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Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities

Committee to Review and Assess Closure Plans for the Tooele Chemical Agent Disposal Facility and the Chemical Agent Munitions Disposal System

Board on Army Science and Technology

Division on Engineering and Physical Sciences

NATIONAL RESEARCH COUNCIL
OF THE NATIONAL ACADEMIES

THE NATIONAL ACADEMIES PRESS

Washington, D.C.
www.nap.edu

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

THE NATIONAL ACADEMIES PRESS
500 Fifth Street, N.W.
Washington, DC 20001

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 Contract No. W911NF-09-C-0081 between the National Academy of Sciences and the U.S. Army. Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the organizations or agencies that provided support for the project.

Front coverUpper left: Demolition of filter housing at Aberdeen Chemical Agent Disposal Facility (Maryland). Lower, from left: Scabbling (removal of a layer of concrete) at Johnston Atoll Chemical Agent Disposal System; tented titanium reactor at Aberdeen Chemical Agent Disposal Facility (Maryland); and pressure washing at Newport Chemical Agent Disposal Facility (Indiana). Images superimposed on a diagram of potentially contaminated areas, to be enclosed by tents, processing bay, Newport Chemical Agent Disposal Facility (Indiana).

Back cover—Mass demolition of ton container cleanout building, Aberdeen Chemical Agent Disposal Facility (Maryland).

Photographs courtesy of U.S. Army Chemical Materials Agency.

International Standard Book Number 13: 978-0-309-15858-9

International Standard Book Number 10: 0-309-15858-3

Limited copies of this report are available from

Board on Army Science and Technology

National Research Council

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Additional copies are available from

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Copyright 2010 by the National Academy of Sciences. All rights reserved.

Printed in the United States of America

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

THE NATIONAL ACADEMIES

Advisers to the Nation on Science, Engineering, and Medicine


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. Ralph J. Cicerone 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. Charles M. Vest 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. Harvey V. Fineberg 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. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council


www.national-academies.org

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
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Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
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COMMITTEE TO REVIEW AND ASSESS CLOSURE PLANS FOR THE TOOELE CHEMICAL AGENT DISPOSAL FACILITY AND THE CHEMICAL AGENT AND MUNITIONS DISPOSAL SYSTEM

PETER B. LEDERMAN, Chair,

Hazardous Substance Management Research Center (retired), New Providence, New Jersey

GARY S. GROENEWOLD,

Idaho National Laboratory, Idaho Falls, Idaho

DEBORAH L. GRUBBE,

Operations and Safety Solutions, LLC, Chadds Ford, Pennsylvania

JOHN R. HOWELL (NAE),

University of Texas, Austin

TODD A. KIMMELL,

Argonne National Laboratory, Washington, D.C.

KALATHIL E. PHILIPOSE,

Atomic Energy of Canada Limited (retired), Ontario, Canada

LOUIS T. PHILLIPS,

Resource: PM, Chadds Ford, Pennsylvania

DANNY D. REIBLE (NAE),

University of Texas, Austin

W. LEIGH SHORT,

Woodward Clyde & Associates (retired), Williamstown, Massachusetts

LEONARD M. SIEGEL,

Center for Public Environmental Oversight, Mountain View, California

DAVID A. SKIVEN,

Worldwide Facilities, General Motors Corporation (retired), Brighton, Michigan

SHERYL A. TELFORD,

DuPont Corporate Remediation Group Director, Wilmington, Delaware

LAWRENCE J. WASHINGTON,

The Dow Chemical Company (retired), Midland, Michigan

Staff

NANCY T. SCHULTE, Study Director

HARRISON PANNELLA, Senior Program Officer

NIA D. JOHNSON, Senior Research Associate

ALICE V. WILLIAMS, Senior Program Assistant

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

BOARD ON ARMY SCIENCE AND TECHNOLOGY

ALAN H. EPSTEIN, Chair,

Pratt & Whitney, East Hartford, Connecticut

DENNIS J. REIMER, Vice Chair, (USA retired),

Arlington, Virginia

DUANE ADAMS,

Carnegie Mellon University (retired), Arlington, Virginia

ILESANMI ADESIDA,

University of Illinois at Urbana-Champaign

RAJ AGGARWAL,

University of Iowa, Coralville

EDWARD C. BRADY,

Strategic Perspectives, Inc., McLean, Virginia

L. REGINALD BROTHERS,

BAE Systems, Arlington, Virginia

JAMES CARAFANO,

The Heritage Foundation, Washington, D.C.

