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Safety in the Underground Construction and Operation of the Exploratory Studies Facility at Yucca Mountain
Proceedings of a Symposium held at Yucca Mountain and Las Vegas, Nevada November 30-December 1, 1993
U.S. National Committee on Tunneling Technology
Geotechnical Board
Board on Energy and Environmental Systems
Commission on Engineering and Technical Systems
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C.
1995
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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.
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 M. 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. Robert M. White 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 M. Alberts and Dr. Robert M. White are chairman and vice chairman, respectively, of the National Research Council.
This project was supported primarily by the Department of Energy, Yucca Mountain Project Office. Other agencies provided core support for the activities of the Geotechnical Board under the auspices of which this project was initiated. These agencies include the Department of the Army (Defense Nuclear Agency), Department of the Air Force (Air Force Office of Scientific Research), Department of the Interior (Bureau of Mines and Burreau of Reclamation), Department of Transportation (Federal Transit Administration), Department of Energy (Office of the Superconducting Super Collider), Department of the Army (Defense Nuclear Agency, Nuclear Regulatory Commission, and National Science Foundation—MSS-9203139.
Limited copies of this report are available from the Board on Energy and Environmental Systems, National Research Council, 2101 Constitution Avenue, N.W., Washington, D.C. 20418. Additional copies of this book are available from
National Academy Press,
2101 Constitution Avenue, N.W., Box 285, Washington, D.C. 20055, 1-800-624-6242.
Library of Congress Catalog Card Number 95-68330
International Standard Book Number 0-309-05243-2
Copyright 1995 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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U.S. National Committee on Tunneling Technology 1993-1994
RAYMOND L. STERLING (Chair), Director,
Underground Space Center, University of Minnesota, Minneapolis
RICHARD W. BALCERZAK, Assistant General Manager,
Metropolitan Water District of Southern California, Los Angeles
LLOYD A. DUSCHA, NAE, Consulting Engineer,
Reston, Virginia
GEORGE FOX, NAE, Chairman,
The Grow Tunneling Corporation, New York, New York
RICHARD F. HARIG, St. Vice President and Technical Director (Retired),
Mining and Industrial, Parsons Brinckerhoff Quade & Douglas, Inc., Denver, Colorado
JOHN W. HUTCHINSON NAE, NAS, Gordon McKay Professor of Applied Mechanics,
Division of Applied Sciences, Harvard University, Cambridge, Massachusetts
MARTIN KELLEY, President (Retired),
Keiwit Engineering Company, Omaha, Nebraska
ALBERT A. MATHEWS NAE, President,
Al Mathews Corporation, Federal Way, Washington
PRISCILLA P. NELSON, Associate Professor of Civil Engineering,
University of Texas at Austin
HARVEY W. PARKER, Senior Vice President,
Shannon & Wilson, Inc., Seattle, Washington
NAS = Member, National Academy of Sciences
NAE = Member, National Academy of Engineering
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Geotechnical Board 1993-1994
JAMES K. MITCHELL (Chair),
University of California, Berkeley
CLARENCE R. ALLEN,
California Institute of Technology, Pasadena
JOAN (JODIE) Z. BERNSTEIN,
Waste Management, Inc., Oak Brook, Illinois
DAVID E. DANIEL,
University of Texas at Austin
WILLIAM S. GARDNER,
W.S. Gardner and Associates, Blue Bell, Pennsylvania
JAMES P. GOULD,
Mueser Rutledge Consulting Engineers, New York, New York
FRANCOIS E. HEUZE,
Lawrence Livermore National Laboratory, Livermore, California
CHARLES C. LADD,
Massachusetts Institute of Technology, Cambridge
JAMES D. MURFF,
Exxon Production Research Company, Houston, Texas
SHLOMO P. NEUMAN,
The University of Arizona, Tucson
THOMAS D. O'ROURKE,
Cornell University, Ithaca, New York
REUBEN SAMUELS,
Parsons Brinckerhoff, New York, New York
ROBERT L. SCHUSTER,
U.S. Geological Survey, Denver, Colorado
DON W. STEEPLES,
The University of Kansas, Lawrence
Staff
MAHADEVAN MANI, Director
PETER SMEALLIE, Director,
Geotechnical Board (1990 through 1994)
JENNIFER ESTEP, Administrative Assistant
AMELIA MATHIS, Project Assistant/Senior Secretary
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Board on Energy and Environmental Systems
H. M. (HUB) HUBBARD (Chair), President and Chief Executive Officer,
Pacific International Center for High Technology Research (PICHTR), Honolulu, Hawaii
RICHARD MESERVE (Vice-Chair), Partner,
Covington & Burling, Washington, D.C.
