic Energy Commission (AEC) to possessradioactive materials and regulate their use.

1950s through 1970 AEC operates a uranium exploration and procurement program fromthe Grand junction Area Office to encourage domestic uraniumproduction. Milling research is conducted by AEC at the Grand JunctionArea Office and at Monticello, Utah.

1950s through 1990s Uranium is produced commercially for the Federal government and theprivate sector. Because of changing demands, production is cyclical andtapers off to almost nothing from 1980 to the present. Many uraniummills are abandoned.

1964 Passage of the Private Ownership of Special Nuclear Materials Actencourages civilian development of nuclear electricity generation.This action helps create a market for domestic uranium.

1978 AEC is reorganized into the U.S. Nuclear Regulatory Commission (NRC)and the Energy Research and Development Administration, the precursorof DOE. Passage of the Uranium Mill Tailings Radiation Control Act(UMTRCA) specifies remedial action at abandoned uranium oreprocessing mills and stewardship of the resulting disposal sites. UMTRCAprovides a mechanism for active millsites to be reclaimed, owner licensesterminated, and the sites assigned to DOE for stewardship.

1980s DOE establishes the Defense Decontamination and Decommissioning(D&D) Program, Formerly Utilized Sites Remedial Action Program(FUSRAP), and Surplus Facilities Management Program (SFMP) toremediate sites contaminated with radioactive materials duringManhattan Project and early AEC activities.

1982 Passage of the Nuclear Waste Policy Act (NWPA) authorizes DOE tobecome custodian of designated civilian nuclear waste sites.

1988 DOE establishes the Long-Term Surveillance and Maintenance Programat DOE-GJO.

1999 DOE and the U.S. Army Corps of Engineers finalize a Memorandumof Understanding to transfer remediated FUSRAP sites to DOE forstewardship.

4 -71 ` Long-Term Surveillance and Maintenance Program 1999 Report

Page 3

Stewardship of DOE Low-LevelRadioactive Waste Disposal SitesDOE established the Long-Term Surveil-lance and Maintenance (LTSM) Programto provide stewardship services at low-levelradioactive waste disposal sites. EffectiveJanuary 1, 1989, the DOE Grand JunctionOffice (GJO) was designated as the pro-gram office for "disposal site long-termsurveillance and maintenance." Head-quarters most recently reconfirmedassignment of this responsibility to GJOin 1998.

DOE intends to assign all long-termstewardship responsibilities for sites thatmeet two criteria to the LTSM Program:(1) the site is not physically a part of amajor DOE facility, and (2) the site doesnot have a DOE mission after cleanup.Assignment of site responsibility to theLTSM Program ensures cost minimizationand uniform compliance with applicableregulations, licenses, and agreementswithin DOE.

All locations with contamination left on siterequire long-term care. These sites wereremediated under different environmentalrestoration programs, each with its ownregulations and standards. In each case,specific regulations, general environmentallaws, and DOE orders establish standardsand limits for protection of workers, thepublic, and the environment.

Currently, the LTSM Program is responsiblefor annual surveillance, monitoring, andmaintenance of 26 disposal sites remedi-ated under UMTRCA Title I and Title II,the Nuclear Waste Policy Act (NWPA)Section 151, and the DOE Defense Decon-tamination and Decommissioning (D&D)Program. By 2006, the LTSM Programexpects to provide stewardship services forapproximately 60 sites. These will includeUMTRCA Title I and Title II sites, two sitesremediated under the ComprehensiveEnvironmental Response, Compensation,

United States Government Department of Energy

memorandumDATE: NOV 30 1988

REPLY TO

ATTN OF: NE-20

SUBJECT: Disposal Site Long-Term Surveillance and Maintenance

TO: Don Ofte, Manager, IDO

As a result of ideas generated following the 1986 Remedial Action Annual Meeting at Oak Ridge, four workinggroups were forned in December 1986 to examine issues related to the various aspects of work performed bythe DOE remedial action projects of the Assistant Secretary for Nuclear Energy.

One of the four working groups examined "disposal sites long-term surveillance and maintenance."

... During July 1987, the group issued a report that made the following recommendations:

* Establish a common office to control and monitor all surveillance and maintenance programs for all remedialaction proliects.

* Establish one main contractor, or local contractors or regional institutions in the long-term implementation forsurveillance and maintenance programs.

* Develop funding requirements for long-term surveillance and maintenance programs.

* Develop a DOE general remedial action program surveillance and maintenance guidance document or order.

Based on these recommendations and my analysis of the report, I am designating the Idaho Operations/GrandJunction Project Office (GJPO) as the program office for "disposal site long-term surveillance and maintenance"effective January 1, 1989....

John E. BaublitzActing Director, Office of Remedial Action and Waste Technology.Office of Nuclear Energy

Excerpts from a directive that authorizes the LTSM Program at the Grand Junction Office.


Page 4

Summary of Sites in LTSM Program Custody (January 2000)

Program/Site

UMTRCA Title I

UMTRCA Title IINWPA Section 151(c)

Long-Term Radon Management Project

D&D

NWPA Section 151 (b)

Weldon Spring, Missouri

Grand Junction Office Remedial Action Project

Monticello, Utah

Pinellas, Florida

FUSRAP

191999 2000 2001

9 19 19

2 6 12

1 1 1

1 1 1

3 3 3

2002

19

15

1

1

3

2

1

1

1

2003 2004 2005

19 19 19

15 15 17

1 1 1

1 1 1

3 3 3

4 6 8

1 1 1

1 1 1

1 1 1

1 1 1

3 3 5

200619

18

11

3

10

5

Total 26 30 37 44 50 52 58 61

and Liability Act (CERCLA) (Monticello,Utah, and Weldon Spring, Missouri) andFormerly Utilized Sites Remedial ActionProgram (FUSRAP) sites. Negotiations for aMemorandum of Understanding are underway between DOE and the U.S. NuclearRegulatory Commission (NRC) for theNWPASection 151(b) sites; if accepted byDOE, some of these sites may be assignedto the LTSM Program. Descriptions of theseremedial action programs and the sitesgoverned by their regulations are providedlater in this report.

For UMTRCA Title I and Title II disposal sitesin the LTSM Program, DOE becomes alicensee to NRC. Inspection, reporting, and

record-keeping requirements are definedin Title 10 Code of Federal Regulations (CFR)Parts 40.27 and 40.28 that establish thegeneral licenses for long-term custody ofTitle I and Title II sites, respectively. Thegeneral licenses for long-term custody areindefinite in duration; these licenses will notexpire. Usually, title for the land is assignedto an agency of the Federal government,and the land is administratively withdrawnfrom unrestricted public use. Sites locatedon Tribal land revert to Tribal control, andDOE obtains a site access agreement withthe Tribe that allows DOE to fulfill itscustodial responsibilities.

For disposal sites transferred to DOE underthe authority of NWPA, the long-termstewardship requirements are not explicitlydefined as under UMTRCA. Similarly, fordisposal sites remediated under the DOED&D Program, stewardship requirementsare not statutorily defined. However, DOEconducts long-term custody and careactivities to eliminate risks from potentiallyhazardous materials under the department'sresponsibility. For NWPA and D&D Programsites, the LTSM Program adopts a long-termstewardship approach that is analogous tothe program mandated by the NRC license-driven stewardship activities for sitesremediated under UMTRCA Title I andTitle II. The LTSM Program will developLong-Term Surveillance Plans (LTSPs) forthese sites, if necessary.

The Spook, Wyoming, Disposal Site as it appearsnow that remediation is complete. Remedial actionhas prevented the spread of contaminatedmaterials and allowed return of the site toproductive use.

ý i ý Long-Term Surveillance and Maintenance Program 1999 Report

Page 5

LTSM Program Stewardship ActivitiesAs steward, the LTSM Program must ensurethat the sites in its care do not cause harmto workers, the public, or the environment.The program also must ensure that the sitesremain fully compliant with applicableregulations. Program systems and activitiesare designed to meet these goals.

