NCD980602163_19830913_Warren County PCB Landfill_SERB C_Final Report for PCB Waste Disposal-OCR

NORTH CAROLINA DEPARTMENT OF CRIME CONTROL
AND PUBLIC SAFETY
FINAL REPORT
PCB WASTE DISPOSAL SITE
WARREN COUNTY, N.C.
SEPTEMBER, 1983
Prepared By:
DIVISION OF HIGHWAYS
NORTH CAROLINA DEPARTMENT OF TRANSPORTATION
September 13, 1983
NORTH CAROLINA DEPARTMENT OF TRANSPORTATION
PCB STABILIZATION, REMOVAL, HAUL AND DISPOSAL
The North Carolina Department of Transportation became
involved in the PCB discharge incident immediately upon discovery
of the spills. During July and August of 1978, field personnel
were involved in discovery of spill areas and central office
personnel were assigned to a State Government Task Force,
comprised of representatives of most every State Agency, assigned
the responsibility for developing mitigation plans.
The Task Force, on the basis of a recommendation by Dr.
Jerome Weber, N. C. State University, determined the PCB's could
be stabilized by a direct application of activated carbon on
the contaminated areas. Dr. Weber's findings indicated activated
carbon would absorb PCB's immediately upon contact and render
the PCB's harmless to animals and humans. On August 15, 1978,
Governor Hunt authorized the application of activated carbon.
Eleven days following the Governor's authorization, the
Department had received an emergency shipment of 160 tons of
activated carbon and applied the carbon and liquid asphalt to
all of the known contaminated areas. The application consisted
of 1 #/sq. yd. of activated carbon applied in a 10% water solution,
followed immediately by an application of emulsified asphalt at
the rate of approximately 0.1 gallon/sq. yd. to prevent dusting.
The activated carbon was applied in two applications to minimize
runoff. The work was performed in five days by four crews
consisting of approximately ten personnel with flatbed supply
truck (activated carbon), hydroseeder modified to provide four
ground level nozzles and an asphalt distributor.
At the same time, all Department field personnel were
advised to cease all routine maintenance activities that would
result in disturbance of the natural ground and vegetation.
This included ditching, blading of shoulders, snow removal from
shoulder areas, mowing, etc. In addition, all utility and other
encroachment requests within the contaminated areas were to be
denied.
At the direction of Governor Hunt, the Department placed
signs at the termini of each spill area warning notorists of
a hazardous chemical spill.
-2-
During the period August 26-Septernber 11, 1978, the
Department conducted numerous simulated PCB removal operations
in non-contaminated areas in Wake County. These demonstrations/
evaluation projects were conducted in order to develop an
acceptable removal technique. Among the techniques tested
were:
(1) A trenching operation with material windrowed
onto the pavement. The windrow was picked up by
a force feed loader and fed to trailing dump
trucks. The residue left on the pavement was
removed by a vacuum truck.
(2) Pulverizing the earth shoulder material in-place
with a pulvi-mixer and removal of the material
directly from the shoulder area by means of
vacuum equipment.
(3) A trenching operation as in item (1) with the
residue on the pavement mechanically broomed back
into the excavated trench.
These demonstrations indicated the use of vacuum equipment
was not feasible primarily because of lack of productivity.
The demonstrations also raised several areas of serious
concern:
(1) At the time of excavation, soil moisture must be
ideal both for adhesion and to eliminate dust.
(2) A regular motor grader blade was not adequate for
excavating neat line trenches.
(3) Some problems were observed with particles of
excavated material escaping by wind drift as
the material flowed from the force feed loader
into the dump truck bodies.
(4) Severe dust problems were encountered with the
brooming operation.
(5) Some spillage of loose material from haul · trucks
was noted.
The removal procedure was adjusted to address these
problems by the following:
-3-
(1) It was determined that at least two water distributors
must be on the project site at all times in order
to properly wet down the area to be excavated in
advance and to keep the pavement and thin residue
moist behind the excavation process.
(2) A blade attachment was specially designed for the
motor grader to excavate a neat 24-30"x3" trench.
(3) A canvas shield was designed for attachment to
the end of the force feed loader conveyor to eliminate
wind drift.
(4) A canvas shield was designed to be attached to the
rotary broom to reduce dusting problems.
(5) It was determined that tightly fitted tarpaulins
must be used to cover dump bodies and tailgates
must be fitted with a plastic or rubber insert to
eliminate spillage.