STEPHEN D. BAN, President,
Gas Research Institute, Chicago, Illinois
ROBERT D. BANKS, Program Director of Technology and Environment,
World Resources Institute, Washington, D.C.
ALLEN J. BARD, NAS, Professor,
Department of Chemistry, The University of Texas at Austin
BARBARA R. BARKOVICH, Partner,
Barkovich and Yap, Consultants, San Rafael, California
JAN BEYEA, Chief Scientist,
National Audubon Society, New York, New York
DAVID E. DANIEL, L.B. (Preach) Meaders Professor of Civil Engineering,
Department of Civil Engineering, The University of Texas at Austin
LINDA C. DOLAN, Staff Environmental Engineer,
Martin Marietta Electronics and Missiles, Orlando, Florida
ROBERT L. HIRSCH, Senior Vice President,
General Atomics, Washington, D.C.
FRANCOIS E. HEUZE, Head,
Geotechnical Group, Lawrence Livermore National Laboratory, Livermore, California
CHARLES D. KOLSTAD, Professor,
Department of Economics, University of California, Santa Barbara
JANE C. S. LONG, Staff Scientist,
Earth Sciences Division, Lawrence Berkeley Laboratory, Berkeley, California
SEYMOUR MEISEL, NAE, Vice President, Research (Retired),
Mobil R&D Corporation, Princeton, New Jersey
SHLOMO P. NEUMAN, NAE, Regents' Professor,
Hydrology and Water Resources, University of Arizona, Tucson
THOMAS O'ROURKE, NAE, Professor,
Civil & Environmental Engineering, Cornell University, Ithaca, New York
LAWRENCE T. PAPAY, NAE, Vice President & Manager of Research & Development,
Bechtel Group, Inc., San Francisco, California
RUTH A. RECK, Director,
Global Climate Change Program, Argonne National Laboratory, Argonne, Illinois
MARC H. ROSS, Professor,
Physics Department, University of Michigan, Ann Arbor
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HAROLD H. SCHOBERT, Chairman,
Fuel Sciences Program, Department of Materials Science and Engineering, The Pennsylvania State University, University Park
JOEL SPIRA, NAE, Chairman and Director of Research,
Lutron Electronics Co., Inc., Coopersburg, Pennsylvania
JON M. VEIGEL, President,
Oak Ridge Associated Universities, Oak Ridge, Tennessee
Liaison Members to the Commission on Engineering and Technical Systems
RICHARD A. CONWAY, NAE, Senior Corporate Fellow,
Union Carbide Corporation, South Charleston, West Virginia
TREVOR O. JONES, NAE, Chairman of the Board (Retired),
Libbey-Owens-Ford Company, Cleveland, Ohio
Staff
MAHADEVAN MANI, Director
SUSANNA CLARENDON, Administrative Assistant
THERON FEIST, Project Assistant
HELEN JOHNSON, Administrative Associate
AMELIA MATHIS, Project Assistant
WENDY ORR, Project Assistant
JILL WILSON, Program Officer
TRACY WILSON, Senior Program Officer
JAMES ZUCCHETTO, Senior Program Officer
Editorial Consultants
CAROLETTA J. POWELL,
Editorial Concepts, Inc.
LINDA D. VOSS,
Inklings, Inc.
NAS = Member, National Academy of Sciences
NAE = Member, National Academy of Engineering
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Preface
In 1987, Congress instructed the U.S. Department of Energy (DOE) to study Yucca Mountain, located on the Nevada Test Site, as a potential repository site for spent nuclear fuel and high-level radioactive waste. To determine the suitability of the site for that purpose, the Exploratory Studies Facility (ESF) will be constructed at Yucca Mountain. There scientists and engineers will perform tests and experiments to evaluate Yucca Mountain as a potential repository. In addition, ESF construction and excavation data will be used to guide potential repository design and construction.
Underground construction safety management is challenging on any project, but it will be particularly so at the ESF. Many tests and experiments will be conducted even as the ESF is being constructed. Construction workers, scientists, and engineers will be working in close proximity. ESF construction and operation will be concurrent.
To increase DOE project personnel's level of understanding regarding underground construction safety management, the U.S. National Committee on Tunneling Technology held a symposium on underground safety November 30 through December 1, 1993, in Las Vegas, Nevada. Experts from the United States and abroad presented their experiences with safety management and practice, as well as lessons learned on their respective projects.
