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OCR for page R1
HARDROCK MINING ON FEDERAL LANDS
HARDROCK MINING ON FEDERAL LANDS
Committee on Hardrock Mining on Federal Lands
Committee on Earth Resources
Board on Earth Sciences and Resources
Commission on Geosciences, Environment, and Resources
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C.
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HARDROCK MINING ON FEDERAL LANDS
NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance.
This study was supported by the Bureau of Land Management, Department of the Interior, under assistance award No. 1434-HQ-97-AG-01886. The views and conclusions contained in this document are those of the authors and should not be interpreted as necessarily representing the official policies, either expressed or implied, of the U.S. government.
International Standard Book Number 0-309-06596-8
Additional copies of this report are available from:
National Academy Press
2101 Constitution Avenue, N.W. Box 285 Washington, DC 20055 800–624–6242 202–334–3313 (in the Washington metropolitan area) http://www.nap.edu
Cover: Photograph of Gold Quarry Mine, Newmont Mining Company, Carlin, NV courtesy of Raymond Krauss.
Copyright 1999 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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HARDROCK MINING ON FEDERAL LANDS
COMMITTEE ON HARDROCK MINING ON FEDERAL LANDS
PERRY R.HAGENSTEIN, Chair, Independent Consultant,
Wayland, Massachusetts
SAMUEL S.ADAMS, Vice-Chair, Independent Consultant,
Lincoln, New Hampshire
ANNE C.BALDRIGE, Independent Consultant,
Denver, Colorado
PAUL B.BARTON, JR.,
U.S. Geological Survey (emeritus), Reston, Virginia
EDWIN H.CLARK II,
Clean Sites, Inc., Alexandria, Virginia
DONALD W.GENTRY,
PolyMet Mining Corporation, Golden, Colorado
RAYMOND KRAUSS, Independent Consultant,
Santa Rosa, California
ANN S.MAEST,
Buka Environmental, Boulder, Colorado
JAMES M.MCELFISH, JR.,
Environmental Law Institute, Washington, D.C.
DUNCAN T.PATTEN,
Arizona State University (emeritus), Bozeman, Montana
JONATHAN G.PRICE,
Nevada Bureau of Mines and Geology, Reno
RICHARD E.REAVIS,
Nevada Division of Environmental Protection (emeritus), Carson City
DONALD D.RUNNELLS,
Shepherd Miller, Inc., Ft. Collins, Colorado
NRC Staff
CRAIG M.SCHIFFRIES, Study Director (through August, 1999)
GREGORY H.SYMMES, Study Director (since August, 1999)
MARK C.GIBSON, Research Associate
ANGELA R.TAYLOR, Senior Project Assistant
REBECCA E.SHAPACK, Project Assistant
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HARDROCK MINING ON FEDERAL LANDS
COMMITTEE ON EARTH RESOURCES
SUSAN M.LANDON, Chair,
Thomasson Partner Associates, Denver, Colorado
PAUL B.BARTON, JR.,
U.S. Geological Survey (emeritus), Reston, Virginia
CORALE L.BRIERLY, Independent Consultant,
Highlands Ranch, Colorado
GRAHAM A.DAVIS,
Colorado School of Mines, Golden
P.GEOFFREY FEISS,
College of William and Mary, Williamsburg, Virginia
JAMES M.FUNK,
Shell Continental Companies (retired), Houston, Texas
ALLEN L.HAMMOND,
World Resource Institute, Washington, D.C.