The demonstrations also raised some questions relative to
the possible harmful health effect on employees participating in
the removal operation. The demonstrations were observed by
Department of Human Resources personnel who subsequently directed
that in future demonstration projects involving contaminated
material several precautions should be taken including:
(1) All personnel be equipped with goggles, respirators,
throw-away coveralls, gloves and boots.
(2) Personnel should not be allowed to smoke or eat
without first thoroughly washing hands and face.
(3) All personnel and observers must submit to blood
sampling prior to beginning operation.
(4) Air monitoring devices must be worn by appropriate
personnel including motor grader operator, trench
supervisor, broom operator and other selected
personnel.
On October 5, 1978, the Department successfully carried
out a removal demonstration project along one mile of NC 58
in Warren County between SR 1628 and SR 1626 involving
contaminated shoulder material. All precautionary measures
prescribed by the Department of Human Resources were carried
out. The removal procedure consisted of the following steps:
-4-
A. The contaminated area was thoroughly wetted down
with water. This operation was recognized as
extremely critical in the total removal operation
and was stringently controlled.
B. The contaminated shoulder area was trenched out to
a width of approximately 24"-30" from the edge of
pavement, and approximately 3" deep by means of a
motor grader equipped with a specially designed blade
to allow for the cutting of a reasonably neat line
trench, working with all motor grader wheels on the
pavement. The trenched out material was fed along
the motor grader blade to form a windrow of material
located approximately 4' inside the edge of pavement.
C. The windrow of contaminated material was mechanically
picked up and fed into trailing dump trucks by means
of an Athey Force Feed Loader. This loader operation
forced the contaminated material onto a self-contained
belt conveyor by means of rotating paddles. The
material was conveyed up the belt and dropped into
dump trucks. A specially designed canvas shield
extended from the top of the belt down into the dump
truck bodies to prevent wind drift of the contaminated
material.
D. The Athey Loader was designed to scrape the road surface;
however, very thin amounts of residue was left on the
road surface following the loader operation. This
residue was broomed, by means of a tractor mounted
rotary broom back into the excavated trench. Spraying
was performed by a hydroseeder with especially designed
adjustable outlet nozzles and the broom was covered
with a specially designed canvas cover to minimize
dusting and wind drift.
E. Reshaping of the disturbed shoulder area immediately
followed the removal operation. Depending on the
width and cross slope of the existing shoulder, re-
shaping consisted of either scarifying and reshaping
of the shoulder by a motor grader, or filling in the
excavated area with borrow soil material and shaping
with a motor grader.
F. The shoulder reshaping operation was followed by
erosion control operations consisting of seed bed
preparation, seeding, fertilizing and mulching of all
disturbed areas.
-s-
G. Once the contaminated material was deposited in
dump trucks, the dump bodies were tightly covered
with tarpaulins using elastic tie-downs. Contaminated
material was hauled to the disposal area along rural
routes, avoiding highly congested areas.
Vehicles equipped with mobile radio units routinely
surveyed the haul routes for trucks with mechanical
difficulty. In the event of mechanical trouble,
mechanics were radio dispatched.
The excavated material was hauled to a temporary disposal
site located on the property of w. Monroe and Nellie B. Gardner
located off SR 1512 in Warren County. The disposal site was
prepared by the Department. The site was graded and covered
with a 6" layer of sand. Four layers of polyethylene were placed
on top of the sand. After the material had been deposited
(end dumped) and shaped by a backhoe, it was completely wrapped
with four layers of polyethylene and covered with rubber tires.
A chain link fence was constructed around the perimeter with
locked gate and signs indicating hazardous chemical. The
disposal site was routinely checked by Department personnel
until ultimate removal in 1982. No disturbing incidents occurred.
Accordingly, within two months of identification of the
problem, the Department had stabilized the contaminated material,
and developed and implemented a successful removal and haul
operation.
Department of Transportation employees were also actively
involved in disposal site selection. One geotechnical crew
consisting of three personnel and drill rig were actively involved
in coring and analyzing soil sarnples for approximately twelve
proposed sites.
The Department continued to examine other alternatives
for disposal or stabilization procedures. These efforts were
directed toward reducing cost and minimizing public inconvenience.
During 1979, with assistance from Dr. Jerome Weber, N. C. State
University, the Department conducted several simulated and two
actual demonstrations of de-activating PCB by treatment in-place
with activated carbon, lime and fertilizer. The demonstrations
with contaminated material were carried out along a 1-2 mile
section of NC 210 in Johnston County and SR 1004 in Alamance
County during February and March.