The LTSM Program conducts site surveil-lance and monitoring activities in accor-dance with approved site-specific LTSPs.LTSM Program personnel inspect eachassigned site at least annually. Theyprepare, distribute, and archive an annualsite condition report. The purposes ofthe annual inspection are to confirm theintegrity of visible features at the site; toidentify changes or new conditions thatmay affect site integrity; and to determinethe need, if any, for maintenance or follow-up inspections and monitoring. At the timeof the inspection, program specialistsevaluate the effectiveness of site-specificinstitutional controls and ensure that thesite remains in full compliance withapplicable regulations.

The disposal impoundments were designedto require only minimal maintenance forthe duration of their design lives. Becausethese cells are relatively new, only minormaintenance is required at present. How-ever, as the sites age, they will requireroutine replacement of wear items suchas fencing and signs.

LTSM Program activities also includegroundwater monitoring and otherenvironmental monitoring, as stipulatedin the site-specific LTSPs. Monitoringresults are reviewed to ensure regulatorycompliance. All sites remain in fullcompliance.

If a disposal site receives severe damageor sustains catastrophic failure, DOE willundertake the necessary corrective action.The LTSM Program maintains contactswith local law enforcement officials neareach site, who will notify DOE in case ofan incident or emergency. Signs withthe DOE-GJO 24-hour phone number[(970) 248-6070] are posted at each site.

An LTSM Program soil scientist meets with representativesof the U.S. Bureau of Land Management to inspect therevegetated haul road near the Gunnison, Colorado,Disposal Site.

As site steward, the LTSM Programdocuments all activities at the site. Thatinformation is archived at the GJO facilityso that it is available to future stewards.Records that describe baseline conditionsare acquired from remedial actioncontractors before site transfer. Ongoingsurveillance and monitoring results arepreserved so trends may be established.Records are maintained in National Archivesand Records Administration-compliantstorage areas and are tracked in anelectronic database.

The LTSM Program encourages stakeholderinvolvement with program operations.Stakeholders consist of all interested partiesfor a given site, including local residents,regulators, elected officials, and the general


Page 6

A representative of the Navajo Notion and an LTSM Programinspector assess the effectiveness of an herbicide application ontamarisk, a deep-rooted invasive shrub, at the Shiprock, NewMexico, Disposal Cell.

Signs in both Navajo and English warnlocal residents against using water thatintermittently issues from seeps below theMexican Hat, Utah, Disposal Cell.

public. The program has implementedthe LTSM Program Public Participation Plan,which is an appendix to the Long-TermSurveillance and Maintenance ProgramPlan posted at www.doegjpo.com/programs/Itsm/ under "General,""Program Information."

Program personnel provide transferassistance to site owners as remediationactivities approach completion. The

Long-Term Su

program obtains necessary records toconduct ongoing stewardship and developsan LTSP for the site. Real property transferor access acquisition activities are super-vised by LTSM Program personnel, often incoordination with the U.S. Army Corps ofEngineers. Program personnel participatein a site-handoff inspection and ensure thatthe site complies with stipulated require-ments before accepting responsibility forthe site.

irveillance and Maintenance Program 1999 Report

Page 7

1999 Program AccomplishmentsThe LTSM Program inspected and perf-ormed necessary monitoring and mainte-nance of all sites assigned to the program.Visits were also made to sites that willlikely be transferred to the program, andtransition assistance was provided to theowners of those sites.

During 1999, the LTSM Program

" Inspected 25 sites and prepared reportsof site conditions. These inspectionsevaluated site integrity and conformanceto regulations and identified neededmaintenance.

" Collected groundwater samples at14 UMTRCA sites and two non-UMTRCAsites. At some sites, groundwater sampl-ing is required in the site-specific LTSPto demonstrate that precipitation is notpassing through disposal cell contentsand carrying leached contaminants intothe underlying groundwater system.Groundwater samples were collectedfrom permanent monitor wells or, atsome sites, from streams, seeps, orsprings hydraulically downgradientfrom the disposal cell. This activity wascoordinated with the Uranium MillTailings Remedial Action (UMTRA)Ground Water Project to realize costefficiencies and to avoid duplication ofeffort. At UMTRCA Title I sites, the LTSMProgram is responsible for monitoringgroundwater associated with the disposalcell; the UMTRA Ground Water Project isresponsible for addressing groundwatercontaminated by pre-UMTRCA process-ing operations.

* Monitored groundwater levels at 1 3 sites.This monitoring is necessary to ensurecompliance with State and Federalgroundwater protection regulations.Monitoring is used also to documentchanges in local groundwater regimensas flow changes caused by processing-related activities dissipate and flowsreturn to a natural state. At the SlickRock, Colorado, Disposal Site, waterlevels within the cell are monitoredto ensure that transient-drainage

accumulations donot enter the localgroundwater system.Standpipes wereinstalled in the SlickRock cell for thispurpose. Waterlevels are monitoredat the Durangoand Rifle, Colorado,Disposal Sites toensure that wateraccumulation withinthe cells does notcause side slopes to An LTSM Program tebecome unstable. samples from a point

" Continued riprap the Green River, Utah

durability studies atthe Lakeview, Oregon, Disposal Site.A modified field procedure wasimplemented this year to determinemore accurately the size distribution ofthe riprap. Riprap size is calculated toresist the erosive effects of a theoreticalmaximum precipitation event. Imple-mentation of the revised procedurerequired NRC approval of changes to theLTSP. Radon decay-product concentrationmeasurements were completed at thislocation. No anomalous radon concen-trations were detected, indicating thatthe radon barrier component of the coveris functioning as designed.

" Initiated radon decay-product concentra-tion monitoring and surveyed the settle-ment monitoring devices at the Shiprock,New Mexico, Disposal Site. This workwas conducted at the request of theNavajo Nation, a stakeholder andregulator at this location. Settlementmonitors, installed during construction,were surveyed to obtain initial elevations.The cell has not consolidated as much aspredicted; results indicate that the settle-ment that has occurred poses no threatto cover integrity. Also this year, theprogram began monitoring moisturewithin the cell and the cover.

" Assumed responsibility for the Maybell,Colorado, and the Naturita, Colorado,

chnician collects water-of-compliance well ati, Disposal Site.

Long-Term Surveillance and Maintenance Program 1999 Report 4ý 1 "'i-

Page 8

The U.S. Nuclear Regulatory Commission licensed the Naturita, Colorado, Disposal Cell in 1999. AnUMTRCA Title II disposal cell to the right of the cell contains raffinate crystals from the UMETCO mill atUravan, Colorado.

UMTRCA Title I Disposal Sites. These sitescame under the NRC general licensein 1999. Acquisition of these sites marksthe completion of the DOE UMTRASurface Project. Site acquisition includedconducting verification and orientationinspections to document baseline siteconditions and integrating site recordsinto LTSM Program archives.

" Performed routine maintenance at12 sites. Maintenance activities includedreplacing signs that were defaced orstolen, repairing fences, removingdebris and windblown sand, cuttingencroaching vegetation, and sprayingweeds. Perimeter signs and boundarymonuments were installed at theGrand Junction (Cheney) Disposal Site.Boundary monuments and perimetersigns were relocated at the Green River,Utah, Disposal Site to reflect changes inthe boundaries of the land acquired forthe site.

" Operated the Grand Junction, Colorado,Disposal Cell. Activities included installinga pipeline between two ponds toenhance wastewater management,relining one of the ponds, and disposingof low-level radioactive waste receivedduring 1999 from the DOE-GJO facilityand from private removals of UMTRCA-related residual radioactive material fromRifle and Grand Junction. The cell wassecured for the coming year by sealingthe contaminated material in the openportion of the cell with an elastomericbinder. The LTSM Program inspects the

site weekly when the facility is notaccepting waste.

" Reduced groundwater-sampling frequen-cies at the Grand Junction, Colorado;Gunnison, Colorado; Parkersburg, WestVirginia; and Lakeview, Oregon, sites.These changes reflect assessments oflow risk at these locations and wereimplemented with the concurrence ofregulators. DOE will realize cost savingsas a result.

