ML20126J262

Requests NRC Assessment of Sandy Strata Located at state-licensed Burial Grounds.Strata Could Intersect Burial Ground & Constitute Route for Lateral Migration of Radioactive Matls.Fact Sheet Encl

ML20126J262
Person / Time
Site:	West Valley Demonstration Project
Issue date:	04/04/1981
From:	Myra Hamilton Sierra Club
To:	Haughney C NRC OFFICE OF NUCLEAR MATERIAL SAFETY & SAFEGUARDS (NMSS)
References
18887, NUDOCS 8104240176
Download: ML20126J262 (9)

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$%.4&j. iysv Over a mcnth ago I wrota you regisdihPM00' oy 200' sandy 2 rita recentiv identified by the New York State Department of E wironmental 'C:nservation as located at the state-licensed burial '

grounds, a strata extending from approximately trench 413 in a ,

me:nwesterly direction. Since this direction is to.Jards tne lmC-l' censed burial ground se are concerned regarding tne possibility that qi:r sandy strata could intersect with the NRC-ourial ground and constitute f route for lateral migration of radioactive materials. Since this anter is of significant concern to residents in the regicn, we would .

apareciate knowing.1)whether you feel that this sandy strata coes or i cys not intersecc with N?,C burial ground and 2) what drillings this '

csiessment.is bas?d upon?

i Thank' you for your atjention to this matter.

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M ! h.* a ~a )a 1 D %v A " low-level" burial ground sounds relatively harmless. The nuclear industry reg.ilarly promotes the' concept of " low-level" as nothing to worry about. But is the term accurate? The Maxey Flats " low-level" burial ground , near Morehead, Kentucky contains a2=ost 2 million curies

• of radioactivity, including about 200 lbs. of Plutonium 239. And , the State-licensed portion of the West Valley dt=:p ,

35 miles south of Buff alo,liew York has 12 lbs. of Plutonit=1, 15,000' curies of Strontit=t,- and 40,000 curies of Cobalt 60, among other materials.

i These large amounts of extremely ha:ardous , long-lived radioactive materials belie the tera "lew-level."' To: avoid the implication of harmlessness , we suggest he use of the term solid ::dioactive waste as a substitute for " low-level." It ,

is i=portant to coce, however, that mest solid radioactive waste burial grounds j rapidly are liquified as water infiltrates into the dumping area, time origin of solici radioactive waste q l

The popular image of solid radioactive waste material is of "slightly" con-t=ninated booties, paper trash, animal carcasses and a few discarded work clothes.

' Actually, only about.1% of the curie content of. waste generated by cocmercial re- ,

actors coctes from contaminated clothing. And, slightly less than 1% comes , frca contaminsted piping and. concrete that must be periodically removed. (In ;und er- '

standing burial ground problems vit is important to 'make a distinction between '

waste- by amount of volume, by c'urie content and by the half-life ** of the- radio- '

active materials. involved. It is these last two f actors which are most important.)

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Ninety-eight. percent of the curies generated by reactors ccme from byproducts lef t over arter , reactor coolant water has been cleaned.1 The reactor coolant which ' . l circulates- around the. highly: radioactive fuel rods. mus't. be regularly purified. -

, The water'is filtered *through. resins and dissolved contaminants are concentrated i k.

. in. evaporators7 jThess contaminated resins and evaporator sludges contain signifi ~.C '

r cant quantities 'of Cobalt 60:and Cesium 137. ; Since Cobalt and Cesium have a half - ~

$ life,'respectivelf;,hof'5 years ~and

30, years lhe materials must be carefully iso- M.,'

lated from the- environment for hundreds"of years.; - ". ._ 1% Ql4 f

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- V 7,( ' Jff In one yearcof. operation,'a boiling water reactor produces a total' of 4,100 curies of' solid radioactive waste,Tand' a pressurized reactor produces 1,900 curies.[ ~

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Curies are a measure of radioactivity the way miles-per-hour represent speed.

'j dy C e-millionth of a curie of Plutonium can cause lung cancer if it is' inhaled.

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A half-life is the time during which one-half of the radioactivity of a  ;

radioactive material decays., The industry rule-of-thumb is after ten . half-lives '

- a material vill be saf e.'

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h.u . during the 30. year lifetit.e of ene reactor, ab:ut 57,0C0 to 123,C00 curie 3 ed :: :f led "1:w-level" waste era prcduced.

