EPA

United States
Environmental Protection
Agency
Office of Public Affairs
Region 5
77 West Jackson Blvd.
Chicago, IL 60604
Illinois Indiana
Michigan Minnesota
Ohio Wisconsin
;f 000013
EPA Region 5 Records Ctr.
Public Comment Period
235637
U.S. EPA wi l l accept wri tten comments on the Proposed
Plan duri ng a 30-day publ i c comment period from
November 18 through December 18, 1996.
Public Meeting
U.S. EPA wi l l hold a publ i c meeting to explain the
Proposed Plan and the other cleanup alternatives consid-
ered for the site. Oral and written comments will be
accepted at the meeting.
e:
Time:
Place:
Tuesday, November 19, 1996
7 p.m.
Madison Muni ci pal Bui l di ng
RoomLLl l O
215 Martin Luther King, Jr. Boulevard
Madison, Wisconsin
PROPOSED PLAN
Madison Metropolitan Sewerage
District Superfund Site
Blooming Grove, Wisconsin
November 1996
Introduction
This Proposed Plan identifies the U.S.
Environmental Protection Agency (U.S. EPA)
cleanup recommendation for the Madison
Metropolitan Sewerage District Superfund site
(Madison Metro site) in Blooming Grove,
Wisconsin (Figure 1). U.S. EPA is proposing
Remedial Alternative 4 (RA-4), which would
include constructing dikes, consolidating con-
taminated sludge, and covering the sludge
with an approved cap. It would also include
monitoring and maintenance activities and
future deed restrictions. U.S. EPA's recom-
mendation is based on information collected
during the site remedial investigation/feasibil-
ity study (RI/FS) and a risk assessment,
whi ch evaluated potential health risks posed
by site contami nati on
1
.
Public i nput on the alternatives and the infor-
mati on that supports these al ternati ves is an
i mportant contri buti on to the cl eanup remedy
sel ecti on process. Based on new i nformati on
or publ i c comment. U.S. EPA may modi fy
the recommended al ternati ve or select anoth-
1
Section 117(a) of the Comprehensive Environmental Response. Compensation, ana Liao-i ty Aci iCERCLA) requires publication of a nonce and a
Proposed Plan for possible site remediation. Tne Proposed Plan must also be made available to t^e public for comment Tnis Proposed Plan is a summary
of information included in the Feasibility Study Report (September 1996) and other documents .n the Aammi st r at i ve Record for the site Please consult the
Feasibility Study Report along w th the Admi ni strati ve Reco
r
? for the site, for more detailed rfo
r
rra: on
-_l / Treatment
| | ^ s . Plant Facilities
er alternative presented in this
plan and/or the FS Report. The
public is encouraged to review
and comment on all technolo-
gies and alternatives considered
for the Madison Metro site.
Site Background
The Madison Metro site con-
sists of two lagoons that cover
approximately 140 acres. The
lagoons were constructed in the
1940s and 1960s to provide
storage for sewerage sludge
generated at the plant. Nine
Springs Creek flows along the
south and east site borders.
Several drainage ditches run
along other site borders and
empty into the creek.
The sludge lagoon system at
the site operated wi thout prob-
lems unti l April 1970, when
part of the Lagoon 2 dike col-
lapsed, releasing about 85 mi l -
lion gallons of the lagoon's
contents to an adjacent ditch.
The District subsequently
repaired the dike.
Nati onwi de concern arose
about the potenti al adverse
envi ronmental and heal th
effects of pol ychl ori nated
bi phenyl s (PCBs). whi ch had
been found i n muni ci pal sl udge
i n other communi ti es. Thi s
concern l ed the Sewerage
Di stri ct to begi n vol unt ar i l y
anal v/ i ni i i ts .sl udge for PCBs.
In late 1982, during a routine
analysis of lagoon sludges, the
District detected PCB concen-
trations above 50 parts per mil-
lion (ppm), the legal limit
allowed by the federal Toxic
Substances Control Act
(TSCA).
Because the District sold
processed sludge as a fertilizer
and soil conditioner through its
"Metrogro" program, sludges
containing PCB concentrations
above 50 ppm were separated
to prevent their use in the pro-
gram. Farmers conti nue to use
Metrogro sludge as a fertilizer,
but all sludge used is within the
regulatory limit (below 50
ppm) for PCB content.
Hazard assessments conducted
by U.S. EPA in 1983 and 1986
determined lagoon sludges
posed a potential threat to pub-
lic health and the envi ronment.
In 1990, the site was placed on
U.S. EPA's Nati onal Priorities
List (NPL), a roster of haz-
ardous waste si tes el i gi bl e for
cl eanup under the federal
Superfund program.