" Compiled the results of a biointrusion riskassessment for the Burrell, Pennsylvania,Disposal Cell and began revising theLTSP to recommend halting vegetationcontrol. Studies indicate that plantencroachment could occur without riskto local populations or the environment.This modification allows curtailingherbicide application at the site andallowing the natural hardwood forest tore-establish on the disposal cell cover.Results of the risk assessment arereported in Plant Encroachment on theBurrell, Pennsylvania Disposal Cell:Evaluation of Long-Term Performanceand Risk (GJO-99-96-TAR).

" Continued studies at western U.S. sitesto determine if volunteer plant growthdegrades the water-infiltration barrierproperties of cell covers. This workaddresses concerns that water infiltrationmight increase if deep-rooted plants areallowed to establish on the Lakeview,Oregon, and Tuba City, Arizona, covers.Results will be applicable to the Lowman,

t -ýO Long-Term Surveillance and Maintenance Program 1999 Report

Page 9

Idaho, Disposal Cell, where the nativeponderosa pine forest will colonize thecell if active vegetation control measuresare not implemented.

" Reviewed the slope stability analysisof the embankment at the Durango,Colorado, Disposal Cell in preparation forshutting the toe drain. Transient drainagehas been routed through the toe drainto a holding pond since 1989. The pondwater must be treated, analyzed, anddischarged every fall to prevent damagecaused by ice formation. Plans call forclosing the toe drain in 4 years; thisaction will not result in embankmentinstability.

" Operated treatment cells at the DurangoDisposal Site. The cells were constructedby Sandia National Laboratories/NewMexico to test the effectiveness of zero-valent iron in removing uranium andother contaminants from the transientdrainage water. Since 1996, the LTSMProgram has operated these cells. Resultshave been used to design and installpermeable reactive barriers at theMonticello, Utah, CERCLA Site and atTravis Air Force Base in California. Treat-ment studies will continue until 2002,and the toe drain will be permanentlyclosed in 2004.

" Developed a design to stabilize theChartiers Creek stream bank adjacent tothe Canonsburg, Pennsylvania, DisposalSite. This task included coordinatingactivities with borough-sponsored sani-tary sewer construction through theproject area. A U.S. Army Corps ofEngineers permit is required for thisactivity. The stream bank will bestabilized in 2000.

" Negotiated a contract with a local land-owner near the Falls City, Texas, DisposalSite to harvest hay from the cell top andthe site perimeter. The landowner willfertilize, cut, and remove the hay at nocost to DOE. Regular cutting is necessaryto maintain the health of the desiredgrasses, to discourage woody plantgrowth, and to reduce the fire hazard.

" Installed a barrier along the access roadto the Burrell, Pennsylvania, Disposal Site

to discourage trespassing and dumpingon land adjacent to the disposal site.

" Installed a second caisson lysimeter inMonticello, Utah, and installed a full-scaledrainage lysimeter within the cell cover atthe Monticello CERCLA Site. The drainagelysimeter will allow collection of empiricaldata to verify theoretical work on evapo-transpiration cover technology.

" Completed studies of revegetationtechniques at the Tuba City, Arizona,Disposal Site. Program range scientistsidentified planting techniques andspecies that resulted in the greatestrevegetation success at this site. Theseresults may be applicable to other aridsites, as well.

" The Long-Term Performance Projectcontinued monitoring cell covers andprovided summaries on cover design andmaterial properties for UMTRCA Title Icovers. Researchers can use the collecteddata to support development of more

LTSM Program scientists measure the pH of a watersample at the retention pond at the Durango,Colorado, Disposal Site before the water is releasedinto a nearby drainage.

Long-Term Surveillance and Maintenance Program 1999 Report 4- 1 ` ý

Page 10

Native grosses on the top slope and adjacent to the Falls City, Texas,Disposal Cell are harvested regularly to ensure a healthy turf and toreduce the risk of fire.

appropriate, less-expensive disposal cellcovers for municipal landfills, nonradio-logic hazardous waste sites, and otherapplications.

" Released the Long-Term Surveillanceand Maintenance Program Plan. Thisdocument defines program scopeand activities, responsibilities, andrequirements.

" Developed the draft Guidance forImplementation of Long-Term Surveillanceand Maintenance at DOE Sites in Long-Term Stewardship to serve as a basisfor stewardship activities within DOE.This national guidance is applicable tostewardship activities at all sites whereDOE has or will have postclosure obliga-tions. The LTSM Program at DOE-GJOwas selected by the DOE Long-TermStewardship Working Group to preparethis document because the LTSMProgram has more experience withproviding stewardship services thanany other office within DOE.

" Presented LTSM Program cost estimatesin a separate project baseline summary.The program is in a unique positionwithin DOE to provide explicit steward-ship cost estimates independent ofinfrastructure or remediation costs. DOEformally compiled stewardship costs forall sites as part of the Accelerating

Long-Term Su

Cleanup: Paths to Closure budget process.LTSM Program managers have advisedplanners at other sites on estimatingstewardship costs.

" Developed life-cycle stewardship costestimates for the Rocky Flats Environ-mental Technology Site near Denver,Colorado. The LTSM Program wasasked to develop and verify these costsbecause of the program's experiencein providing postclosure stewardshipservices since 1988.

* Participated in a rock placement work-shop hosted by NRC. This workshopincluded visits to five UMTRCA Title Isites to demonstrate to agreement-Stateregulators what the UMTRA SurfaceProject learned about rock placementand durability testing. The intent of theworkshop was to share this knowledge sothat it can be applied to UMTRCA Title IIsite construction and acceptance.

" Issued guidance to implement themonitor well decommissioning project.Program personnel began verifyingthe inventory of DOE monitor wells atUMTRCA Title I sites. Unneeded wellspose a liability to DOE and will beabandoned; any associated permitswill be closed out.

* Hosted the Long-Term StewardshipWorkshop in Grand Junction, Colorado.More than 160 managers and specialistsrepresenting more than 80 agencies,companies, and stakeholder groupsattended this workshop. The workshopprovided opportunities for exchanginginformation, problem solving, andestablishing contacts. Field trips wereconducted to the disposal sites at Rifleand Grand Junction, Colorado, andMonticello, Utah. The LTSM Programwill again host a stewardship workshopin 2000.

" Assumed responsibility for obligationsremaining from the UMTRA SurfaceProject for Title I sites, now that fundingauthority for that project has expired.Concerns include warranty claims forvicinity property remediation; permitobligations for storm water, reclamation,and other ongoing regulatory

rveillance and Maintenance Program 1999 Report

Page 1 1

requirements at UMTRCA Title Ilocations; and disposal of incidentalwaste from vicinity properties. Activitiesinclude managing the wetland restora-tion and permit closure at the Slick Rock,Colorado, processing sites and managingthe haul road revegetation and establish-ment of critical habitat for endangeredsage grouse near the Gunnison,Colorado, Disposal Site.

" Began incorporating UMTRA SurfaceProject records into the LTSM Program -'

records archive. This activity will continuethrough fiscal year 2000.

" Presented technical papers at the WasteManagement '99 symposium andprepared draft technical papers for An LTSM Program research scientist (in hard hat) explains the new

the 2000 symposium. LTSM Program caisson lysimeter at the Monticello, Utah, CERCLA Site to participants

personnel made presentations at the of the 1999 Long-Term Stewardship Workshop.

Technology Information Exchangeconference, the National Mining Asso-ciation annual meeting, and an AmericanGeophysical Union meeting. Programpersonnel participated in workshopssponsored by or meetings with theEnergy Community Alliance; the Long-Term Stewardship Working Group andthe stewardship cross-cutting teamsponsored by the DOE Office of Environ-mental Management; the NationalAcademy of Science; the West Valley,New York, site stakeholders group;and the State and Tribal GovernmentWorking Group.

" Established a liaison with U.S. ArmyCorps of Engineers officials in preparationfor assuming responsibility for FUSRAPsites. A Memorandum of Understandingwas finalized specifying that sitesrequiring stewardship will be trans-ferred to DOE upon completion ofremedial action.

" Continued to disseminate inspectionresults and site status information toregulators, the public, and otherstakeholders.


