REMEDIATION OF BURIED CHEMICAL WARFARE MATERIEL
Committee on Review of the Conduct of Operations for Remediation of Recovered Chemical Warfare Materiel from Burial Sites
Board on Army Science and Technology
Division on Engineering and Physical Sciences
NATIONAL RESEARCH COUNCIL
OF THE NATIONAL ACADEMIES
THE NATIONAL ACADEMIES PRESS
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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.
This study was supported by Contract No. W911NF-11-C-0213 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.
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Front cover—Upper: Worker in personnel protective equipment lifting a single-round container (U.S. Army Corps of Engineers photo). Left: Degraded military munitions found at Spring Valley, District of Columbia (U.S. Army Corps of Engineers photo). Lower background: German Traktor rocket bases filled with hydrogen mustard, Huntsville (now Redstone) Arsenal, Alabama (U.S. Army photo from 1948).
Back cover—Ton containers used for storage of lewisite, a blister agent and lung irritant, Huntsville (now Redstone) Arsenal, Alabama (U.S. Army photo from 1947).
Copyright 2012 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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COMMITTEE ON REVIEW OF THE CONDUCT OF OPERATIONS FOR REMEDIATION OF RECOVERED CHEMICAL WARFARE MATERIEL FROM BURIAL SITES
RICHARD J. AYEN, Chair, Waste Management, Inc. (retired), Jamestown, Rhode Island
DOUGLAS M. MEDVILLE, Vice Chair, MITRE (retired), Highlands Ranch, Colorado
DWIGHT A. BERANEK, Michael Baker Jr., Inc. (retired), Bradenton, Florida
EDWARD L. CUSSLER, University of Minnesota, Minneapolis
GILBERT F. DECKER, Walt Disney Imagineering (retired), Los Gatos, California
CLAIR F. GILL, Smithsonian Institution (retired), McLean, Virginia
DEREK GUEST, Derek Guest Environmental and Sustainability Solutions, Pittsford, New York
TODD A. KIMMELL, Argonne National Laboratory, Washington, D.C. office
JOANN SLAMA LIGHTY, University of Utah, Salt Lake City
JAMES P. PASTORICK, UXO Pro, Inc., Alexandria, Virginia
JEAN D. REED, Independent Consultant, Arlington, Virginia
WILLIAM R. RHYNE, ABS Consulting, Inc. (retired), Kingston, Tennessee
TIFFANY N. THOMAS, Tetra Tech, Inc., Paradise Valley, Arizona
WILLIAM J. WALSH, Pepper Hamilton LLP, Washington, D.C.
LAWRENCE J. WASHINGTON, Dow Chemical Company (retired), Paradise Valley, Arizona
Staff
NANCY T. SCHULTE, Study Director
HARRISON T. PANNELLA, Senior Program Officer
ANN LARROW, Research Assistant
JOE PALMER, Senior Program/Project Assistant
BOARD ON ARMY SCIENCE AND TECHNOLOGY
ALAN H. EPSTEIN, Chair, Pratt & Whitney, East Hartford, Connecticut
DAVID M. MADDOX, Vice Chair, Independent Consultant, Arlington, Virginia
DUANE ADAMS, Independent Consultant, Carnegie Mellon University (retired), Arlington, Virginia
ILESANMI ADESIDA, University of Illinois at Urbana-Champaign
MARY E. BOYCE, Massachusetts Institute of Technology, Cambridge
EDWARD C. BRADY, Strategic Perspectives, Inc., Fort Lauderdale, Florida
W. PETER CHERRY, Independent Consultant, Ann Arbor, Michigan
EARL H. DOWELL, Duke University, Durham, North Carolina
JULIA D. ERDLEY, Pennsylvania State University, State College
LESTER A. FOSTER, Electronic Warfare Associates, Herndon, Virginia
JAMES A. FREEBERSYSER, BBN Technology, St. Louis Park, Minnesota
RONALD P. FUCHS, Independent Consultant, Seattle, Washington
W. HARVEY GRAY, Independent Consultant, Oak Ridge, Tennessee
JOHN J. HAMMOND, Lockheed Martin Corporation (retired), Fairfax, Virginia