W. PETER CHERRY,

Science Applications International Corporation, Ann Arbor, Michigan

RONALD P. FUCHS,

The Boeing Company, Seattle, Washington

W. HARVEY GRAY,

Oak Ridge National Laboratory, Oak Ridge, Tennessee

PETER F. GREEN,

University of Michigan, Ann Arbor

CARL GUERRERI,

Electronic Warfare Associates, Inc., Herndon, Virginia

JOHN H. HAMMOND,

Lockheed Martin Corporation (retired), Fairfax, Virginia

M. FREDERICK HAWTHORNE,

University of Missouri–Columbia

RANDALL W. HILL,

University of Southern California Institute for Creative Technologies, Marina del Rey, California

MARY JANE IRWIN,

Pennsylvania State University, University Park

ELLIOTT D. KIEFF,

Harvard University, Boston, Massachusetts

LARRY LEHOWICZ,

Quantum Research International, Arlington, Virginia

DAVID M. MADDOX,

Arlington, Virginia

WILLIAM L. MELVIN,

Georgia Tech Research Institute, Smyrna, Georgia

ROBIN MURPHY,

Texas A&M University, College Station

RICHARD R. PAUL,

Bellevue, Washington

JONATHAN M. SMITH,

University of Pennsylvania, Philadelphia

MARK J.T. SMITH,

Purdue University, West Lafayette, Indiana

MICHAEL A. STROSCIO,

University of Illinois, Chicago

JUDITH L. SWAIN,

University of California San Diego, La Jolla

JOSEPH YAKOVAC,

Hampton, Virginia

Staff

BRUCE A. BRAUN, Director

CHRIS JONES, Financial Associate

DEANNA SPARGER, Program Administrative Coordinator

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

Preface

For over half a century the United States has maintained a stockpile of chemical weapons and bulk agent at Army depots distributed around the country. This stockpile contained approximately 30,000 tons of chemical nerve agents GB and VX, and several forms of mustard agent. These agents were contained in about 3 million munitions of various types as well as in bulk storage containers.

The U.S. Army has been engaged in destroying this stockpile since 1986. On July 1, 2010, the U.S. Army’s Chemical Materials Agency (CMA) announced that 75 percent of the nation’s stockpile had been destroyed. This work has taken place at nine chemical agent destruction facilities. Five of these used incineration technology. The first of these, the Johnston Atoll Chemical Agent Disposal System, completed its mission in 2000. It was subsequently closed and dismantled. The other four incineration-based chemical agent destruction facilities and a related testing facility will be finishing their missions in the next two years, and preparations are being made for the start of closure operations. An examination of the means for properly planning for the safe and efficient closure of these facilities is the subject of this study, and it is the charge given to the committee by the director of the CMA. The statement of task is shown in Chapter 1 on pages 7 and 8.

The first of the remaining four facilities to proceed with agent disposal, the Tooele Chemical Agent Disposal Facility (Utah), began operations in 1996, followed by chemical agent disposal facilities in Anniston, Alabama, in 2003; Umatilla, Oregon, in 2004; and Pine Bluff, Arkansas, in 2005. This study evaluates the closure planning and makes recommendations regarding closure activities.

As the chair of the committee, I wish to express my appreciation to my fellow committee members for their contributions to the preparation of this report, which included interviewing CMA and contractor staff and stakeholders, visiting sites, and collecting and analyzing scores of planning documents in a short time. Every member of the committee made significant contributions to the writing of the report.

The committee in turn is grateful to the many CMA staff members and the prime contractor, the URS Corporation, for making themselves readily available, for their extensive efforts to ensure that data were available in a clear format, and for ensuring that all of the committee’s questions were answered. All this was done in spite of their many other duties. The committee also greatly appreciates the assistance of the NRC staff who assisted in the fact-finding activities, carried on significant research in support of the report, and were instrumental in the production of the report.

The Board on Army Science and Technology (BAST) members listed on page vi were not asked to endorse the committee’s conclusions or recommendations, nor did they review the final draft of this report before its release, although board members with appropriate expertise may be nominated to serve as formal members of the study committees or as report reviewers.