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h e nucia a- "" H " =3 have re ently been using the need for dump sites for

~ nedical vutas as a cover to p;ccete siting of radioactive waste dumps for c:n-

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zer isi reactor vaste. Iha =edical-treatment-black: ail ar;=ent basically states if citizens do not agree to opening a burial ground , parents and lov:d enes will  ;

net be able to receive radiation creat=ent for cancer. Statistics belle this argcen t, s

Medical wastes represent 25% of the volume of solid radioactive vaate, but contain less than 1% of the total radioactivity disposed of annually, la other words, tne toxicity of =edical waste is =inor c mpared to consercial nuclear power

, plant daste. Further= ore, according to a Nuclear Regulatory Ccenission survey, 9. 3% o f t his was t a has half-liv es o f 60 d ays o r les s . 3 This means that if this material is sorted at the source and stored te=porarily for a matter of conths ,

the vaate can be disposed of as normal trash. Twenty-five percent of the solid

. racicactive waste problem can be solved through better planning and administrative prec edures at hospitals and medical canters.

5tcT4$ of .,2471cl 5 des T.ure are currently three ec=mercial burial sites that are shut-d wn and three cperating. The three shut-devn plants are Maxey Flats, Kentucky (1963-1977),

Wes t V alley, New York (1963-1975) and Sheffield, Illinois (19o7-1979). Thes e d=ps are now closed because of of f-site migration of radioactivity and poor burial practices. The remaining burial sites have also been plagued with problems, in 1 J 1979, both the Beatty, Nevada and Hanford, Washington sites were temporarily closed l due to receipt of improperly packaged materials. The Barnwell, South Carolina 1 dump will, by October,1931, decrease by 50: the amount of out-of-state waste received. Since Barnwell has .been receiving about 85% of the solid radioactive 1 waste generated in the U.S. , this restriction will have a major impact on other states j and increase pressure for siting additional dumo sites. Further, due to a referendum, ,

the Hanford, 'f ashington d=p site will only accept medical wastes af ter July,1981.

To meet the need for new dump sites , a bill passed the U.S. Congress in December, 1960, to allow states to form regional compacts to look for burial sites. Many in--

dividual states such as Massa.chusetts, North Carolina and New Jersey are actively

. , developing dump site criteria..and searching for locations. The assumption behind .-

chis search is that radioactive ^ material can be safely dumped in the ground. This

- ~ assumption needs to be re-examined. .

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does a " secure" foruifill' exist?

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Advecaces of burial grounds argue that a " secure" landfill can be " engineered" ~

prevent off-site migrations of radioactive materials and to adequately protect ,

the public health and safety. {The experience with toxic chemical " secure" land- '

fills is similar to radioactive waste dumps and not re-as suring. Most " secure" landfills ara, in fact, very . insecure. At Love Canal, in Niagara Falls , New York

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. cna21:als:vera dt=tped into the ground in the 1%0.s. Thir:y years la:er, the then-

. :2's had =igrated und erground - in:o pecples ' b.u encnts , wacer supply and lives .  !

I 1.c.e;4 L al is no: cn excep:10n.

i Th'e pe.rfor=ance record of che=ical landfill site.s has been entrently poor. )

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A ra:an: study 4 of landfills in New York run by SCA Che=1 cal 'Jasca S ervices and l C nrs international, shews chroni: problems of sic pin;, crosi:n and wcter infil-

.r ation. SCA, in'1930, was pe= ping 300',000 gallons per =onth c f liquid frem lanl-fills built only 3 to 3 years earlier and Cecos was pumping, in 1980, ',000 pilons oer day frca icndfills closed in 1978 and 1979. The insecure landfill ex- ,

perienza applies equally to radioactive waste dusps such as the Wes: " alley f acility. l t

The West Valley experience 'is impor: ant for citizens monitoring radloactive -

burial plans elsewhere in the country. The argu=ent by industry is that West Valley was , indeed :plagu:d by proble=s,.but industry haa now learned frco those problees-  !

and :he next burial site will be correspondingly better. ' We see no evidence , hev-  !

ever, that the industry has learned the lessons of West Valley. The West Valley  !

lesson, as we shall see belcw, 'shcws that radioactive materials sheuld not be dt= ped in:o the ground where it is impossible to con:rol or monitor the move =en: of these hanardous =aterials for the necessary nu=ber of years. The Sierra Club Radioac:1ve

• Waste Campaign advocates above-ground storage in concrets or steel bunkers.

West Yalley: a brief history The West-Valley State-licensed burial grou .d*cperated between 1963 .and 1975.