RANDALL W. HILL, JR., University of Southern California Institute for Creative Technologies, Playa Vista
JOHN W. HUTCHINSON, Harvard University, Cambridge, Massachusetts
MARY JANE IRWIN, Pennsylvania State University, University Park
ROBIN L. KEESEE, Independent Consultant, Fairfax, Virginia
ELLIOT D. KIEFF, Channing Laboratory, Harvard University, Boston, Massachusetts
WILLIAM L. MELVIN, Georgia Tech Research Institute, Smyrna
ROBIN MURPHY, Texas A&M University, College Station
SCOTT PARAZYNSKI, Methodist Hospital Research Institute, Houston, Texas
RICHARD R. PAUL, Independent Consultant, Bellevue, Washington
JEAN D. REED, Independent Consultant, Arlington, Virginia
LEON E. SALOMON, Independent Consultant, Gulfport, Florida
JONATHAN M. SMITH, University of Pennsylvania, Philadelphia
MARK J.T. SMITH, Purdue University, West Lafayette, Indiana
MICHAEL A. STROSCIO, University of Illinois, Chicago
DAVID A. TIRRELL, California Institute of Technology, Pasadena
JOSEPH YAKOVAC, President, JVM LLC, Hampton, Virginia
Staff
BRUCE A. BRAUN, Director
CHRIS JONES, Financial Manager
DEANNA P. SPARGER, Program Administrative Coordinator
Preface
The Committee on Review of the Conduct of Operations for Remediation of Recovered Chemical Warfare Materiel from Burial Sites was appointed by the National Research Council in response to a request by Conrad F. Whyne, Director of the Chemical Materials Agency (CMA). The study dealt primarily with the activities of the Non-Stockpile Chemical Materiel Project (NSCMP), which falls organizationally under the CMA and is headed by Laurence G. Gottschalk, Project Manager for Non-Stockpile Chemical Materiel. Mr. Whyne, Mr. Gottschalk, and their staffs heavily supported the activities of the committee.
This report is concerned with the investigation and, if required, the remediation of sites that contain buried chemical materiel. About 250 such sites, located in 40 states and territories of the United States, are thought to exist. Remediation efforts are currently under way in the Spring Valley area of Washington, D.C., and at the Camp Sibert site in Alabama. A substantially larger effort is anticipated at the Redstone Arsenal in Alabama.
The NSCMP plays a major role in remediation efforts. It has project management responsibilities for the assessment and disposal of all recovered chemical warfare materiel (RCWM) and for this purpose identifies assessment and disposal costs, disperses funds for assessment and disposal, prepares project schedules and other required documents, and obtains all approvals needed for the destruction of the RCWM. The NSCMP owns several explosive destruction systems (EDSs), used for destruction of RCWM, and arranges for use of commercial explosive destruction technologies for RCWM when needed.
One focus of the committee was investigating the technologies available to the NSCMP for investigating a burial site that is thought to contain buried chemical weapons, assessing any chemical materiel recovered, and destroying the RCWM. Deficiencies in the available technologies and research and development targeted at those deficiencies are identified.
The committee’s second focus was to investigate the roles and responsibilities of the numerous organizations and offices within the Department of Defense and the Department of the Army that are involved with buried chemical materiel issues. In carrying out its assigned role, the NSCMP coordinated with these agencies and offices to set priorities, obtain funding, and carry out assessment and destruction activities. It also recommended changes to the relationships between some of these organizations and offices.