Page 12

LTSM Program Planning andImplementation

LTSM Program activities are conducted inaccordance with the Long-Term Surveillanceand Maintenance Program Plan (theprogram plan). Portions of the programplan are summarized in this section. Inaddition to the information presented inthis report, the program plan establishesresponsibilities, regulatory requirements,and controls for the LTSM Program.Guidance and plans for routine operationsand extraordinary circumstances areidentified. A major component of theprogram plan addresses public participa-tion. The program plan is posted atwww.doegjpo.com/programs/Itsm/.

Mission and Objectives

LTSM Program functions have beendefined in mission and objectives state-ments. In the program plan, these broadobjectives are broken down into specificgoals, and a strategy for achieving eachgoal is presented.

" Maintain compliance with applicableregulations.

" Serve as a source of stewardship informa-tion and expertise for other entities withlong-term care responsibilities.

" Provide services and products withinapproved schedule and budget limits.

" Provide an outreach and informationdissemination resource to the publicto maintain public trust in local LTSMProgram sites.

Organization andAdministration

The program plan establishes respon-sibilities for key program personneland organizations. In the future, somestewardship services may be acquired forremote sites through cooperative agree-ments between the LTSM Program andlocal, Tribal, or State agencies.

The LTSM Program is administrativelyresponsible to the DOE Office of Environ-mental Management, which is responsiblefor the remediation and control of wastematerials for which the Department isresponsible.

Funding is acquired through an annualbudget request administered throughthe DOE Albuquerque Operations Office.Projected funding through 2006 issummarized in a separate LTSM Programproject baseline summary under thedirection of DOE-GJO.

LTSM Program costs will increase from$2,900,000 in 2000 to approximately$1 3,500,000 in 2006 as the number andcomplexity of sites increase.

Mission-To fulfill DOE's responsibility to

implement all activities necessaryto ensure regulatory complianceand to protect thep'ublic and the

environment from long-livedwastes associated with the

nation's nuclear energy,weapons, and research activities.

Objectives

" Protect the public and the environment.

* Maintain site records and information sofuture custodians can continue to provideeffective stewardship.

* Provide a resource to manage long-termdisposal and storage sites.

Long-Term Surn,eillance and Maintenance Program 1999 Report

Page 1 3

Assumptions 70

Key assumptions for the LTSM Program are U 60-

divided into two categories: institutional .2 50and environmental protection/regulatory C 40

.C 40compliance. z

30 -Institutional Assumptions 3 -

. 20 . . .

* Adequate funding will be provided to 10carry out the LTSM Program mission.

" Native American tribes/nations, 1999 2000 2001 2002 2003 2004 2005 2006States, the public, regulators, and the Fiscal YearU.S. Congress are program stake-holders and influence program policy Anticipated Number of Sites in LTSM Programand conduct.

" As program stakeholders, communitiesnear the LTSM Program sites expect no 16000unacceptable risks from the contami-nated materials. 14000

1

* DOE will negotiate institutional controls 12000to protect the public and the environ- 1000ment, will entrust implementation ofthose controls only to governmental 80agencies with the resources to manage u_ 6000and enforce them, and will periodically -40monitor the effectiveness of institutional _400

controls. 2000 m" DOE will seek public participation in 01999 2000 2001 2002 2003 2004 2005 2006

the development of required compliance Fiscal Yearstrategies.

" Tribal, State, and local agencies will Anticipated LTSM Program Funding

continue to take an active role inmonitoring site compliance and maybecome actively involved in supportingstewardship operations.

" Local changes in land use will not affectthe siting or configuration of sites in thecustody of the LTSM Program.

" Waste disposal capacity will be available,if needed.


Page 14

Environmental Protection/Regulatory Compliance Assumptions

" Applicable regulatory drivers have beenidentified, and the program will achieveand maintain full compliance with thoselaws and regulations.

" The program will remain informed ofchanges to pertinent regulations and willrevise program procedures as necessary.

" The sites are stable and protective of theenvironment and will remain so for theforeseeable future. This assumption ispredicated on the goal of cell designs,which was to construct waste impound-ments that maintain isolation with onlyminimal maintenance. The programrecognizes that corrective action may,at some future time, be required.

" Surveillance and monitoring activitieswill identify degradation of site contain-ment systems and the potential forcontaminant release.

Risks

Risks and risk-reduction strategies havebeen identified for the LTSM Program. Risksare identified as either programmatic orsite specific.

Among long-term programmatic risks is theuncertainty of whether some individual sitesor sites in a given restoration program willbe transferred to the LTSM Program.Because the owner or restoration agencyimplements a site transfer, the actualtransfer schedule is uncertain. Unresolvedregulatory issues or other concerns canaffect transfer schedules.

Site-specific risk reduction is achieved bymonitoring trends and conducting correc-tive action before extraordinary eventsoccur. Risk reduction is enhanced byadhering to the LTSM Program qualityassurance program, following proceduresfor routine program activities, conductingperiodic inspections and regulatorycompliance reviews, communicating withaffected parties, and planning for extraordi-nary situations.

The table on page 15 presents LTSMProgram risks and responses. The risksare ranked according to the permanenceor the severity of the impact to eitherhuman health and the environment orto a Federal agency.


Page 15

LTSM Program Risks and Responses

ExtentRisk of Risk Probability Impact Risk-Reduction Response

Release of Site Low Increased risk to public and Sites are inspected to identify and addresscontaminated environment, violation of laws potential problems before a release can occur.solids or regulations, potential DOE-GJO maintains an emergency response

contamination of soil and team that can be called upon to respond ifgroundwater necessary. The LTSM Program also maintains

communication with local response agencies.

Release of Site Moderate Increased risk to public and Leachate accumulation levels are monitored atcontaminated environment, violation of laws or sites with leachate collection systems. Conserv-leachate regulations, potential ative action points have been established. If

contamination of soil and leachate levels rise to the action points, leachategroundwater will be pumped and treated. Early warning

point-of-compliance monitor wells are sampledat other sites where this risk is identified. Coverintegrity is evaluated annually.

Public injury Site Low Potential lawsuit, negative Exercise due diligence. Sites are clearly markedat site publicity and access is impeded where necessary.

Failure of Site Low, near- Increased risk to local population A review of institutional controls is conducted atinstitutional term; increases and environment the time of the annual inspection and beforecontrols with time conducting a nonroutine activity.

Records Program Low Loss of mission-critical active and National Archives and Records Administration-damage or historical records. Inability to compliant records management system in placeloss respond to frequent requests for and operational.

information

Loss of Program Low Site operations would scale down Sites are designed to require only minimalfunding or cease, may incur fines or other surveillance and maintenance; they should

penalties remain protective for short periods of timewithout intervention. If funding is curtailedfor longer periods, Federal regulators can orderDOE to resume work.

Degradation Site Varies from low Expense to re-evaluate Sites are inspected regularly for early warning ofof contain- to high containment system design and integrity reduction. The LTSM Program is notifiedment systems implement repair of severe natural events or events that might

threaten site integrity.

Vandalism Site Moderate, Theft or damage to cover Passive security measures are evaluated annuallyto sites high at materials, possible release of or and maintained as necessary. Ongoing

some sites exposure to contaminated vandalism may require upgrades to accessmaterials controls or increased site presence.

Regulatory Program Low, but Noncompliance notification, A regulatory compliance review is conducted atnoncom- funding potential negative publicity the time of the annual inspection and beforepliance dependent conducting a nonroutine activity.

Loss of key Program Moderate Short-term disruption of Program operations are guided by approvedpersonnel operations plans. Records are maintained of site conditions

and program activities.


Page 1 6

LTSM Projects and Sites

* Site licensed to DOE and transferred to LTSM Program

* Site not yet transferred to LTSM Program

Locations of UMTRCA Title I Sites

UMTRCA Title I Disposal Sites

UMTRCA specified 24 inactive uraniumprocessing sites for remediation. Of these,two sites in North Dakota were removedfrom the UMTRA Project. Remediationresulted in creation of 19 disposal cells thatcontain encapsulated uranium mill tailingsand associated contaminated material.Almost 43 million cubic yards of low-levelradioactive material are contained inUMTRCA Title I disposal cells.