In January 1992, U.S. EPA and
the Di stri ct si gned an agree-
ment, cal l ed a Consent Order,
r equi r i ng the Di stri ct to com-
pl ete a st ud> def i ni ng the
extent of contami nati on ( an RI )
for the si te, f ol l owed bv a fea-
sibility study (FS) to evaluate
possible cleanup options.
After the District completed
the first round of RI sampling,
U.S. EPA requested additional
sampling and monitoring to
more ful l y define site condi-
tions. These two separate sam-
pling events are referred to as
Phase I and Phase II of the RI.
All U.S. EPA comments and
data produced from Phase I and
Phase II were incorporated into
the fi nal RI report, whi ch was
submitted to U.S. EPA in
September 1996.
The RI indicated that PCBs
were present in Lagoons 1 and
2 at concentrations ranging
from 1.1 to 170 ppm. The
hi ghest levels were detected in
the northwest corner of Lagoon
2, where the District had
attempted to segregate sludges
wi th the hi ghest PCB concen-
trati ons. Low levels of vol ati l e
organic compounds (VOCs),
one semi vol ati l e organic com-
pound (SVOC), pesti ci des, and
several metal s were al so
detected i n sampl es col l ected
from Lagoons 1 and 2.
The RI also provi ded the fol -
l owi ng i nformati on:
PCBs were detected i n two
ot fi ve peat sampl es from
the bottom of the l agoons,
beneath the sl udge.
Relatively low levels of
VOCs, one SVOC, pesti-
cides, and several metals
were also detected in peat
samples.
PCBs, one VOC, and sever-
al metals were detected at
low levels in all three
lagoon sludge samples.
Low levels of one VOC and
several metals were detected
in ground-water samples.
Low levels of PCBs were
detected in stream sediment
samples.
Following the RI, the District
conducted a risk assessment.
The risk assessment consisted
of a human health evaluation
and an ecological assessment,
which were used to assess rea-
sonably anticipated future site
Conditions wi th regard to
r. _ ian health and ecological
risks. The District submitted
the final risk assessment report
to U.S. EPA in September
1996.
The FS focused on the portions
of the site contai ni ng sludge
wi th PCB concentrations at or
greater than 50 ppm. Duri ng
the FS. 10 cl eanup al ternati ves
for thi s sl udge were devel oped
and eval uated, usi ng the ni ne
eval uati on cri teri a l i sted i n
Figure 2. U.S. EPA has deter-
mined that other sludges, with
PCB concentrations below 50
ppm, can be safely managed
through a land application pro-
gram.
Summary of Site Risks
U.S. EPA is concerned about
elevated concentrations of
PCBs at the Madison Metro
site because long-term expo-
sure to PCBs at those concen-
trations could have adverse
effects on human health and
the environment. During the
RI/FS, U.S. EPA determined
that sludge has been adequately
contained in the lagoon system
and does not pose risks to
human health; however, con-
servative assumptions indicate
that exposure to sludge con-
tai ni ng PCB concentrations
above 50 ppm could pose an
ecological risk to area wi l dl i fe.
PCBs can only have adverse
effects through exposure, such
as touchi ng contaminated
sludge or soil, i ngesti ng conta-
mi nated particles, or i nhal i ng
organic vapors. Al ternati ves
developed for site cl eanup
i ncl ude measures to reduce or
el i mi nat e the possi bi l i t y of
exposure to site contami nants.
Summary of Alternatives
As part of the RI/FS, U.S. EPA
identified and evaluated alter-
natives that could be used to
address threats or potential
threats posed by the site. U.S.
EPA considered 10 cleanup
action alternatives for the site:
No Action (RA-1)
RA-1 i nvol ves no active
cleanup or long-term manage-
ment at the site. A No-Action
alternative is required by law to
give U.S. EPA a basis for com-
parison.
Estimated Cost: $0
Institutional Controls (RA-2)
RA-2 involves dike construc-
tion to isolate and consolidate
sludge containing PCB concen-
trati ons at or above 50 ppm.
This would facilitate future
removal and land appl i cati on
activities for sludges contain-
ing concentrations below 50
ppm. This alternative also
i nvol ves the conti nuati on of
current routine activities,
i ncl udi ng sl udge management,
mai ntenance of exi sti ng, natur-
al vegetati ve cover, di ke moni -
toring and mai ntenance,
ground-water moni tori ng, and
deed restri cti ons on future site
use.
Esti mated Cost: S425.000
Beneficial Reuse (RA-3)
RA-3 involves a special PCB-
handling approach to remove
sludge wi th PCB concentrations
at or above 50 ppm and recycle
the sludge for agricultural use.