Peter B. Lederman, Ph.D., Chair

Committee to Review and Assess Closure Plans for the Tooele Chemical Agent Disposal Facility and the Chemical Agent Munitions Disposal System

Page viii Cite
Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

Acknowledgment of Reviewers

This report has been reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the National Research Council’s (NRC’s) Report Review Committee. The purpose of this independent review is to provide candid and critical comments that will assist the institution in making its 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 review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We wish to thank the following individuals for their review of this report:

Joan B. Berkowitz, Farkas Berkowitz & Company,

Jan Beyea, Consulting in the Public Interest,

Elisabeth M. Drake, NAE, MIT Laboratory for Energy and the Environment,

Harold K. Forsen, NAE, Bechtel Corporation (retired),

Charles E. Kolb, Aerodyne Research, Inc.,

George W. Parshall, NAS, E.I. du Pont de Nemours & Company (retired),

William J. Rogers, Tennessee Valley Authority,

William J. Walsh, Pepper Hamilton, LLP, and

Charles F. Zukoski, NAE, University of Illinois at Urbana-Champaign.

Although the reviewers listed above have provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations nor did they see the final draft of the report before its release. The review of this report was overseen by Hyla Napadensky. Appointed by the NRC, she was responsible for making certain that an independent examination of this report was carried out in accordance with institutional procedures and that all review comments were carefully considered. Responsibility for the final content of this report rests entirely with the authoring committee and the institution.

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
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Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
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3

 

IMPORTANT PARAMETERS FOR SUCCESSFUL CLOSURE

 

21

   

 Background,

 

21

   

 Key Parameters,

 

21

   

 Safety, Health, and Security,

 

24

   

 Maintenance,

 

24

   

 Training and Development,

 

25

   

 Communications,

 

25

   

 Cost,

 

26

   

 Schedule,

 

26

   

 Environmental Compliance,

 

26

   

 Management,

 

26

   

 Groupings of Parameters,

 

27

   

 Program Level,

 

27

   

 Project Level,

 

27

   

 Reference,

 

27

4

 

MANAGEMENT SYSTEMS: LESSONS LEARNED PROCESS AND THE eROOM TOOL

 

28

   

 Lessons Learned—A Management System,

 

28

   

 The Importance of Lessons Learned,

 

29

   

 Defining Lessons Learned and the Lessons Learned Process,

 

29

   

 Access to the Lessons Learned Database,

 

32

   

 The eRoom,

 

32

   

 Reference,

 

34

5

 

REGULATORY REQUIREMENTS AFFECTING CLOSURE

 

35

   

 Background,

 

35

   

 General RCRA Closure Requirements,

 

35

   

 State-Specific RCRA Closure Requirements,

 

36

   

 The Influence of Base Realignment and Closure,

 

40

   

 Programmatic Constraints,

 

40

   

 Risk During Closure Versus Risk During Operations,

 

40

   

 RCRA Closure Plan and Decommissioning Work Packages,

 

41

   

 Reuse or Recycling of Valuable Materials,

 

43

   

 State Resources,

 

44

   

 Disposition of Igloos Used to Store Chemical Munitions and Waste,

 

45

   

 Installation-Specific Constraints,

 

45

   

 CAMDS/TOCDF,

 

45

   

 PBCDF,

 

46

   

 ANCDF,

 

46

   

 UMCDF,

 

46

   

 References,

 

48

6

 

MONITORING AND ANALYTICAL ISSUES

 

49

   

 Overview of Closure Strategy,

 

49

   

 Properties of Agents Significant to Closure Situations,

 

50

   

 Residual Agent Measurement in Closure,

 

51

   

 Sampling Followed by Extractive Analysis,

 

52

   

 Unventilated Vapor Monitoring: An Alternative Approach,

 

53

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×
Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

Tables, Figures, and Box

TABLES

2-1

 

Status of Closure Planning Documentation for Each Baseline Chemical Agent Disposal Facility,

 

11

2-2

 

Closure Planning Documents Completed by June 16, 2010, for Each Baseline Chemical Agent Disposal Facility,

 

13

3-1

 

Program-Level Parameters and Metrics,

 

22

3-2

 

Project-Level Parameters and Metrics for the Chemical Agent Disposal Facilities,

 

22

3-3

 

Chemical Demilitarization Site Recordable Injury Rates as of March 31, 2010,

 