The U.S. Environmental Agency (EPA) setsforth UMTRCA remedial action, cell perfor-mance, and groundwater standards in40 CFR 192. These standards direct DOE todesign the cells to endure with minimummaintenance for 1,000 years, or at least200 years. Upon NRC concurrence thatremedial action is complete and acceptanceof the site-specific LTSP, each site comesunder the DOE general license for long-termcare granted in 10 CFR 40.27. If ground-water at a particular site was contaminatedby former site activities, NRC will allow

only the surface improvements to comeunder the general license; the site will notbe fully licensed until groundwater qualitymeets the applicable regulations. The NRClicense mandates annual inspections of thedisposal cells.

Two UMTRCA Title I disposal cells (Maybelland Naturita, Colorado) came under thegeneral license in 1999. A portion of theGrand Junction, Colorado, Disposal Cellwill be left open under the Long-TermRadon Management Project that ismanaged by DOE-GJO in conjunctionwith the LTSM Program.

LTSM Program personnel inspected19 UMTRCA Title I disposal sites duringfiscal year 1999. The following summariesprovide a brief status report on each site;complete annual inspection reports andfact sheets are available on the LTSMProgram World Wide Web site(www.doegjpo.com/programs/Itsm/)or from the LTSM Program officeat DOE-GJO.

týioý Long-Term Surveillance and Maintenance Program 1999 Report

Page 17

Ambrosia Lake, New Mexico-Contami-nated materials were consolidated andencapsulated on the existing tailings pile.The riprap-armored disposal cell was closedin 1995. NRC has concurred that ground-water quality conforms to the requirementsof 40 CFR 192 through the application ofsupplemental standards. Therefore, ground-water monitoring is not required todetermine compliance or cell performanceat this location, and NRC fully licensed thesite in 1998. The shallow depression on thecell cover noted in 1998 is probably anartifact of cell construction and has notchanged. Minor vegetation encroachmentupon the cell will be monitored.

Burrell, Pennsylvania-Mill tailingswere hauled to this location from theCanonsburg, Pennsylvania, site for use asfill. Because of the large volume of tailingson the site, a disposal cell was constructedat Burrell. The disposal cell was acceptedunder the NRC general license in 1994.In 1999, the LTSM Program completeda biointrusion study indicating that plantencroachment will not result in an increasedrisk or in regulatory noncompliance. If NRCconcurs in the LTSM Program recommend-ation that vegetation control be halted,an indigenous hardwood forest will likelyestablish on the cell cover. Groundwatermonitoring indicates that the cell isoperating as designed.

Canonsburg, Pennsylvania-DOEencapsulated low-level radioactive materialfrom the millsite and 163 vicinity propertiesin an engineered disposal cell in 1985. NRCaccepted the site under the general license,and the site was transferred to the LTSMProgram in 1996. This urban disposal cellhas a compacted clay liner to prevent theisolated radioactive materials from causinggroundwater contamination. The tailingswere covered with 3 feet of a clayey soilradon/water infiltration barrier and layersof rock and soil; the cover was seededwith grass. Custodial maintenance at theCanonsburg Disposal Cell includes mowingthe grass within the site boundary andpreventing the establishment of shrubs ortrees on the cell cover, thus ensuring thesuccess of the grass cover and preventingerosion. Limited groundwater and surfacewater monitoring will continue annually

through 2003. Unneeded monitor wells willbe abandoned. Canada thistle, a noxiousweed, has been identified growing at thesite and may require control. A stream bankstabilization project is planned for 2000.

Durango, Colorado-DOE removedtailings, contaminated building debris,and soil from the processing location onthe Animas River and vicinity properties.The low-level radioactive material wasencapsulated in the Durango DisposalCell southwest of Durango in 1990. NRCaccepted the cell under the general licensein 1996. The cell cover includes a radon/water infiltration barrier consisting ofmultiple layers of compacted clay materialsand an overlying bentonite geomembranemat. Over this layer are placed a sand filter/drainage layer, a rock biointrusion layer,and a frost-protection/rooting mediumlayer. A planted rock-soil matrix layerprotects the top slope of the cell; the sideslopes are covered with riprap to protectagainst wind and water erosion. Ground-water is monitored annually to confirmcell performance.

Falls City, Texas-NRC concurred that thissite conformed to EPA standards, and thesite was brought under the general licensein 1997. Tailings from seven deposits werecombined in a disposal cell on the originalmillsite. The cell top is grass covered andis mowed twice a year to discouragegrowth of deep-rooted plants on the cover.Plant encroachment on the riprap-armoredside slopes is a concern. Area drainagewas corrected after flooding occurred onadjacent properties. Because groundwaterat this location contains widespreadnaturally occurring contamination, it isclassified as limited use. The groundwateris sampled to monitor cell performance.

Grand Junction, Colorado-Low-levelradioactive materials from the GrandJunction, Colorado, area were relocated tothe Grand Junction Disposal Cell. A portionof the cell will remain open until as lateas 2023 under the Long-Term RadonManagement Project (see page 23). TheLTSM Program assumed responsibility forthe entire site in 1998, but the provisionsof the site-specific LTSP address only theclosed portions of the cell. Groundwater


Page 18

monitoring is not required at this sitebecause of poor ambient quality. However,shallow paleochannels near the cell aremonitored to detect any seepage thatmight escape the cell. Volunteer plantencroachment on the rock-armored cellcover may become a concern.

Green River, Utah-Tailings, contaminatedsoil, and building debris were encapsulatedin an on-site disposal cell in 1989. NRCaccepted the Green River Disposal Cellunder the general license for UMTRCATitle I in 1998, and the site was transferredto the LTSM Program. The programconducts annual inspections; no extraordi-nary repairs or maintenance have beenrequired to date. Groundwater at the sitewas contaminated by processing operationsand is sampled to monitor cell perfor-mance. Site groundwater contains naturallyelevated levels of selenium and is not usedas drinking water in the region.

Gunnison, Colorado-Uranium milltailings along the Gunnison River andcontaminated materials from demolishedmill structures and vicinity properties inGunnison were relocated to the GunnisonDisposal Cell in 1995. NRC licensed thesite in 1997. Groundwater monitoring isrequired at point-of-compliance wells toconfirm cell performance. In 1999, thesampling frequency was reduced fromsemiannual to annual sampling events.Potential concerns at this location includefreeze-thaw degradation of the riprap andchanges in drainage patterns that could becaused by future expansion of the adjacentGunnison County Landfill. Unneededmonitor wells will be abandoned.

Lakeview, Oregon-Remedial action wascompleted at the Lakeview site in 1989,and NRC placed the site under the DOEgeneral license in 1995. The disposal cellside slopes are armored with riprap; the topslope is covered with riprap, overlain withsoil, and planted with native grasses. Theolivine basalt armor rock is monitoredannually for signs of accelerated weatheringand consequent reduction in size. TheLTSM Program monitors site groundwaterto verify that contaminants are not leachingfrom the disposal cell. In 1999, thesampling frequency was reduced from

annual sampling to sampling once every5 years.

Lowman, Idaho-In 1992, DOE consoli-dated radioactive materials from processingoperations and vicinity properties ontoexisting radioactive sand piles and encap-sulated the material beneath an engineeredcell cover. NRC licensed the disposal cell in1994. Groundwater monitoring is requiredto confirm cell performance. In 1999,modifications were made to a runoff waterdiversion system to prevent erosion onadjacent property. Plant encroachmentupon the cell cover will be monitored todetermine if vegetation will compromisecell integrity. Otherwise, the site is inexcellent condition, without any mainte-nance needs.

Maybell, Colorado-Tailings and process-related waste were consolidated on theexisting tailings pile and encapsulated in1998. NRC concurred in the remediationand accepted the site under the generallicense in 1999. The site lies in a uraniummining district and several abandonedmines and processing sites are locatednearby. Local groundwater was contamin-ated by uranium mineralization and frommining activities and is not monitored forcompliance. Groundwater levels will bemeasured to monitor for potential transientdrainage from the cell until at least 2004.Settlement plates within the cell will besurveyed through 2003 because the largequantity of encapsulated slimes creates apotential for consolidation.