Estimated Cost: $8.8 Million
In-Place Capping (RA-4)
RA-4 involves dike construc-
tion to isolate and consolidate
sludge containing PCB concen-
trations at or above 50 ppm.
Lagoon areas not already cov-
ered by natural vegetation
would then be covered wi th soil
and seeded. This alternative
also includes monitoring and
maintenance activities and
future deed restrictions. U.S.
EPA recommends RA-4
because it provides the best bal-
ance wi th respect to the nine
evaluation criteria (see Figure
2).
Estimated Cost: $1.8 Mi l l i on
In-Situ Solidification/
Stabilization (RA-5)
RA-5 i nvol ves di ke construc-
ti on to isolate and consolidate
sludge contai ni ng PCB concen-
trati ons at or above 50 ppm.
RA-5 also i nvol ves i n-pl ace
sl udge treatment and conti nua-
ti on of i nst i t ut i onal control s as
descri bed i n RA-2.
Esti mated Cost: S23-S28
Mi l l i on
Ex-Situ Biological Treatment
- Reuse Residue (RA-6[a])
RA-6a i nvol ves removal and
biological treatment of lagoon
sludge with PCB concentrations
at or above 50 ppm. Treated
sludge would be recycled for
agricultural use.
Estimated Cost: $44-$66
Mi l l i on
Ex-Situ Biological Treatment
- Landfill Residue (RA-6[b])
RA-6b is similar to RA-6a,
except treated sludge would be
disposed of in a Wisconsin solid
waste l andfi l l rather than be
recycled.
Estimated Cost: $64-$89
Million
Ex-Situ Chemical Treatment -
Landfill Residue (RA-7)
RA-7 involves removal and
chemical treatment of lagoon
sludge with PCB concentrations
at or above 50 ppm. Treated
sludge woul d be disposed of in
a solid waste l andfi l l .
Estimated Cost: $58-$73
Mi l l i on
TSCA Landfi l l Disposal ( RA-
8)
RA-8 i nvol ves removal and sta-
bi l i zati on of sl udge contai ni ng
PCB concentrati ons at or above
50 ppm. fol l owed by di sposal of
the stabi l i zed sl udge i n a
TSCA-por mi t t ed l a n df i l l .
Est i mat ed Cost SI 60-5168
Mi l l i on
4
Wisconsin Solid Waste
Landfill Disposal (RA-9)
RA-9 involves removal and sta-
bi l i zati on of sludge containing
PCB concentrations at or above
50 ppm, followed by disposal
of the stabilized sludge in a
Wisconsin solid waste landfill.
Estimated Cost: $40-$53
Million
U.S. EPA
Recommendation
U.S. EPA recommends In-
Place Capping (RA-4).
RA-4 would protect human
health and the environment,
be easy to implement, com-
ply with state and federal
regulations, reduce move-
ment of contaminants, and
be cost effective.
The Next Step
Before selecting a final cl eanup
pl an, U.S. EPA w i l l consi der
comments recei ved duri ng a
30-day publ i c comment period
from November 18 through
December 18, 1996. The
cl eanup pl an wi l l be described
i n a f i nal deci si on document,
cal l ed a record of deci si on,
w hi ch w i l l be avai l abl e f or
publ i c revi ew i n earl y 1997.
Public Comment Sheet
Your i nput on U.S. EPA's Proposed Plan for the Madison Metro Superfund site is important. Public comments
assist U.S. EPA in selecting its final cleanup plan.
You may use the space below to write your comments about U.S. EPA's Proposed Plan. Comments must be
postmarked by December 18, 1996. If you have questions about the comment period, contact Susan Pastor at
312-353-1325 or 1-800-621-8431. Those with electronic communications capabilities may submit their com-
ments to U.S. EPA via Internet to: pastor.susan@epamail.epa.gov
s.
o
Name:
Address:
Ci ty:
State: Zi p: _
Madison Metro Superfund Site
Public Comment Sheet
Fold on Dashed Lines, Staple. Stamp, and Mail
Name_
Address^
City
Zi p
Stal e
Place
Stamp
Here
Susan Pastor ( P- 19 J )
Communi ty I nvol vement Coordi nator
Offi ce of Publ i c Affai rs
U. S. EPA. Regi on 5
77 West Jackson Boul evar d
Chi cago. 1L 60604
Evaluation Table
Figure 2
Evaluation Criteria
Remedial Remedial Remedial Remedial Remedial Remedial Remedial Remedial Remedial Remedial
Alternative Alternative Alternative Alternative Alternative Alternative Alternative Alternative Alternative Alternative