PAMELA D.LUTTRELL,
Mobil, Dallas, Texas
DIANNE R.NIELSON,
Utah Department of Environmental Quality, Salt Lake City
JONATHAN G.PRICE,
Nevada Bureau of Mines and Geology, Reno
RICHARD J.STEGEMEIER,
Unocal Corporation (emeritus), Brea, California
HUGH P.TAYLOR, JR.,
California Institute of Technology, Pasadena
NOEL TYLER,
University of Texas at Austin
MILTON H.WARD,
Cyprus Amax Minerals Company, Englewood, Colorado
NRC Staff
ANTHONY R.DE SOUZA, Director
JUDITH L.ESTEP, Administrative Assistant
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HARDROCK MINING ON FEDERAL LANDS
BOARD ON EARTH SCIENCES AND RESOURCES
J.FREEMAN GILBERT, Chair,
University of California, San Diego
JOHN J.AMORUSO,
Amoruso Petroleum Company, Houston, Texas
PAUL BARTON, JR.,
U.S. Geological Survey (emeritus), Reston, Virginia
KENNETH I.DAUGHERTY,
Geospatial Concepts, Inc., Falls Church, Virginia
BARBARA L.DUTRO,
Louisiana State University, Baton Rouge
RICHARD S.FISKE,
Smithsonian Institution, Washington, D.C.
JAMES M.FUNK,
Shell Continental Companies, Houston, Texas
WILLIAM L.GRAF,
Arizona State University, Tempe
RAYMOND JEANLOZ,
University of California, Berkeley
SUSAN M.KIDWELL,
University of Chicago, Illinois
SUSAN KIEFFER,
Kieffer & Woo, Inc., Palgrave, Ontario
PAMELA LUTTRELL,
Mobil, Dallas, Texas
ALEXANDRA NAVROTSKY,
University of California, Davis
DIANNE R.NIELSON,
Utah Department of Environmental Quality, Salt Lake City
JONATHAN PRICE,
Nevada Bureau of Mines & Geology, Reno
EDWARD M.STOLPER,
California Institute of Technology, Pasadena
JOHN R.G.TOWNSHEND,
University of Maryland, College Park
MILTON H.WARD,
Cyprus Amax Minerals Company, Engelwood, Colorado
NRC Staff
ANTHONY R.DE SOUZA, Director
TAMARA L.DICKINSON, Senior Program Officer
ELLEN S.KAPPEL, Senior Program Officer
ANNE M.LINN, Senior Program Officer
THOMAS M.USSELMAN, Senior Program Officer
JENNIFER T.ESTEP, Administrative Associate
VERNA J.BOWEN, Administrative Assistant
JUDITH L.ESTEP, Administrative Assistant
REBECCA E.SHAPACK, Project Assistant
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HARDROCK MINING ON FEDERAL LANDS
COMMISSION ON GEOSCIENCES, ENVIRONMENT, AND RESOURCES
GEORGE M.HORNBERGER, Chair,
University of Virginia, Charlottesville
RICHARD A.CONWAY,
Union Carbide Corporation (retired), South Charleston, West Virginia
THOMAS E.GRAEDEL,
Yale University, New Haven, Connecticut
THOMAS J.GRAFF,
Environmental Defense Fund, Oakland, California
EUGENIA KALNAY,
University of Maryland, College Park
DEBRA KNOPMAN,
Progressive Policy Institute, Washington, D.C.
KAI N.LEE,
Williams College, Williamstown, Massachusetts
RICHARD A.MESERVE,
Covington & Burling, Washington, D.C.
BRAD MOONEY,
J. Brad Mooney Associates, Ltd., Arlington, Virginia
HUGH C.MORRIS,
El Dorado Gold Corporation, Vancouver, British Columbia
H.RONALD PULLIAM,
University of Georgia, Athens
MILTON RUSSELL,
University of Tennessee, Knoxville
THOMAS C.SCHELLING,
University of Maryland, College Park
ANDREW R.SOLOW,
Woods Hole Oceanographic Institution, Woods Hole, Massachusetts
VICTORIA J.TSCHINKEL,
Landers and Parsons, Tallahassee, Florida
E-AN ZEN,
University of Maryland, College Park
MARY LOU ZOBACK,
U.S. Geological Survey, Menlo Park, California
NRC Staff
ROBERT M.HAMILTON, Executive Director
GREGORY H.SYMMES, Associate Executive Director
JEANETTE SPOON, Administrative and Financial Officer
SANDI FITZPATRICK, Administrative Associate
MARQUITA SMITH, Administrative Assistant/Technology Analyst
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HARDROCK MINING ON FEDERAL LANDS
This report has been reviewed by individuals chosen for their diverse perspectives and technical expertise in accordance with procedures approved by the NRC's Report Review Committee. The purpose of this independent review is to provide candid and critical comments that will assist the authors and the NRC in making their published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The content of the review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We wish to thank the following individuals for their participation in the review of this report:
Edie B.Allen
University of California, Riverside
R.Ray Beebe
Consultant
Tucson, Arizona
John S.Chipman
University of Minnesota
Minneapolis
David H.Getches
University of Colorado School of Law, Boulder
George M.Hornberger
University of Virginia
Charlottesville
J.S.Livermore
Cordilleran Exploration Company
Reno, Nevada
Glenn C.Miller
University of Nevada, Reno
Dianne R.Nielson
Utah Department of Environmental Quality
Salt Lake City
Raymond A.Price
Queen's University
Kingston, Ontario
Steven P.Quarles
Crowell & Moring LLP
Washington, D.C.