Within these proceedings, papers and presentations from the symposium have been organized into two sections. The first of these addresses the broad topic of underground safety management. Papers and presentations within this section discuss the process of planning for safety, the value of approaching underground construction with a mindset conducive to safety, safety regulations and the regulatory environment, interpretation of safety regulations, and the enforcement process.
Papers in the second section present several underground safety management experiences in the United States and around the world. Each of them illustrates organization for safety management and gives examples of successful approaches to creating a safe underground work place. To some degree, each of them addresses the
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particular issue of safely integrating different tasks and different safety cultures underground, a situation certain to be encountered at the ESF.
Each of the authors has some insight to offer those who are planning and carrying out the construction and operation of the ESF. These proceedings are being published to make their insights available to those who were not able to attend the symposium, as well as to those who did attend.
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Acknowledgements
The U.S. National Committee on Tunneling Technology acknowledges the assistance of the Yucca Mountain Project Office of the U.S. Department of Energy in the conduct of the symposium and for arranging a site visit for the participants to the Exploratory Studies Facility. The committee thanks all of the speakers for their contributions at the symposium and for their help in preparing the proceedings.
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Contents
Underground Construction Safety: Be Sure You're on the Right Track
Joseph E. Fitzgerald
1
Abstract,
1
Introduction,
2
Worker Safety and Health,
2
Safety Experience in Underground Construction Safety,
3
Worker Safety and Health Issues at Yucca Mountain,
5
Underground Construction Safety: What is Important?,
7
Investments in Prevention,
9
Conclusion,
10
Reference,
11
Department of Energy's Construction Safety Program
Patrick F. Finn
13
Abstract,
13
Introduction,
13
Department of Energy Policy,
14
Summary,
21
References,
22
OSHA Regulations and Their Implications
Fred A. Anderson
23
Abstract,
23
Introduction,
23
Provisions,
24
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Conclusions,
29
Discussion,
30
Underground Regulatory Safety Today
Byron M. Ishkanian
33
Abstract,
33
Introduction,
33
Employee-Safety Jurisdiction,
34
Which Safety Code Will Apply at the Yucca Mountain Site?,
34
Encouraging a Cooperative Safety Effort,
38
Developing and Maintaining Good Channels of Communication,
39
Meaningful Safety Monitoring of All Operations,
41
Job Hazard Analysis of Planned Operations,
41
Analysis of Accidents After Investigation for Correction of Conditions,
44
Initiation of Changes in Safety and Health Requirements,
44
Safety Training, Safety Oversight, and Instruction,
47
Expected Exposures and Risks Associated with Differing Types of Excavation Equipment,
47
Managing Safety Liability on a Multicontract Work Site,
48
Handling of Emergency Response in Case of Accidents, Fires, or a Disaster,
49
Conclusion,
49
Discussion,
52
Bibliography,
54
Safety Engineering Design Analysis For Tunneling Equipment
Bruce L. Blackford
55
Abstract,
55
Introduction,
56
Failure Mode, Effects, and Criticality Analysis,
57
Fault-Tree Analysis,
60
Summary,
63
Milwaukee Water Pollution Abatement Program: Underground Safety—Dealing With OSHA
John Ramage
65
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Abstract,
65
Background,
65
Organization of MWPAP,
66
Program Safety,
67
Safety Record,
67
The Regulatory Environment and the Team's Response,
70
The Event,
71
The Fallout,
71
Lessons Learned,
74
Discussion,
74
Bibliography,
76
OSHA Today and Tomorrow
Patrick Tyson
77
Abstract,
77
OSHA: The Agency and Its Mission,
78
OSHA Penalties,
78
How OSHA Conducts an Inspection,
79
The Issue of Jurisdiction,
81
OSHA Under the New Administration,
81
What OSHA Will Require of the Exploratory Studies Facility,
82
Conclusion,
83
Discussion,
83
Underground Operations at the Waste Isolation Pilot Plant: A True Safety Culture
Fred G. Ashford and Linda M. Calderon
85
Abstract,
85
Foundation of a True Safety Culture,
86
Underground Facilities,
86
Underground Operations,
89
In Compliance: Evidence of Success,
91
Organizational Relationships,
93
Evolution of a True Safety Culture,
94
Conclusion,
99
Building a True Safety Culture,