The committee held six meetings. The first was at the Chemical Demilitarization Training Facility at the Aberdeen Proving Ground in Edgewood, Maryland. The second meeting, held at the Keck Center in Washington, D.C., featured a visit to the nearby Spring Valley chemical weapon remediation site. The third, fourth, and sixth meetings were also held at the Keck Center, and the fifth was held at the Beckman Center in Irvine, California. A total of 38 presentations were received from the following entities:
• Twenty agencies and offices within the Department of Defense;
• Regulatory officials from the District of Columbia, the states of Alabama and Utah, and U.S. Environmental Protection Agency regions 4 and 8;
• The Spring Valley Community Restoration Advisory Board;
• Vendors for the commercially available explosive destruction technologies; and
• A member of the staff of the Senate Armed Services Committee.
The presentations are listed in Appendix B.
This report was prepared under the auspices of the Board on Army Science and Technology (BAST) of the National Research Council. The committee offers its thanks to Bruce A. Braun, the Director of BAST, and to Nancy T. Schulte, the Study Director, for their very effective support in the
conduct of this study. It also offers its thanks to the BAST staff members who capably assisted in information-gathering activities, meeting and trip arrangements, and the production of this report; they include Ann Larrow, Research Assistant, Joe Palmer, Senior Program/Project Assistant, and Harrison T. Pannella, Senior Program Officer.
Richard J. Ayen, Chair
Committee on Review of the Conduct of Operations for Remediation of Recovered Chemical Warfare Materiel from Burial Sites
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:
Fred S. Celec, Institute for Defense Analyses,
Martin Gray, State of Utah Department of Environmental Quality,
Henry J. Hatch, NAE, U.S. Army Corps of Engineers (retired),
John R. Howell, NAE, University of Texas at Austin,
Michael F. McGrath, ANSER (Analytic Services Inc.),
Leonard M. Siegel, Center for Public Environmental Oversight, and
Michael V. Tumulty, P.E., STV Incorporated.
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 Elisabeth M. Drake, NAE. Appointed by the National Research Council, 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.
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Contents
The Nature of the Recovered CWM Problem
Non-Stockpile Chemical Warfare Material in the United States
Addressing the Statement of Task
2 CURRENT POLICY, FUNDING, ORGANIZATION, AND MANAGEMENT PRACTICES
Historical and Organizational Overview (First World War-2007)
Chronology and Context of Directives and Instructions
Chemical Agent and Munitions Destruction, Defense (CAMD,D)
Defense Environmental Restoration Program (DERP)
Operations and Management (O&M)
Office of the Secretary of the Army
Office of the Secretary of the Navy
Office of the Secretary of the Air Force
3 TREATY AND REGULATORY FRAMEWORK AND PUBLIC INVOLVEMENT CONSIDERATIONS
Treaty and Regulatory Requirements That Determine Scope and Cost of Cleanup
Historic Examples of Cleanup of Buried CWM
The Need for Flexibility in CWM Remediation
Clean Islands in the Middle of Contaminated Operational Ranges
The Problem Posed by RCRA Storage Requirements
Regulatory Approval and Permitting of the EDS and EDTs
Recycling of Treated Munition Bodies, Fragments, and Other Metals
Extending the Pine Bluff Model
The Importance of Public Involvement
4 TECHNOLOGIES FOR CLEANUP OF CWM SITES
Air Monitoring During Excavation, Interim Storage, and Destruction
Excavation Equipment and Techniques
Conventional Excavation Equipment
Packaging, Transportation, Storage (On-Site and Intrastate)
CWM Packaging and Transportation