N ing :nat ti=e , 55 0,000 curies of =aterial were du= ped into dirt trenches approx-ina:*17 30 feet deep and about twice as long as a football field--600 feet (see

)dap 91). The trenches were no: lined with concrete, plastic or any other =ediu=. l lad:.oactive garbage was du= ped directly into the ground in a " pussy-cat" approach:

A li:tla earth was scratched away. material dt:1 ped in and then, re-covered by ,

scratching back the original earth..

There are two', sets 'of trenches at the 7-acre West Valley facility. North crenches, #1-7 .were dug and filled between 1963 and 1969, and south trenches ,

1. S-14', between 1969 and 1975 (see Map #2) . Within a few years of filling, water 1 s:arted to infiltrate into and accu =ulate in the north trenches. By March,1975,

he radioactive water broke through the cover of trench #4 and spilled radioactivity into nearby streams. ~ Unfortunately, trench #4 contained 15,000 curies of Strontit=2 90, a very large quantity. During 1975.. the average Sr-90 levels at a monitoring station adj acent to trench #4 were 14,102 pC1/1 with a =ax1=t:1 reading of 270,000 pC1/1.5 *"' Because of thisc spill, *the burial ground was closed in 1975.

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• 3.. w Ever 'since the'1975 spilf,"there have been semi-annual pumpouts at th'e norlh

. treneties. Over 2 mf Mion gallons of; radioactive water have been pumped 'as 'of "

Spring 1981 TheY eontamina'ted. liquiii #

1sYtreated 'on site with left-over sludges 4

• i being dt:1 ped-into tihe Nuclear Regulatory Co= mission licensed burial ground, and , ' ' ^

the treated but still radioactively contaminated liquid released to nearby Franks Creek. <.

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There is also a Nuclear Regulatory Co= mission (NRC) licensed burial ground at,/

West Valley. The NRC burial ground is not covered in this f act sheet.

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as This is about 900 ti=es Lt he so-called "saf e" of f-site levels set by the NRC.

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v.as #1. Nuclear Fuel Services plant and burial grounds at West Valley. Note several adsans that cut thrcugh the site. Superinposed quotations are fron a 1978 U.S. l

eparr, ment of Energy study. Map adapted frca " Annual Report cf Entiro= ental Radi-

ation in New York State,1975," New York State Department rf E tir nnental Conscr-vation.-

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Originally, it was thought that the water infiltration problem was due to inadeq.uate trench cover' . The original north trenches that were accuculating water had only 4~ feet of cover. In '1969, the' trench design was " improved" and. cover at the south trenches -increased tol8 feet. In 1978, the U.S. Department of Energy (DOE) was optimistin that water infiltration into the trenches would cease. But, in 1979,- the New York State Department of Enviror. mental Conservation announced that a pu=poun of the "i= proved"~ south trenches was now necessary. By 1980, over 900,000

' gall'ocs of liquid needed. to be pu= ped from these trenches. With both the ~ north and l the south trenches , the route of infiltration--through trench covers or through ' ' '

i:nderground sandy . strata--was not known. .

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In slai:e 1980,' the New' York. State . Energy Research and Development. Authority ' -.p .a -

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(NYSERDA) . .went to - court ^t'o prevent the operatorjf,the site, Nuclear Fuel' Services (

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(NFS)' from ' abandoning th'e burial ground',las the company ~ had' intended to do." NFS . , --;

"a subs'idiary of Getty Oil 7had'a 17Eyear$ lease vithithe State 'which termihated ons,j,

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December 31, 1980. . NYSERDA in. asking for an injunction against NFS claimed that the burial ground was in default,' and without.' continual' maintenance would be a' hazard to pubile health and safety.3 Furthermore, in an ' attempt to assure adequat'e funds -

for remedial action and perpetua1' maintenance,'NYSERDA also asked that Getty 011-not be allowed to witihdraw $16 million in' loans it had made to NFS. A court hear- ~

ing on the case is due in Spring 1981. ~

What are someof the lessons or warnings of the West Valley expertence? '

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a '--dei' of gaci:31: iorin r2 cannot od e ru.tely faara :arine a radiocctive e zs : : Surial site. Jes: Jallay has been d es: rib. d by the n uc le a r i nd us :ry , th e 'J . 5.

G --A -he New York 5:a:e governnent as being 1 ca:2d in an slec=: ideal, "12-T e r - a b '.e" clay-like till . :his characterization was based on f our original drill-

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a 22-acre burial sit e.3 C:vicualy, :his saal nenber of drillings--one ter s t erf five acres--was insuf ficient evidence. Furthermore, s2=ples ere taken a:

5 fac: intervala, which would not detect per:eable strata of significant widths.