99
Initiating Culture Change,
100
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Employee Participation and Management Commitment,
101
Conclusion,
103
Discussion,
103
Safety in Construction and Operation of Underground Facilities
Joseph W. LaComb
105
Abstract,
105
Background,
105
Yucca Mountain Requirements and Design,
106
DNA Findings,
108
Comments and Suggestions,
109
Summary,
111
Underground Safety at the Äspö Hard Rock Laboratory
Olle Zellman
113
Abstract,
113
Introduction,
114
The Facility,
115
Regulatory Authorities and Laws,
115
Planning and Design,
116
Site Office Routines,
117
Rock Works,
117
Coordination Between Research and Tunneling Work,
118
Safety-Related Equipment,
119
Conclusion,
119
Discussion,
119
Safety Management in PNC's Shaft Excavation Effects Project in
Japan Kozo Sugihara
121
Abstract,
121
Introduction: A History of the Tono Mine,
122
Overview of the Shaft Excavation Effects Project,
123
Objective and Approach,
128
Project Management and Organization,
128
Shaft Excavation Effects Project Safety Management,
132
The Result,
136
Conclusion,
137
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The Channel Tunnel
Timothy Green
139
Abstract,
139
Outline of the Channel Tunnel Project,
139
The Channel Tunnel and Yucca Mountain,
141
Organization for Safety,
142
Early Steps, Easily Taken,
143
Analysis of Accidents,
144
A Series of Initiatives,
148
Environmental Monitoring and Control of Incidents,
152
Discussion,
154
Appendix A:
Symposium Agenda
155
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List of Illustrations
Byron M. Ishkanian
Figures
1
Sample safety meeting report form.
40
2
Sample construction safety inspection checklist.
42
3
Sample job hazard analysis form.
43
4
Sample supervisor's accident investigation report form.
45
5
Sample monthly accident experience summary form.
46
6
Sample summary of construction safety reports.
50
7
Tunnel incident command organization chart.
51
Table
1
Minimum Illumination Intensities in Foot-Candles
38
Bruce L. Blackford
Figures
1
FMECA worksheet example.
58
2
Example of a criticality matrix.
60
3
Example of a simplified fault-tree diagram.
62
John Ramage
Figures
1
Metropolitan Milwaukee area map showing the confluence of the Menomonee, Milwaukee, and Kinniokinnic Rivers.
68
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2
Soft-ground tunneling method used to control the inflow of water.
69
3
Tunnel ventilation system using fully reversible, explosion-proof fans.
72
Fred G. Ashford and Linda M. Calderon
Figures
1
Diagram of the WIPP facility layout.
87
2
Underground test rooms and waste storage panels.
88
3
WID underground operations violations from 1989 to 1993.
92
Table
1
Waste Isolation Pilot Plant 1993 Injury/Illness Summary
96
Kozo Sugihara
Figures
1
Map showing the location of the Tono Mine in Japan.
122
2
Geoscientific studies in the Tono Mine.
124
3
Standard section of the shaft.
126
4
Cross section of the shaft.
127
5
Location of sections and boreholes for measurements in the SEE project.
129
6
Relevant organization chart of PNC.
130
7
Organization chart of PNC's Chubu Works.
131
8
Organization chart of safety management in the Tono Mine.
134
9
Accident report system of PNC's Chubu Works.
135
10
A sample KY sheet.
137
Table
1
Rock Mechanical Properties of the Sedimentary Rocks
125
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Timothy Green
Figures
1
Accident frequency rate per 100,000 hours of work.
145
2
Work-related medical center attendances at the tunnel subproject.
146
3
Number of eye injuries of attendances at the tunnel subproject medical center.
147
4
Example of an in-house poster used to market a safety spectacles campaign at TML.
150
5
Example of an in-house poster used to market the TML track safety campaign.
151
6
TML' s safety wall
153
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List of Acronyms
ANSI
American National Standards Institute
CFR
Code of Federal Regulations
DOE
Department of Energy
ESF
Exploratory Studies Facility
ET
Eurotunnel
FAR
Federal Acquisition Regulation
FMECA
failure mode, effects, and criticality analysis
FTA
fault-tree analysis
KY
Kiken Yochi
LEL
lower explosive limit
MMSD
Milwaukee Metropolitan Sewerage District
MSHA
Mine Safety and Health Administration
MWPAP
Milwaukee Water Pollution Abatement Program
NLRB
National Labor Relations Board
OSHA
Occupational Safety and Health Administration
REECo
Reynolds Electrical & Engineering Company
SKB
Svensk Kärnbränslehantering AB
SNL
Sandia National Laboratories
TBM
tunnel boring machine
TML
Transmanche Link
WID
Waste Isolation Division
WIPP
Waste Isolation Pilot Plant
YMP
Yucca Mountain Project