The procedure for this demonstration was as follows:
-6-
(1) Application of lime at the approximate rate of
2 tons per acre, and 10-20-20 fertilizer at the
approximate rate of 500 pounds per acre by the
use of one hydroseeder.
(2) Application of a 10% solution of activated carbon
solution at a rate of approximately 0.5 pound per
square yard over a width of 3 feet. This application
was made by a hydroseeder.
(3) Scarification of the earth shoulder by a chisel plow
to a depth of 5 to 6 inches.
(4) Vertical mixing of the earth shoulder to a depth of
5 to 6 inches by means of a Howard Roto-Vator,
approximately 50 inches wide.
(5) Trimming of the pavement edge by means of a small
tractor mounted blade.
(6) Horizontal mixing of the earth shoulder to a depth of
5 to 6 inches by means of a Lely Turf Shaper,
approximately 60 inches wide. Fescue seed was
mechanically distributed during this mixing operation.
(7) Compaction of the shoulder by rolling with a pneumatic
tired roller.
(8) Spreading of straw mulch over the disturbed areas.
Application was sufficient to cover the exposed earth.
(9) Application of liquid asphalt over the mulch at a
rate of approximately 0.1 gallon per square yard.
These demonstrations indicated that treatment in-place could
effectively stabilize the PCB and reduce the concentration; and,
the operation could be carried out without any adverse affect on
personnel or the surrounding environment. However, the EPA could
not approve the alternative solution.
Department of Transportation personnel in the Planning
and Research Branch, prepared the draft and subsequent final
Environmental Impact Statement.
During the period April 1979-May 1982, Department staff
provided technical expertise, information and assistance to
(1) the Attorney General's Office with respect to the trial of
the Ward's and Burn's, (2) the Department of Crime Control and
Public Safety with ·respect to selection of Consultant and
preparation of plans and specifications for landfill site
construction, and, (3) Fort Bragg personnel with respect to removal
and disposal of contaminated material within the reservation.
-7-
On May 26, 1982, the date of execution of the Agreement
\ between the State of North Carolina and the United States
Environmental Protection Agency, the Department began construction
of a one-half mile segment of landfill access road. The
construction was completed within five days including grading,
drainage, calcium chloride stabilized 8" crushed stone base course
and erosion control.
During July of 1982, the· Department conducted training
courses for each of the six crews designated to be involved in
the removal and haul operation.
The basic training tools were slides and 8mm movies taken
at the time of the demonstration project on NC 58, Warren County,
October 5, 1978. Each of the personnel was carefully instructed
as to procedures, safety considerations and anticipated productivity.
A goal of two shoulder miles per day per crew was established.
It was necessary to transfer some equipment from outlying
areas into the affected areas. This consisted of dump trucks,
hydroseeders and force feed loaders.
All equipment garages within the affected area were advised
that equipment involved in the PCB operation had first priority
with respect to repair.
A chain of command and communication system was established.
The Central Office Maintenance Unit was assigned overall responsibility
for coordinating the work and maintaining communication between
the six crews and the landfill area. The Central Maintenance Unit
was to remain operational each day until the disposition of the
final truck load was determined. A ticketing procedure was
developed such that each truck issued a ticket at the removal
sites could be accounted for at the landfill site.
Each of the six crews conducted a dry-run operation checking
out each piece of equipment and the sequential steps of the
removal operation.
On September 13, 1982, the Department was advised that
removal and haul operations could begin on September 15. In
light of citizen discontent and rumors of civil uprising in
Warren County, it was determined to begin the operation on an
abbreviated schedule working only one crew in Warren County.
On September 15, 1982, the PCB removal and haul operation
began on NC 58 in Warren County. The removal site was deluged
with news media personnel and curiosity seekers. As a result,
the first day removal operation encountered some difficulties
in properly trenching the contaminated areas and clean-up of the
residue following the excavation. These difficulties were later
corrected. A large mass of demonstrating citizens required that
-8-
haul trucks be escorted by the Highway Patrol to the landfill
site. Mass arrests took place. As a result, only 1.0 mile
of shoulder material was removed and hauled to the landfill
site the first day.