1 2 3 4 5 6(a) b ) 7 8 9
No Action
1. Overal l Protection of
Health & Envi ronment
2. Compliance with ARARs
3 Long Term Effecti veness
and Permanence
4. Reduction of Towcity. Mobi hty.
or Volume through Treatment
5. Short-Term Effectiveness
6. Impl cmentabi l i ty
7. Cost
8. Support Agency Acceptance
9. Communi ty Acceptance
D
D
D D
NA
$0 $425,000
$8.8 $1.8 $23-28 $44-66 S64-89 $58-73 $160-168 $40-53
Mi l l i on Million Mi l l i on Mi l l i on Mi l l i on Mi l l i on Mi l l i on Mi l l i on
The Wisconsin Department of Natural Resources accepts U.S. EPA's recommended alternative
Communi ty acceptance of the recommended alternative wi l l be evaluated after the publ i c comment period.
|- Ful l y meets criteria **' Partially meets criteria | |- Does not meet criteria NA-Not Appl i cabl e
Evaluation Criteria
U.S. EPA used the fol l owi ng nine criteria to evaluate each alter-
native. The Evaluation Table (Figure 2) compares the alterna-
tives to these criteria.
Overall Protection of Human Health and the
'Environment determines whether an alternative eliminates,
reduces, or controls threats to public health and the environment
through institutional controls, engineering controls, or treat-
ment.
2. Compliance with Applicable or Relevant and
Appropriate Requirements (ARARs) eval uates whether the
al ternati ve meets federal and state envi ronmental statutes, regu-
l ati ons, and other requi rements that pertain to the site or
whether a wai ver is justified.
3. Long-Term Effectiveness and Permanence considers the
abi l i ty of an alternative to mai ntai n protection of human health
and the envi ronment over ti me and the r el i abi l i t y of such pro-
tection.
4. Reduction of Contami nant Toxicity, Mobi l i ty, or Volume
Through Treatment eval uat es an al t er n at i v e' s use of tr eatment
to reduce the harmful ef f ects of pr i nci pal contami nants, t hei r
abi l i ty to move i n the envi ronment, and the amount of contami-
nati on present.
5. Short-Term Effectiveness considers the length of time need-
ed to implement an alternative and the risks the alternative poses
to workers, residents, and the envi ronment duri ng i mpl ementa-
tion.
6. Implementability considers the technical and administrative
feasibility of i mpl ementi ng the alternative, such as relative avail-
ability of goods and services.
7. Cost includes estimated capital and operation and mainte-
nance costs, as well as present worth costs. Present worth cost is
the total cost of an al ternati ve over ti me in terms of today' s dol-
lars.
8. State Acceptance considers whether the state agrees wi th
U.S. EPA' s anal yses and recommendati ons of the RI/FS and the
Proposed Pl an.
9. Communi ty Acceptance wi l l be addressed in the ROD.
Communi ty acceptance of the recommended cl eanup acti on wi l l
be eval uat ed af t er the publ i c comment period and before the
record oi deci si on i s i ssued. Publ i c comments and U. S. EPA
responses to those comments w i l l be presented i n the responsi ve-
nes-, s u mmar x . w h i ch w i l l he attached to the record of deci si on.
Additional Information
If you have questions about the information in this fact sheet or would like additional information about the
Madison Metro Proposed Plan, please write or call the individuals listed below.
U.S. EPA Contacts State of Wisconsin Contacts
Susan Pastor (P-19J)
Community Involvement Coordinator
(312)353-1325
Bob Whippo (SR-6J)
Remedial Project Manager
(312)886-4759
Toll-Free: 1-800-621-8431
U.S. Environmental Protection Agency
77 West Jackson Boulevard
Chicago, Illinois 60604
Larry Lester
State Project Manager
(608) 266-7596
Wisconsin Department of Natural Resources
Bureau of Solid and Hazardous Waste
P.O. Box 7921
Madison, Wisconsin 53707
Chuck Warzecha
Hydrogeologist
Wisconsin DMsion of Health
1414 E. Washington, Room 96
Madison, WI 53703-3044
(608) 267-3732
The Proposed Plan, Community Involvement Plan, fact sheets, and other site-related information are avail-
able for review in the site information repositories at the Madison Public Library, 201 West Mifflin
Street, Madison, and the Madison Metropolitan Sewerage District, 1610 Moorland Road, Madison. An
Administrative Record file, which contains the information upon which the selection of the cleanup plan
will be based, has also been established at the Madison Public Library.
&EPA
Office of Public Affairs (P-19J)
U.S. EPA Region 5
77 West Jackson Boulevard
Chicago, Illinois 60604
Bob Whippo (SR-6J)
USEPA
77 W. Jackson Blvd.
Chicago, IL 60604