Single Chemical Agent Identification Set Access and Neutralization System
Spectroscopic and X-Ray Assessment
Digital Radiography and Computed Tomography
Portable Isotopic Neutron Spectroscopy
Mobile Munitions Assessment System
Transportable Detonation Chamber
Dynasafe Static Detonation Chamber
Detonation of Ammunition in a Vacuum Integrated Chamber
Secondary Waste Storage and Disposal
5 REDSTONE ARSENAL: A CASE STUDY
The Challenges at Redstone Arsenal
Chemical Warfare Materiel Inventory
Processing of Unusual Items at Redstone Arsenal
Technical and Operational Issues
Match of Technology Needs with NSCMP Capabilities
Assessment of Intact Munitions
Destruction of RCWM-Containing Energetics
Processing of Nonenergetic RCWM
CERCLA Actions at Redstone Arsenal
RCRA Action at Redstone Arsenal
Maximizing Regulatory Flexibility
Corrective Action Management Units, Temporary Units, and Area of Contamination Concept
6 THE PATH FORWARD: RECOMMENDATIONS FOR TARGETED RESEARCH AND DEVELOPMENT
Technologies With No Targeted R&D Recommendations
CWM Packaging and Transportation
Assessment of Recovered Munitions
Destruction of Contaminated RCWM
Destruction of RCWM That Contains Energetics
Processing of Nonenergetic RCWM
7 THE PATH FORWARD: RECOMMENDATIONS FOR POLICY, FUNDING, AND ORGANIZATION
Chronology, Through the Present
RCWM Program Implementation Plan of 2007
The Army’s RCWM Implementation Plan of 2010
Army Role and Responsibilities
RCWM Program Funding Requirements
Committee Findings and Recommendations on the Organization of RCWM Activities
APPENDIXES
A Biographical Sketches of Committee Members
B Committee Meetings and Data-Gathering Activities
D Review of Regulatory Programs
E Management Practices for U.S. Army Planned RCWM Recovery and Emergency Response
Tables and Figures
TABLES
1-1 Inventory of Army RCWM Sites
4-2 Comparison of Destruction Technologies
5-1 Partial List of Chemical Items Produced at RSA Ordnance Plant During the Second World War
D-1 Number of Munitions Response Sites
FIGURES
S-1 Current organization for policy, oversight, and funding for RCWM
S-2 RCWM Army execution structure
S-3 RCWM program future funding
S-4 Army RCWM organization and authority recommended by committee
1-1 NSCMP mission area 4 past and projected schedule
1-2 Past and future mission areas 1-4 activities; locations and munitions destroyed
2-1 Current organization for policy, oversight, and funding for RCWM
2-5 Current organization for execution for RCWM
2-6 Organizational chart for USD(AT&L)
2-7 Army environmental organizational structure
2-8 Office of the Assistant Chief of Staff for Installation Management
2-9 Map of U.S. Army Installation Management Command garrisons
2-10 U.S. Army Environmental Command
2-11 NSCMP organizational chart
2-12 Typical chemical warfare materiel project
3-1 Comparable CERCLA and RCRA remedial action processes
4-3 Mobile munitions assessment system
4-4 The EDS-2 vessel on its trailer
4-5 Process flow in the large mobile transportable detonation chamber TC-60
4-7 DAVINCH three-stage destruction mechanism
5-1 Map of Redstone Arsenal, Alabama
5-2 German Traktor rocket pit at Huntsville (now Redstone) Arsenal, Alabama (photo from 1948)
7-1 Current organization for policy, oversight, and funding for RCWM
7-2 RCWM Army execution structure
7-3 RCWM program future funding
7-4 Army RCWM organization and authority recommended by committee
E-1 Management practices for U.S. Army planned RCWM recovery at burial locations
Acronyms and Abbreviations
ACAT I | Acquisition Category I |
ACSIM | Assistant Chief of Staff, Installation Management (U.S. Army) |
ACWA | Assembled Chemical Weapons Alternatives |
ADEM | Alabama Department of Environmental Management |
AEC | U.S. Army Environmental Command |
AEL | airborne exposure limit |