More detailed geologic studies of the site have since been made, but af:er large quanti:ies of radioactive materials were already du= ped into the ground. Thus, there has been a strong bias in all subsequent studies to prove the safety of the burial ground.

The inadequacy of the site characteri:atica nt Wes t 7 alley is reficcted in the fact tha: the burial ground was located in an area of swa=ps and sand lensas (s ee

~4arning :12) . A sani lens is a sandy strata along which radioactive estarials can

=igrat e laterally, underground. A sand lens is permeable. In 19S1, the dimensien and de;ch of these sand lenses at West Valley have still not yet been accurately a'd ea:ed. In 1377, the U.S. Enviruamental ?rctection Agency requested th3t 'ha .

1:ca:icnand entent of sand lenses be surveyed. Ihree years later, this request has ne: fe: been acted upon.

• /.T733".g 2 3:ste agencies and ceasercial operators which ara deriving incc=e frra a du=p-ing operation cannot be relied upon to provide accurate infor=ation regarding radio-1:gi: hazards or geologic suitability of a site. Unfortunately, other state a2encies -

=ay also not be reliable sources of information--particularly if a pro-nuclear gevernor is appointing ' agency heads. At West Valley, the State relied upon visual inspection by bulldozer operators to determine the presence or absence of sandy s tr a ta. But it took a field inspection by U.S. Environ = ental Protection Agency I. EPA) staff to detect a large (2' by 65') sandy strata in one of the trenches , open

d being' filled , at the time o f the E?A visit. 7 This strata had not previously been reported by the corporate operator of the site, Nuclear Fuel Servicea. The existence of this sandy strata was, furthermore, totally ignored in a U.S. Depart =ent  ;

of Energy _ report on the West Valley site in Dece=ber,1978. " Western New York Suclear Service Center Study," TID 28905-2. -

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The existence"of a second, even larger,' sandy strata was uncovered 'by~ the' Sierrn Club Radioactive Wasta Campaign in the Fall of 19S0. Until this time,' the New York Department,of Health, and New York Department of Envirocsental Conservation

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had kept.the existence ofc this ' strata--100' by 200'--secret ^ The agencies had known about the strata for six years--since '1974. It is not yet known whether there is a cennection between the EPA-discovered sandy strata and this larger one. It is not l i=cvn whether there is a connection between this strata and a swampy area that is l c;cse by (see Map #3). These are major uncertainties that should have been carefully l i=vestigated before a dumping operation.was initiated.

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l ' 1 C f Y. $ . ; } 0 Te rechanists for : ;;; ica :: ::.dic ac:ive ca:e ri a.s ::: c. p si:es is p o o ri;'

unders::cd. A: "axey Fla:s, Plu:eniu: 239 has been faund a elle frca the site.

1: ;s nz: knavn whe:her migratten waa via under;round a:r s:a :: aurf: e runoff.

. n: Talley sedinen in a dca en Cat:2 augus Orack, 2 miles downstrean of the i;mp si:e, centains Flu:anium 235 and Cesium 137 frar :he burial ground.3 Thus f.:. lritium has migra:ai a dis:anca of 32 fee: ir isce of ae Wea: 'Isiley t r'ecches ,

and is released in each gunpout of the :ren:hes. It is .?: k::v7 why this misra:i:n is ::urring. In additica, a recent discovery proved tha: tri:iated ;as is being releas ed f ro: the trenches as me:hane builds up in the trenches from decc: posing carcasses and rotting packaging.

warning 4 There is no hacun way to centrol slu= ping , cc pressing and shif:ing of m :crial du= ped in a burial ground. One reas:n water penetrates a dump site such as Wes:

• ialley is that materials (s r a a' d s, wooden ::stes and carc_ 1rd packages) in-side :N e trenches rus t , degrsde, ro: 2nd set:le. As this happens, the trench cover, liker _ s e , s hi f ts and s e t :l a s . In :his process, large cr;;ks and ind:n:stier  :. :

in :ne :over. One way water accumulates in the trenches is through these openings.

un ; sal::ing.and ssetlin; vill occur indefinitely. This p ' ~ - is exacarbated in

;_;a of high ::inf all such as Wes:ern New York.