Mexican Hat, Utah-Mill tailings fromthe UMTRCA Title I processing site inMonument Valley, Arizona, were hauledto the Mexican Hat Disposal Cell and co-disposed with tailings left at this location.In 1997, NRC accepted the disposal cellunder the general license for UMTRCATitle I sites, and the site was transferredto the LTSM Program. The Navajo Nationretains title to the land. The programconducts annual inspections; no extraordi-nary repairs or maintenance have beenrequired to date. Groundwater at the sitewas contaminated by processing operationsand is sampled at downgradient seeps andmonitor wells by the LTSM Program andthe UMTRA Ground Water Project. The

t_ý4 Long-Term Surveillance and Maintenance Program 1999 Report

Page 19

shallow aquifer is naturally unsaturatedand is expected to drain empty ofcontaminated water.

Naturita, Colorado-Contaminated soiland building debris from a processing siteon the San Miguel River were relocated toa sandstone quarry pit near the UMETCOTitle II site at Uravan, Colorado, and wereencapsulated beneath an engineered cover.NRC licensed the Naturita site in 1999.Tailings from the processing site hadpreviously been relocated to the HeclaDurita millsite, which will become anUMTRCA Title II disposal site. Because theNaturita Title I cell is located in a region ofuranium mineralization and mining activity,formation fluids beneath the site haveelevated uranium concentrations. TheLTSM Program will monitor water levels inshallow water-bearing formations to detecttransient drainage; samples will be collectedif enough water is present. If contaminationfrom the cell is detected, the program willbegin monitoring the uppermost aquifer,located 600 feet beneath the cell.

Rifle, Colorado-In 1996, DOE relocatedwastes from two uranium and vanadiumprocessing sites near the Colorado Riverand waste from decontaminated vicinityproperties to the Rifle Disposal Cell, locatednorth of Rifle. NRC granted DOE a generallicense for custody and long-term careof cell in 1998. Ongoing maintenanceconcerns include abandoning monitor wellsthat are no longer used and monitoringtransient drainage accumulating at the toeof the cell. Minor site-related groundwatercontamination would not pose a risk tolocal water supplies or human health;therefore, postclosure groundwater mon-itoring at the disposal site is not required.

Salt Lake City, Utah-Mill tailings andassociated contaminated materials wererelocated from the Salt Lake City processingsite to the Salt Lake Disposal Cell in 1988.NRC licensed the disposal site in 1997. Thecell is located adjacent to a commerciallow-level radiological waste disposaloperation. Remedial action was conductedby the State of Utah under the direction ofthe UMTRA Surface Project. The existinggroundwater is classified as limited usebecause of poor ambient water quality;

therefore, groundwater monitoring isnot required.

Shiprock, New Mexico-Cleanup of theShiprock site was completed in November1986 by consolidating and stabilizing themill tailings in an on-site engineereddisposal cell. NRC licensed the ShiprockDisposal Cell in 1996. The Navajo Nationretains title to the land. Maintenanceactivities include controlling annual deep-rooted weeds and salt cedar (tamarisk), anoxious shrub. The UMTRA Ground WaterProject is characterizing groundwater con-taminated by former processing operationsand may conduct active groundwaterremediation in the adjacent San Juan Riverfloodplain. The LTSM Program initiatedradon monitoring this year.

Slick Rock, Colorado-Tailings from twoprocessing sites on the Dolores River wererelocated to the Slick Rock Disposal Cell in1996. This site was accepted under theNRC general license in 1998 and trans-ferred to the LTSM Program. The cellcontains tailings, contaminated debris, andsoil from the demolished mill structuresand vicinity properties. The riprap-armoredcell is sited on a small mesa on unsaturatedsedimentary rock. No groundwatermonitoring is required at the disposal celllocation. The remedial action contractorreseeded the site in September 1998 afterthe initial restoration failed because of dryweather. The LTSM Program is monitoringtransient drainage water accumulationwithin the cell.

Spook, Wyoming-This site consisted ofa small, open-pit uranium mine, withassociated tailings, ore piles, mine adits,and ore-processing structures. DOE placedall contaminated materials in the pit on alow-permeability soil layer and constructedan engineered cover over the waste. Thestockpiled overburden was compacted overthe disposal cell under the Surface MiningControl and Reclamation Act and gradedto provide drainage. As much as 60 feet ofearthen material covers the encapsulatedtailings at this site. Groundwater monitor-ing is not required at this site; the existinggroundwater is classified as limited usebecause of widespread naturally occurringuranium contamination. Monitor wells will


Page 20

* Site licensed to DOE and transferred to LTSM Program

O Site not yet transferred to LTSM Program

Locations of UMTRCA Title II Sites

be abandoned; Canada thistle, a noxiousweed, may require control.

Tuba City, Arizona-DOE encapsulatedmill tailings in place over the existingtailings pile in 1990. NRC granted DOE ageneral license for custody and long-termcare of the surface impoundment at theTuba City Disposal Cell in 1996, and thesite was transferred to the LTSM Program.The Navajo Nation retains title to the land.Minor volunteer vegetation growth on therock cover has been studied to assess ifthe plants are affecting the water barrierproperties of the cover system. The UMTRAGround Water Project will begin activegroundwater remediation in 2001.

UMTRCA Title II Disposal Sites

full funding for inspections and, if neces-sary, ongoing maintenance. The sites arethen transferred to DOE for custody andcare. DOE administers the sites under theprovisions of a general NRC license grantedin 10 CFR 40.28.

To date, the LTSM Program manages.two UMTRCA Title II sites; this number isexpected to increase to 18 sites by 2006as ongoing site reclamations are completed.Ultimately, as many as 27 UMTRCATitle II sites may be managed by theLTSM Program.

Bluewater, New Mexico-ARCO CoalCompany stabilized mill tailings piles inplace and completed engineered coversin 1995. NRC accepted the site under thegeneral license in 1997. The radon barriercovering the wastes is protected by rockarmor. All surrounding disturbed areas wereregraded and revegetated with indigenousspecies. The Bluewater site also containsother stabilized disposal areas, includinga small riprap-armored disposal cellcontaining polychlorinated biphenyl-contaminated uranium mill tailings thatwas permitted by EPA and is in compliance

Uranium processing sites addressed byUMTRCA Title II were active when the

.act was passed in 1978. These sites werecommercially owned and are regulatedunder NRC license. For license termination,the owner must conduct an NRC-approvedreclamation of any on-site radioactive wasteremaining from uranium ore-processingoperations. The site owner also must ensure

ý t-f ý " 'I Long-Term Surveillance and Maintenance Program 1999 Report

Page 21

Filled symbol indicates site transfer to LTSM Program

Locations of Non-UMTRCA Sites in the LTSM Program

with the Toxic Substances Control Act.Several years of active groundwater treat-ment did not succeed in returning ground-water contaminant levels to backgroundconcentrations. Subsequently, alternateconcentration limits were granted for thesite. DOE conducts groundwater monitor-ing at the Bluewater site to verify continuedcompliance with the approved limits.

Edgemont, South Dakota-The TennesseeValley Authority relocated tailings from themillsite to an engineered disposal cell in1989. Material from Edgemont vicinityproperties, remediated by the UMTRASurface Project, was co-located with thematerial from the millsite. NRC concurredwith placing this disposal cell under thegeneral license for long-term custodyin 1996. The 9-foot-thick radon/waterinfiltration barrier, consisting of 3 feet ofcompacted clay, 5 feet of clean compactedfill, and 1 foot of topsoil material, wasrevegetated with native grass species toprevent soil erosion. Groundwater monitor-ing is not required for this site becausethe closest confined aquifer lies below animpermeable bedrock layer. Controlledlivestock grazing of the grassed site cover

is administered by the LTSM Program topromote the long-term health of the turf.