Although the individuals listed above have provided many constructive comments and suggestions, responsibility for the final content of this report rests solely with the authoring committee and the NRC.
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HARDROCK MINING ON FEDERAL LANDS
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. William A.Wulf is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Kenneth I.Shine is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce Alberts and Dr. William A.Wulf are chairman and vice-chairman, respectively, of the National Research Council.
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HARDROCK MINING ON FEDERAL LANDS
Contents
EXECUTIVE SUMMARY
1
1
INTRODUCTION
11
Policy Context,
13
Approach to the Study,
16
Federal Lands and Hardrock Mining,
17
Hardrock Mining,
23
Potential Environmental Impacts of Hardrock Mining,
27
Changing Contexts,
31
Organization of the Report,
35
2
EXISTING REGULATORY FRAMEWORK
37
Statutory Policies for Management,
37
Environmental Regulation,
40
Relationships Among State and Federal Environmental Regulations,
52
Time Requirements for Environmental Review and Permitting,
54
3
ADEQUACY OF ENVIRONMENTAL PROTECTION
57
Elements of a Regulatory Program,
58
Regulatory Issues,
62
Regulatory Implementation Issues,
73
Scientific Issues,
78
The Need for Early Stakeholder Consultation,
81
Reclamation, Closure, and Post-Closure Management,
82
Regulatory Efficiency Issues,
86
Public Involvement Issues,
87
Summary,
88
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HARDROCK MINING ON FEDERAL LANDS
4
CONCLUSIONS AND RECOMMENDATIONS
89
Conclusions,
89
Recommendations,
93
Summary,
123
REFERENCES
125
APPENDIX A
The Nature of Mining
135
Description of Ore Deposits,
135
The Mining Process,
138
The Uranium Industry,
145
APPENDIX B
Potential Environmental Impacts of Hardrock Mining
149
Introduction,
149
Cumulative Effects,
150
Long-Term Monitoring,
152
Water Quality,
153
Water Quantity,
157
Aquatic Biota,
159
Landscape or Ecosystem Alterations,
161
Terrestrial Vegetation,
161
Riparian Vegetation,
163
Wetlands: Hydrological and Surface Changes,
164
Soil,
164
Terrestrial Wildlife,
165
Air Quality,
166
Noise,
167
APPENDIX C
Existing Regulatory Requirements
169
APPENDIX D
Research Needs
197
Water Quality,
198
Hydrology,
202
Ecology,
205
Cumulative Impacts,
207
Alternative Mining and Pollution Prevention Methods,
207
Mining Technologies for the Future,
209
Summary,
213
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HARDROCK MINING ON FEDERAL LANDS
APPENDIX E
Financial Assurance
215
Activities and Events Covered,
215
Amount of Financial Assurance,
216
Types of Financial Assurance,
217
Conditions for Release,
217
APPENDIX F
Presentations to the Committee
219
APPENDIX G
Individuals Who Provided Documents to the Committee
227
APPENDIX H
Biographical Sketches of Committee Members
233
ACRONYMS
239
GLOSSARY
241
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HARDROCK MINING ON FEDERAL LANDS