AFCEE | Air Force Center for Engineering and Environment |
AMC | U.S. Army Materiel Command |
ANCDF | Anniston Chemical Agent Disposal Facility (Alabama) |
ARAR | applicable, relevant, and appropriate requirement |
ASA(ALT) | Assistant Secretary of the Army for Acquisition, Logistics and Technology |
ASA(IE&E) | Assistant Secretary of the Army (Installations, Energy and Environment |
ASA(ILE) | Assistant Secretary of the Army for Installation, Logistics and Environment |
ASA(RDA) | Assistant Secretary of the Army for Research, Development and Acquisition |
ASD(NCB) | Assistant Secretary of Defense (Nuclear, Chemical, and Biological Defense Programs) |
BES | budget execution submission |
BRAC | base realignment and closure |
CAIRA | chemical accident or incident response and assistance |
CAIS | chemical agent identification set(s) |
CAM | Chemical Agent Monitor |
CAMD,D | Chemical Agent and Munitions Disposal, Defense |
CAMU | corrective action management unit |
CARA | Chemical Biological Radiological Nuclear (Enhanced) Analysis and Remediation Activity |
CBARR | Chemical Biological Applications and Risk Reduction |
CBRNE | chemical, biological, radiological, nuclear and high yield explosives |
CERCLA | Comprehensive Environmental Response, Compensation and Liability Act |
CG | phosgene |
CMA | Chemical Materials Agency |
CNB | CN tear gas mixed with carbon tetrachloride and benzene |
CNO | Chief of Naval Operations |
CNS | CN tear gas mixed with chloropicrin and chloroform |
CONUS | continental United States |
CSA | Chief of Staff of the Army |
CSDP | chemical stockpile disposal program |
CSE | Chemical Stockpile Elimination (project) |
CSEPP | Chemical Stockpile Emergency Preparedness Project |
CW | chemical weapons |
CWC | Chemical Weapons Convention |
CWM | chemical warfare materiel |
DA | diphenylchloroarsine (Clark I) |
DAAMS | Depot Area Air Monitoring System |
DAB | Defense Acquisition Board |
DASA(ECW) | Deputy Assistant Secretary of the Army for Elimination of Chemical Weapons |
DASA(ESOH) | Deputy Assistant Secretary of the Army (Environment, Safety and Occupational Health) |
DAVINCH | detonation of ammunition in a vacuum integrated chamber |
DC | diphenylcyanoarsine (Clark II) |
DDESB | Department of Defense Explosives Safety Board |
DERP | Defense Environmental Restoration Program |
DM | adamsite |
DMM | discarded military munitions |
DOD | Department of Defense |
DOT | Department of Transportation |
DRCT | digital radiography and computed tomography |
DUSD(I&E) | Deputy Under Secretary of Defense for Installations and Environment |
EA | executive agent |
ECBC | Edgewood Chemical Biological Center |
EDS | Explosive Destruction System |
EDS-1 | EDS Phase 1 |
EDS-2 | EDS Phase 2 |
EDS-3 | EDS Phase 3 |
EDT | explosive destruction technology |
EOD | explosive ordnance disposal |
EPA | Environmental Protection Agency |
EPCRA | Emergency Planning and Community Right-to-Know Act |
ER,A | Environmental Response, Army |
FFA | federal facility agreement |
FORSCOM | Forces Command (U.S. Army) |
FSS | fragment suppression system |
FTO | flameless thermal oxidizer |
FUDS | formerly used defense site(s) |
GA | tabun (a nerve agent) |
GB | sarin (a nerve agent) |
GD | soman (a nerve agent) |
H | sulfur mustard |
HD | sulfur mustard (distilled) |
HEPA | high-efficiency particulate air (filter) |
HN | nitrogen mustard |
HN-3 | nitrogen mustard |
HNC | Huntsville Engineering Center |
HS | sulfur mustard |
HSWA | Hazardous and Solid Waste Amendments |
HT | sulfur mustard, T-mustard combination, also British mustard |
IHF | interim holding facility |
IMCOM | Installation Management Command (U.S. Army) |
INST CDR | installation commander |
IO | integrating office |
IPT | integrated product team |
IRP | Installation Restoration Program |
ITRC | Interstate Technology Regulatory Council |