1 f.a tren:h caver is progressively made thicker and heavier, it bec:nes harder to .revant :he :cvers frca slu= cia; dcvn into tre :ren:F curi;y. Only 11 and  ;

v5 - :he compressive strength of the material inside :he :rench has been built up l

equal the weight and density of the cover, will this process cease--in hundreds 1 of yeara,.perhaps. l

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l Costly pumpour at burial trenches will be needed indefinitely. Since all the l solid radioactive waste burial grounds contain water-soluble radioactive materials l such as Cesium and Radium, it is extremely i=portant to prevent release of these l ms:erials to near-by strecas. Punped out liquids must be treated. Unfortunately, l Tri:ium cannot be removed by existing. treatment techniques. At Wes t Valley, 6,700 Ci of Tritium have, thus far, been released into nearby streams. Treatment and - -

pu= ping costs are high. In 1980, the annual pumpout costs at the Maxay Flats dump was $300,000 per. year. With rising inflation, in a fea years , pumpout costs at many shut-down burial sites will exceed $1 million per year. - Nuclear Fuel Services -

estimated'in 1980; that maintenance of the West Valley burial ground would reach a .'

whopping .;

$3 million per year; ,,.,'

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warning 6- 7- ,

After a dump site is closed, corporate evners of burial sites try to pass perpetual care costs onta che state and federal taxpayers. It has been virtually i:pessible to make accurate estisa:es of the monies needed for these perpetual care funds. At West Valley, 573, the corporate evner, has placed $4 millien into a per-petual care f und. This was the amount of money the Atcmic Energy Co= mission thought

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Acessar r in 1963. Seven:cen years la:er, this estira:e is a tiny percen: age cf I urec:e:. cost . Clean up of the high level liquid v2.3:e5 at Wes: 7 allay hcve Seen La:ima:ed 'at. S:30 million and cle:n up of the burial ;;round n ay bt ec,ually high. ,

learly, he $4 milli:n fund is totally 'inadquate.

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As ha:ards of radi: active sa:erials are better und 2rs ;ocd , ragulations re-garding wha: can and cannot be du=;ed in the grcund ar.: : hanging ::.dically. ?: Lor i

o 19 N , 1: vas cchsidered per issibic :o dump liquid wastes and Flutenius 208 nnd 239 in:o the ground. This is new forbidden. We expe:: regula:1ons to continue to  !

bec:ce more rigorous. Sece curren 1931 burial practices will be considered un-accep:able within a few short years.  ;

Ine West Valley buriai ground is insecure. For decades, there will be off-

, site migration of long-lived, hasardous isotopes unless these sc:erials are dug up and placed in abcve-ground storage bunkers of steel or concrete. These bunkers could be nonitored properly a::d maintained until a federal repository is located.

The Campaign believes the New York State Legislature should fund a study of the  ;

feasibility of digging ' puthese =aterials. The Cc=paign urges citizens in other i states :o investigate the integrity of-existing dump sites and to prc=ote above-ground s:orage for new du=p sites.

For further information: Sierra Club Radioactive Waste Ca=paign, Sox 64,

' S ta: ion G, Suf f alo, New York 14213. Phone: (716) 832-9100. Single copies of this fa:: sheet $.f 0, 25 :: : re 7.10 each plus postage.  !

f' y Too tno t es :

1 .

' Report to the Governors Task Force on Waste Management. Low Level Radio-active Waste Management in North Carolina. September, 1980, p. 10.

2 '

Final Generic- Environmental Statement on the Use of Recycle Plutonium in Mixed

• Oxide Fuel in Light Water Cooled. Reactors ,- NUREG-0002, Vol 3. IV-H-16.

3"The Problem of Disposing of Nuclear Low-level Waste: Where Do We Go From Hers?" EMD-80-68, p. 8, Gover: ment Accounting Of fi'ce.

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.g" Performance Difficulties 'of ' Secure' Landfills for Chemical Waste and Avail-

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able Mitigation Measures,",. paper" presented by Peter' Skinner before American; Society .

of Civil Engineers,m1980. Asailable. NYS' Attorney General, Albany,'New Yorkt . -- . .

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Annual'Reportiof Envirormentia"l. Radiation;in' New York State, New Yorl'd State e 7' . . . '

, . Department of Envirdum~ ental Conservation,:19753

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Safety Analysis Report, Nuclear' Fuel Services,1962 NRC Docket 50-201.

7"Su=sary Report on the Lcw-level Radioactive Waste Burial Site, West Valley, New York, 1963-1975." U.S. Environmental: Protection Agency,1977, EPA /4-77-010

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