25

6-1

 

Airborne Exposure Limits for GB, VX, and H, and Ratios of Worker Protection Limit and General Population Limit to Vapor Screening Level,

 

55

B-1

 

Safety and Environmental Metrics Employed by Private Companies Surveyed for This Report,

 

80

FIGURES

1-1

 

Location and original size (percentage of original chemical agent stockpile) of eight continental U.S. storage sites,

 

6

2-1

 

Site-specific closure planning,

 

16

4-1

 

Steps of the lessons learned process,

 

30

4-2

 

Flow sequence for lessons learned,

 

30

BOX

4-1

 

Description of the CMA eRoom,

 

33

Page xiii Cite
Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
×

Acronyms and Abbreviations

ABCDF Aberdeen Chemical Agent Disposal Facility (Maryland)

ACAMS automatic continuous air monitoring system

ANCA Anniston Chemical Activity (Alabama)

ANCDF Anniston Chemical Agent Disposal Facility (Alabama)

BAST Board on Army Science and Technology

BRAC Base Realignment and Closure

CAC Citizens Advisory Commission

CAMDS Chemical Agent Munitions Disposal System (Utah)

CDF chemical agent disposal facility

CEMS continuous emissions monitoring system

CERCLA Comprehensive Environmental Response, Compensation and Liability Act

CMA Chemical Materials Agency (U.S. Army)

CTUIR Confederated Tribes of the Umatilla Indian Reservation

CWC Chemical Weapons Convention

DAAMS depot area air monitoring system

DCD Deseret Chemical Depot

DWP decommissioning work package

EPA Environment Protection Agency

GB nerve agent (sarin)

GPL general population limit

H mustard agent

HD distilled mustard agent

HT distilled mustard mixed with bis-(2-(2-chloroethylthio)ethyl) ether

IDLH immediately dangerous to life and health

JACADS Johnston Atoll Chemical Agent Disposal System

L lewisite

LDR land disposal restriction

LIC liquid incinerator

MINICAMS Miniature Chemical Agent Monitoring System

NECD Newport Chemical Depot (Indiana)

NECDF Newport Chemical Agent Disposal Facility

NRC National Research Council

ODEQ Oregon Department of Environmental Quality

OSHA Occupational Safety and Health Administration

Suggested Citation:"Front Matter." National Research Council. 2010. Review of Closure Plans for the Baseline Incineration Chemical Agent Disposal Facilities. Washington, DC: The National Academies Press. doi: 10.17226/12963.
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OST occluded space team

PAH polycyclic aromatic hydrocarbon

PBCA Pine Bluff Chemical Activity (Arkansas)

PBCDF Pine Bluff Chemical Agent Disposal Facility (Arkansas)

PCB polychlorinated biphenyl

PCC permit compliance concentration

PMCD Program Manager for Chemical Demilitarization

PMCMA Program Manager, Chemical Materials Agency

RCRA Resource Conservation and Recovery Act

STEL short-term exposure limit

STL short-term limit

TOCDF Tooele Chemical Agent Disposal Facility (Utah)

TSDF treatment, storage, and disposal facility

UCD Umatilla Chemical Depot

UDAQ Utah Division of Air Quality

UDSHW Utah Division of Solid and Hazardous Waste

UMADRA Umatilla Army Depot Re-Use Authority

UMCD Umatilla Chemical Depot

UMCDF Umatilla Chemical Agent Disposal Facility (Oregon)

UMT unventilated monitoring testing

USACHPPM U.S. Army Center for Health Promotion and Preventive Medicine

VSL vapor screening level

VX nerve agent

WCL waste control limit

WPL worker population limit

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This book responds to a request by the director of the U.S. Army Chemical Materials Agency (CMA) for the National Research Council to examine and evaluate the ongoing planning for closure of the four currently operational baseline incineration chemical agent disposal facilities and the closure of a related testing facility. The book evaluates the closure planning process as well as some aspects of closure operations that are taking place while the facilities are still disposing of agent. These facilities are located in Anniston, Alabama; Pine Bluff, Arkansas; Tooele, Utah; and Umatilla, Oregon. They are designated by the acronyms ANCDF, PBCDF, TOCDF, and UMCDF, respectively. Although the facilities all use the same technology and are in many ways identical, each has a particular set of challenges.

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