L | lewisite or liter |
LDR | land disposal restrictions |
LITANS | large item transportable access and neutralization system |
MARB | Materiel Assessment Review Board |
MC | munitions constituents |
MDAP | major defense acquisition program(s) |
MEA | monoethanolamine |
MEC | munitions and explosives of concern |
MEL | mobile expeditionary laboratory (CARA) |
MIL-SPEC | military specification |
MINICAMS | Miniature Chemical Agent Monitoring System(s) |
MMAS | mobile munitions assessment system |
MMRP | Military Munitions Response Program |
MR | munitions rule |
MRC | multiple round container |
MRP | munitions response program |
MRS | munitions response site |
MRSPP | Munitions Response Site Prioritization Protocol |
MSU | munitions storage unit |
NAVFAC | Naval Facilities Engineering Command |
NCP | National Oil and Hazardous Substances Pollution Contingency Plan |
NDAA | National Defense Authorization Act |
NEW | net explosive weight |
NPL | National Priorities List |
NRC | National Research Council |
NSCM | non-stockpile chemical materiel |
NSCMP | Non-Stockpile Chemical Materiel Project |
NSCWM | non-stockpile chemical warfare materiel |
OB/OD | open burn/open detonation |
OCONUS | outside the continental United States |
OIPT | overarching integrated product team |
O&M | operations and maintenance |
OMA | Operations and Maintenance, Army |
OP-FTIR | Open-Path Fourier Transform Infrared Spectrometry air monitoring |
OSD | office of the Secretary of Defense |
PIG | package in-transit gas (container) |
PINS | portable isotopic neutron spectroscopy |
PMCD | program manager for chemical demilitarization |
PMNSCM | Project Manager for Non-Stockpile Chemical Materiel |
POM | Program Objective Memorandum |
PPBES | planning, programming, budgeting and execution |
PPE | personal protective equipment |
RCRA | Resource Conservation and Recovery Act |
RCWM | recovered chemical warfare materiel |
RDECOM | Research, Development, and Engineering Command |
RDT&E | research, development, test, and evaluation |
RFI | RCRA Facility Investigation |
RI/FS | remedial investigation/feasibility study |
ROD | record of decision |
RRS | remediation response section (CARA) |
RSA | Redstone Arsenal |
SCANS | Single Chemical agent identification set Access and Neutralization System |
SDC | static detonation chamber |
SES | Senior Executive Service |
SPP | site prioritization protocol |
SPT CMD | Support Command |
SRC | single round container |
STEL | short-term exposure limit |
SWMU | solid waste management unit |
TDC | transportable detonation chamber |
TNT | trinitrotoluene |
TOCDF | Tooele Chemical Agent Disposal Facility (Utah) |
TPP | Technical Project Planning |
TRAM | throughput, reliability, availability, and maintainability |
TSDF | treatment, storage, and disposal facility |
TU | temporary unit |
UMSC | universal munitions storage container |
USACE | U.S. Army Corps of Engineers |
USACMDA | U.S. Army Chemical Materiel Destruction Agency |
USAEC | U.S. Army Environmental Command |
USAESCH | U.S. Army Engineering Support Center, Huntsville |
USATCES | U.S. Army Technical Center for Explosives Safety |
USD(A&T) | Under Secretary of Defense for Acquisition and Technology (renamed USD(AT&L)) |
USD(AT&L) | Under Secretary of Defense for Acquisition, Technology and Logistics [formerly USD(A&T)] |
USD(Comptroller) | Under Secretary of Defense Comptroller |
USD(I&E) | Under Secretary of Defense for Installations and Environment |
UTS | universal treatment standards |
UXO | unexploded ordnance |
VSL | vapor screening level |
WP | white phosphorus |
3X | level of agent decontamination (suitable for transport for further processing) (obsolete) |
5X | level of agent decontamination (suitable for release for unrestricted use) (obsolete) |