On September 16, 1982, all six crews began operations
working in Nash, Johnston, Warren, Harnett, Alamance and Chatham
Counties. In spite of almost daily mass demonstrations at the
landfill access road site, with assistance from the Highway Patrol,
the hauling operations proceeded virtually without delay. The
following is a tabulation of daily production from all crews:
DATE
9/15/82
9/16/82
9/17/82
9/20/82
9/21/82
9/22/82
9/23/82
9/24/82
9/27/82
9/28/82
9/29/82
9/30/82
10/1/82
10/4/82
10/5/82
10/6/82
10/7/82
10/11/82
10/12/82
10/14/82
11/17/82
NO. MILES REMOVED
1.0
9.6
12.85
14.25
15.l
15.7
12.9
12.4
13.4
16.15
18.7
17.5
11. 4
18.0
13.7
14.5
14.6
6.7
3.0
0.1
0.1
241.65
NO. SWB Load
.46
117
180
182
205
201
193
128
246
253
247
244
161
254
268
242
251
78
110
1
12
3,619
NO.TANDEM LOADS TOTAL LOADS
46
138 255
158 338
152 334
175 380
190 391
200 393
186 314
185 431
155 408
211 458
182 426
166 327
186 440
138 406
130 372
158 409
108 186
16 126
2 3
12
2,836 6,455
All personnel involved in the excavation operation were
offered personal protective wear; however, only the broom operator
and dump men at the landfill site were required to wear respirators.
This was as a result of previous air monitoring findings during
the 1978 demonstration project.
One of the major reasons for outstanding productivity was
a complete lack of delays at the landfill site. Two personnel
were assigned to receive haul tickets and document delivery in
a log book. Two men were assigned responsibility for directing
the trucks into a dump position and two were assigned to unfasten
and roll back tarpaulins, while two additional men re-fastened
-9-
the tarps and closed the tailgates after the dumping operation.
The site was furnished fuel and lube facilities with one mechanic
for minor equipment repairs. The site was also furnished with
a state-owned office trailer with emergency base radio facilities.
During maximum productivity the landfill accommodated
in excess of one truck per minute. The landfill operated from
7:00 a.m. until nightfall. However, no loads were hauled on
public roads after dark.
The safety record of the entire operation was marred
the first full day of operation, September 16, 1982, when one
of the Department's employees was backed over by a dump truck
and fatally injured in Harnett County. Aside from this accident,
only one other equipment accident was reported. This involved
a truck veering into a side ditch to avoid a private vehicle
stopped in the travelway. Aside from the fatality no other
personal injuries were reported. One of the men assigned to
direct dumping operations developed a facial skin rash; however,
this was determined not to be attributable to PCB's.
The total operation involved the removal and haul of
approximately 40,000 cubic yards of material derived from
24-30"x3'' strips along approximately 240 shoulder miles. The
average weighted round trip haul distance from the fourteen
county area was approximately 120 miles. This resulted in
approximately 775,000 truck haul miles.
During the excavation process, Department of Transportation
personnel took daily soil samples from the bottom of the trench
for analysis to determine if the PCB had been effectively removed.
If the results indicated concentrations '?50 ppm, the area was
re-excavated for an additional 2-3 inches. This was necessary
for less than 1000 linear feet of the entire project.
Reconstruction of the shoulder areas began immediately
following the excavation operation. However, because of weather
limitations this work was not completed until December, 1982.
Following the completion of the major operations involving
excavation, removal, haul and reconstruction of shoulders, the
Department was also called upon to assist in other activities
as follows:
(1) As a result of extremely heavy rains, prior to
capping operations, the Department hauled in
approximately 50 truck loads of cement fines
from New Hanover County to absorb excess moisture.
The Department also provided a dragline and operator
to manipulate the fines with surface water.
( 2)
( 3)
-10-
The Department also provided a pump, hoses and
personnel for pumping out excess water from the
leachate collection system. This is a continuing
operation provided by the Department.
Very serious erosion problems developed at the
site including wash-outs of cao material and
sedimentation of surrounding areas. Department
personnel performed a complete erosion control
project for the site including light grading, -
placement of matting over the landfill area,
installation of slope drains, construction of
silt detention fences, sumps and re-seeding,
mulching and tacking with liquid asphalt.
In order to settle a dispute with an adjacent
land owner, the Department constructed a 10-12'
wide access drive from the landfill access road
around the west end of the landfill site to the
adjacent property. This included grading, drainage
and 4" compacted crushed stone wearing surface.
While this report does not go into all of the details
of Department of Transportation involvement in the PCB incident,
it does summarize the major involvement.
If any additional information or clarification is needed,
please contact Mr. M. C. Adams, Manager, Maintenance and Equipment
Branch.
MCA/pw