NWPA Section 151 Sites

Certain sites with low-level radioactivecontamination remediated by the ownerunder the NRC Site DecommissioningManagement Program can be transferredto DOE under NWPA Section 151. This lawallows DOE to assume title and responsi-bility for the long-term custody and careof these sites. Because these sites are notaddressed by an NRC license after transfer,DOE long-term surveillance and monitoringactivities are self-regulated. As with theUMTRCA Title II sites, the owners of thesesites must obtain NRC concurrence with theresults of the implemented remedial actionand must ensure future funding for long-term stewardship before NRC will terminatethe site license.

At present, the LTSM Program managesone site transferred to DOE under NWPASection 151. In 1994, the Parkersburg, WestVirginia, site was transferred to DOE underNWPA Section 151 (c). DOE may transferadditional sites to the LTSM Program under

Long-Term Surveillance and Maintenance Program 1999 Report 4ý11-

Page 22

Section 151 (b). This action depends on thesuccessful implementation of a Memoran-dum of Understanding between NRC andDOE and the acceptance of the candidatesites by DOE.

Parkersburg, West Virginia-At this site,radioactive zircon ore was processed undercontract to the U.S. Atomic Energy Com-mission (AEC) from 1957 to 1968, resultingin waste accumulation and soil contami-nation. Some of the waste was pyrophoric,or capable of causing fires and explosions.Remediation of the site was completed in1982 when the NRC-approved disposalcell was closed. The grass-covered, gentlysloping stabilized mound covers an area ofapproximately 12 acres and is surroundedby a posted security fence. Custodialmaintenance for the Parkersburg siteincludes discouraging the establishmentof shrubs or trees that may degrade thecover. The LTSM Program initiated annualinspections at this location in 1994. Sitegroundwater complies with the FederalSafe Drinking Water Act and State of WestVirginia groundwater standards. As a bestmanagement practice, DOE will monitorthe groundwater at approximately 5-yearintervals.

CERCLA Sites

DOE is the responsible party at two sitesthat were placed on the National PrioritiesList (NPL) by EPA. These sites wereremediated in accordance with CERCLAguidance. Neither site has been deletedfrom the NPL. Because these sites cannotbe released for unrestricted use, DOE isrequired by statute to conduct 5-yearremedy performance reviews.

Weldon Spring, Missouri-The WeldonSpring, Missouri, CERCLA site was operatedas the Weldon Spring Uranium FeedMaterials Plant from 1955 until 1966.Previous use of the site included manufac-ture of trinitrotoluene (TNT) by theU.S. Army from 1941 to 1945. The Armyreoccupied the property in 1966 and begandecontamination of structures to allow theproduction of defoliants, but the projectwas canceled before new equipment wasinstalled. The site was placed on the NPL in1987 because of contamination in a rock

quarry that had been used for wastedisposal. Raffinate ponds and the formerchemical plant were added to the NPL in1989. Contaminated plant buildings wereremoved by 1994, and bulk removalof contaminants from the quarry wascompleted in 1995. Significant LTSMProgram activities at Weldon Spring willbegin in 2002 as the site begins transitionto DOE custody. The LTSM Program willconduct postclosure activities at the WeldonSpring facility.

Monticello, Utah, Sites-EPA listed theMonticello, Utah, Mill Tailings Site and theMonticello Vicinity Properties Site on theNPL in 1989. Monticello mill activitiesgenerated approximately 2.5 million cubic.yards of low-level radioactive waste asa result of uranium and vanadium oreprocessing. Contaminated materials weredistributed by wind and water and limitedamounts were used for construction,resulting in contamination of approximately400 vicinity properties. These propertiesand the millsite have been cleaned up andthe materials were placed in a disposal cell.All cell cover materials were placed in 1999;the cover will be seeded in 2000. Supple-mental standards were applied to limitedoccurrences of radioactive material that wasleft in place because the material posed norisks and remediation would be technicallyunfeasible, unjustifiably expensive, orharmful to the environment. According tothe LTSP proposed for Monticello, annualinspections of the cell and the supplementalstandards areas will be conducted inperpetuity. The LTSM Program will assumestewardship responsibility for the cell andmay conduct groundwater remediationbeginning in 2002.

Weapons Program Site

The Pinellas Science, Technology, andResearch Center in Largo, Florida wascontaminated with low-level radioactivematerials created during the manufactureof neutron generators and other devices forDOE. Facility remediation at the Pinellas sitewas completed in 1997 by DOE under theEPA Resource Conservation and RecoveryAct (RCRA) Corrective Action Program. Thefacility was transferred to local governmentownership in 1995, but DOE continues to


Page 23

conduct pump-and-treat groundwaterremediation. Responsibility for the Pinellassite is scheduled for transfer to the LTSMProgram in 2003.

D&D Program Sites

The LTSM Program has custody of threeDOE D&D Program sites: Piqua, Ohio;Hallam, Nebraska; and Site A/Plot Mlocated near Chicago, Illinois. These siteswere transferred from the custody of theDOE Chicago Operations Office in 1998.One additional D&D Program site (theGJO facility) will be transferred to theLTSM Program.

Hallam, Nebraska, and Piqua, Ohio-ThePiqua, Ohio, and Hallam, Nebraska, sitesare former nuclear reactor facilities thatwere built for the AEC Power Demonstra-tion Program during the mid-1 960s. Inboth cases, the reactors were operated incooperation with, and on the property of,area electric utilities. Both reactors weredecommissioned in the late 1960s, and thereactor vessels were sealed with concreteand steel during decommissioning afterremoval of spent fuel and other removablecontamination. Annual inspections andmonitoring are conducted by the LTSMProgram to verify encapsulation integrity.

Site A/Plot M, Illinois-The Site A/Plot Marea is the former location of ArgonneNational Laboratory and its predecessor,the University of Chicago MetallurgicalLaboratory. Site A contains buried contam-inated building debris and the biologicalshield for the CP-3 reactor. Plot M containsradioactive wastes from the mid-1 940s to1949 buried in trenches. Both Site A andPlot M were decommissioned in 1956.The LTSM Program is responsible for air,surface water, and groundwater monitoringat Site A/Plot M.

Long-Term RadonManagement Project

Radioactive material from the Climaxmillsite in Grand Junction, Colorado, andtailings and tailings-contaminated materialfrom more than 4,000 Grand junctionvicinity properties were relocated to the

The open portion of the Grand Junction, Colorado, Disposal Cell is visiblewithin the completed riprop-covered portions of the cell.

UMTRCA Title I Grand Junction DisposalCell under the DOE UMTRA Surface Project.Contaminated material from the Grandjunction Office Remedial Action Project atthe DOE-GJO site was colocated with theUMTRA waste. The 360-acre disposal site islocated 18 miles south of Grand Junction inMesa County, Colorado. A 60-acre disposalcell was constructed on the site to contain4,600,000 cubic yards of low-level radio-active material. A portion of the cell wasleft open to accept up to 250,000 cubicyards of tailings from Mesa County, otherUMTRCA locations, and the Monticello,Utah, CERCLA sites. This action was takento provide a disposal location for incidentallow-level radioactive material, such asmight be removed from utility trenches andfrom beneath streets as those structures arerebuilt. The cell will not remain open past2023. The LTSM Program operates the celland provides long-term care for the facility.

Grand junction OfficeRemedial Action Project

The DOE Grand Junction Office wasestablished as part of the Manhattan Projectto purchase uranium ore concentrates. DOEconducted pilot uranium milling studiesat the site between 1953 and 1958. Milltailings, contaminated soils, and most of thecontaminated buildings have been removedor decontaminated. The remaining


Page 24

contaminated buildings will be decontami-nated or removed by 2001, when the sitewill be transferred to the LTSM Programfor monitoring. Groundwater monitoringwill be necessary for 60 to 80 yearsuntil the aquifer is remediated throughnatural flushing.

FUSRAP Sites

The U.S. Congress directed the U.S. ArmyCorps of Engineers to remediate contam-inated sites designated under FUSRAP.DOE negotiated a Memorandum of Under-standing with the U.S. Army Corps ofEngineers to transfer responsibility for thesites to the DOE for long-term care afterremedial action is completed. The remedi-ated sites will become the responsibility ofthe LTSM Program, but the actual numberof sites is not known at this time.

Cover Monitoring and Long-Term Performance Project

DOE designed and constructed engineeredsoil and rock covers on uranium mill tailingsdisposal cells to contain contaminants for1,000 years. The LTSM Program initiatedthe Cover Monitoring and Long-TermPerformance activity in 1998 to evaluatehow changes in disposal cell environments,both observed changes and changesprojected over hundreds of years, mayalter cover performance. Research resultsimprove LTSM Program site inspectionsand benefit UMTRA Ground Water Projectremediation tasks, long-term cover designinitiatives at DOE weapons sites, and newcover design guidance by EPA.

EPA Alternative Cover AssessmentProject-LTSM Program scientistscontinued participation in EPA's AlternativeCover Assessment Program in 1999. Thegoal of this program is to develop newguidance for cheaper, more effective coversfor municipal and hazardous waste landfillsin arid and semiarid western States (thesesites currently are regulated under RCRASubtitle C or D). Researchers will use fieldstudies, modeling, and natural analogstudies to acquire data needed to evaluatealternative covers. The Alternative CoverAssessment Program has funded the

lysimeter test facility in Monticello, Utah,since 1998.

Monticello Cover Lysimeter-Researchcontinued in 1999 to demonstrate theperformance of the water-control featuresof the Monticello, Utah, Disposal Cell cover.The cover designed for this cell departsfrom conventional UMTRCA and RCRAdesigns in that it relies on a thick topsoillayer and a capillary barrier to retainprecipitation and on soil evaporation andplant transpiration (evapotranspiration) toseasonally dry the topsoil and limit watermovement into the encapsulated tailings.The LTSM Program teamed with EPARegion 8 to conduct a controlled fieldtest of the design with drainage lysimetersat the Monticello site. The lysimeter testfacility consists of caissons buried in theground. A full-scale vertical profile of thecover was constructed in one caisson,incorporating the most suitable materialsavailable at the site. Instrumentation forautomated monitoring of the soil-waterbalance was accessed in an adjacentcaisson. In 1999, a second full-depth coverprofile was constructed at the facilityincorporating the actual cover materialssampled from stockpiles.

The lysimeters will be used to model thewater storage capacity of the Monticellocell cover. They will be irrigated untildrainage occurs across the capillary break,then covered and allowed to stabilize so thewater storage capacity of the soil layer canbe measured. The lysimeters will then beplanted and monitored for at least 5 years.Data will be collected on precipitation,change in water storage, drainage, andevapotranspiration.

A 7.5-acre drainage lysimeter was installedin the Monticello Disposal Cell cover duringconstruction. This facility will be used toconfirm in-place water storage capacity andwater balance parameters.

In Situ Moisture Monitoring-In situmoisture monitoring was initiated at theShiprock, New Mexico, Disposal Cell in1999. Moisture profiles are measured witha neutron hydroprobe. The monitoringwill proceed through the coming year todetermine if (1) the tailings have dried out

4ý_. 1 -1-- " _- ` Long-Term Surveillance and Maintenance Program 1999 Report

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A flap welded to the synthetic liner in theMonticello, Utah, Disposal Cell cover creates a7.5-acre drainage lysimeter. Water passing throughthe overlying soil and rock layers of the cover willcollect behind the flap and will be directed toautomated measuring equipment.

since closure and (2) if infiltration of thetailings can be inferred from changes in soilwater content at depth.

Tuba City, Arizona, Revegetation Study-Revegetation success is critical at this desertlocation to stabilize drifting and windblownsand. This ongoing study has been con-ducted in cooperation with the Universityof Arizona. Study plots were establishedusing a variety of irrigation and plantingtechniques. Revegetation success wasgreatest when seedlings were planted indeeply ripped rows and watered weekly forthe first growing season. These results andresearch methods are applicable to manysites in the arid southwest United Statesand elsewhere.

Gravel Admixture Ecology-The coveron the Durango, Colorado, Disposal Cellincludes a soil/gravel admixture layer atthe surface that is intended to limit erosionwithout compromising plant growth orevapotranspiration. The design was basedon studies at the DOE Hanford Site in the1 980s. LTSM Program researchers begana study of plant ecology on the Durangogravel admixture in 1998 to determine ifthe high percentage of gravel is alteringplant growth or evapotranspiration and,therefore, the performance of the cover.Because 1998 was a relatively dry year,

the plant ecology studies were repeatedin 1999, when the region received signifi-cantly more precipitation. Comparisonswere made between plant cover andbiomass in the admixture on the cell topand in a revegetated off-cell area withsimilar soil and setting. Leaf area indexmeasurements were also obtained in 1999.Preliminary results indicate that plantcover and productivity are greater in thereference area. The results were used toproportion the gravel content of the topsoillayer of the cover on the Monticello, Utah,Disposal Cell.

Leaf-area index measurements werecollected on the vegetated cell top and atanalog sites that represent the natural plantcommunity at the Lakeview, Oregon, site.Studies at this location are ongoing. Deep-rooted plants are colonizing the cell top.These studies will help determine if thevegetation must be controlled or if otherremedial action is required.

DOE Long-Term Cover Guidance-TheLTSM Program continued to support aDOE Headquarters initiative to develop aguidance document for designing long-term covers for buried wastes at DOEweapons production sites. LTSM Programresearchers teamed with scientists fromDOE national laboratories and the academiccommunity on a technical task plan thatincorporates lessons learned from the LTSMProgram Cover Monitoring and Long-TermPerformance activity. LTSM Programpersonnel also participated in discussions atthe DOE Hanford Site about constructinginfiltration barrier covers over the tank farmswhere high-level radioactive and transuranicwaste from leaking underground storagetanks has been carried into the vadose zoneby precipitation.

Subsurface Containment Focus Area-LTSM Program scientists participated in aworkshop on vadose zone technologies inSeattle, Washington. Program personnelwere asked to provide information onUMTRCA covers, the use of analog studiesfor cover design, and the design of theMonticello, Utah, evapotranspiration cover.


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Contacts/ResourcesRussel Edge, LTSM Program ManagerU.S. Department of EnergyGrand Junction Office2597 B3/4 RoadGrand Junction, CO 81503(970) [email protected]

Carl Jacobson, Program ManagerMACTEC Environmental Restoration Services(the Technical Assistance and Remediation contractor at DOE-GJO)2597 B3/4 RoadGrand Junction, CO 81503(970) [email protected]

Emergency contact (monitored continuously): (970) 248-6070

LTSM Program Web Site: http://www.doegjpo.com/programs/Itsm/This site contains downloadable fact sheets about LTSM Program sites, long-term surveillanceplans, site status reports, links to applicable or relevant and appropriate regulations, andother information.

DOE Albuquerque Operations Office: http://www.doeal.gov/This site presents the mission and descriptions of the activities of DOE Operations Office,under which the Grand Junction Office operates.

DOE Office of Environmental Management: http://www.em.doe.gov/This site provides descriptions of many of the DOE remedial action programs under whichsites in the LTSM Program were remediated and has information on individual sites.

Lasting Legacy: http://www.lastinglegacy.net/legacy3.1/loadup.htmThis site provides descriptions of the DOE weapons complex, plans for each site,and discussions of stewardship issues.

EPA Alternative Cover Assessment Program Activities Summary:http://www.rtdf.org/public/phyto/minutes/altcov/default.htmSummaries of the work of the Alternative Cover Assessment Program are availableat this site.

State and Tribal Governments Working Group: http://www.em.doe.gov/stgwgThis stakeholder organization, sponsored by DOE, has been active since 1989 in promotingsound stewardship practices for DOE sites after remediation is complete.

Long-Term Stewardship Information Center: http://Its.apps.em.doe.gov//This site presents references describing stewardship activities and resources within DOE.


Providing cost-effective and efficientstewardship for more than 11 years

Long-Term Surveillance REPORT · SUBJECT: Disposal Site Long-Term Surveillance and Maintenance TO: Don Ofte, Manager, IDO As a result of ideas generated following the 1986 Remedial

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