Hexachlorobenzene (HCB) waste at the Botany Industrial Park, Sydney
A concise history of management and disposal efforts Prepared by Dr Rosalie Chapple on the request of CPRC Chair, Dr Paul Brown December 2012 1. Overview 2. Background - The HCB waste and its origin - Status of HCB as a scheduled waste and its legislative framework - Storage of HCB 3. History of treatment and disposal efforts 4. Summary 1. OVERVIEW This paper provides a succinct history of the hexachlorobenzene (HCB) waste stored at the Botany Industrial Park (BIP) in Sydney, and outlines the various attempts to destroy the waste across the last three decades. There are currently no facilities to treat the HCB waste in Australia. After unsuccessful efforts to establish a treatment plant in Australia, Orica Australia Pty Ltd (the company that owns the waste and manages legacy issues at the BIP) sought other options including shipment to Europe for destruction in high temperature incinerators, which have also been unsuccessful. Orica continues to investigate further destruction options. Local residents remain concerned to see the waste removed from Botany as soon as possible. Managing Oricas HCB waste is one of several projects to resolve legacy issues at the BIP 1 , with other projects including groundwater treatment, containment of mercury contamination and other site remediation. Recently completed is the Car Park Waste Encapsulation (CPWE) remediation project involving low level HCB and related materials. 2. BACKGROUND The HCB waste and its origin Hexachlorobenzene is an organochlorine that was produced as a waste by-product primarily in the former solvent and plastic manufacturing plants at the Botany Industrial Park between 1963 and 1991. HCB is a white crystalline chemical, essentially insoluble in water. Approximately 15,000 tonnes of concentrated HCB (mixed and in various forms) and low level (packaging etc) waste is now stored in containers at BIP, and is managed by Orica Australia Pty Ltd 2 (previously ICI Australia Operations Pty Ltd). HCB can bio-accumulate in the food chain (i.e., it tends to accumulate in an organism especially with prolonged or frequent exposure), and is possibly carcinogenic to humans. 3 It is not flammable or volatile and is very resistant to degradation in the environment.
Status of HCB as a scheduled waste and its legislative framework Internationally, HCB is listed as a priority Persistent Organic Pollutant (POP) under the Stockholm Convention on Persistent Organic Pollutants. 4 As a signatory to the Convention, Australia has obligations to clean up and safely dispose of waste stockpiles that may contain POPs. The Stockholm Convention operates alongside the Basel Convention on the Transboundary Movement of Hazardous Wastes and their Disposal, 5 which is implemented through Australias Hazardous Waste (Regulation of Exports and Imports) Act 1989. A third relevant international convention is the Rotterdam Convention on the Prior Informed Consent Procedure for Certain Hazardous Chemicals and Pesticides in International Trade. Australia, as a
1 http://www.oricabotanytransformation.com 2 www.orica.com 3 HCB is classified by the International Agency for Research on Cancer (IARC) as a Group 2B substance possibly carcinogenic to humans. 4 http://chm.pops.int/Convention/ThePOPs/The12InitialPOPs/tabid/296/Default.aspx 5 http://archive.basel.int/pub/techguid/pesticides/tg-pesticides-e.pdf
2 signatory to each of these conventions, is required to respond with localised regulatory frameworks, policy decisions at every level of government, education and promotion, and to exercise corporate responsibility.
Oricas HCB is managed under its NSW Environmentally Hazardous Chemicals Act 1985 licence (EHC Act Licence No. 26, issued by the NSW EPA) and in accordance with the Australian and New Zealand Environment and Conservation Council's (ANZECC) National HCB Waste Management Plan 6 under the National Strategy for the Management of Scheduled Waste. 7 The Community Participation and Review Committee (CPRC) exist under this Plan, focusing on repackaging and destruction of the HCB waste. 8
Storage of HCB
Oricas HCB waste is stored in secure packaging at the Botany site in accordance with EHC Act Licence No. 26. Over time the HCB waste has been stored in a series of buildings and periodically needs to be re- packaged due to corrosion of the storage containers, and the process of re-packaging itself increases the stockpile of contaminated material.
3. HISTORY OF TREATMENT AND DISPOSAL EFFORTS
HCB at the Botany Industrial Park a 50-year timeline from 1963 to 2012 Year Milestones Key activities including destruction attempts 1963- 1991 HCB waste produced Manufacture of chlorinated solvents Creation of HCB stockpiles. 1970s Inadequate storage Storage of drummed high-level waste in an unsealed and uncovered area. Commissioning of a process to rework the Solvents Plant waste and concentrate it as crystalline HCB. Construction of a purpose-built store. 1980 Car Park Waste Encapsulation Licensed excavation and storage of contaminated soil from the former drum storage area in a polymer-lined cell, with a protective layer and car park constructed on top. 1980s High temperature incineration considered Australian Government establishes a task force to investigate scheduled wastes and installation of a national high temperature incinerator (HTI). Communities and some environment groups oppose the plan for HTI. 1990s Rejection of high temperature incineration in Australia National HTI rejected by the Australian Government in 1992. National HCB Management Plan created in 1996, with a 2006 target for destroying the Botany HCB waste. Under the Plan, a National Advisory Body on Scheduled Waste is established, and the CPRC is formed. ICI Australia commences a study of available technologies. In 1997 ICI in the UK sells its share of the company to the public (Australian shareholders now have full responsibility to pay the costs of resolving legacy issues). In 1998 Orica is adopted as new company name.
6 http://www.environment.gov.au/settlements/publications/chemicals/scheduled-waste/hcbplan.html The Australian and New Zealand Environment and Conservation Council was a Ministerial Council operating between 1991 and 2001 which comprised state, territory and Commonwealth governments of Australia and the Government of New Zealand. ANZECC provided a forum for member governments to develop coordinated policies about national and international environment and conservation issues. The HCB Plan was endorsed by all participating governments. 7 http://www.environment.gov.au/settlements/chemicals/scheduled-waste/index.html 8 The CPRC includes Orica (at the time it was known as ICI Australia) and, other industry representatives, Botany Bay and Randwick City Councils, local residents, and observers from academia, the government and peak environment groups. For current Terms of Reference: http://www.oricabotanytransformation.com/index.asp?page=71&project=83
3 2000 On-site treatment considered - Geomelt proposed Following an intensive period of research into options, Orica proposes treatment at its Botany site using Geomelt, 9 a batch melting process. An environmental impact statement is produced by consultants URS. Residents and local government oppose the Geomelt proposal. 2002 Geomelt has conditional approval National Advisory Body is dissolved. NSW Government establishes an Independent Commission of Inquiry into Oricas proposal to use Geomelt. 10
The Commissions report recommends conditional approval of on-site destruction of the HCB and its waste packaging. 2003 Geomelt and alternatives further considered An Independent Review Panel (IRP) of experts is commissioned by the NSW Government 11 to investigate the capability of Geomelt technology to be predictable and reliable, and to consider other alternatives, namely: Treatment at an existing facility in Australia; Treatment at a reputable overseas facility; Continued long-term storage at Botany; Treatment at the Botany site using an alternative to GeoMelt; Treatment at a remote site in NSW. 2004 On-site treatment rejected at Botany IRP concludes: forms of externally detectable operating upsets or incidents are entirely possible during the life of the project, as is to be expected with new technology, untried for a particular duty. Such events are unlikely to result in any serious environmental damage or health impacts, but have high propensity to elevate the level of public concern. a single mishap, for example causing odour or noise impacts, may compromise the project resulting in delays and continuing HCB storage. 12
IRP advises the Minister against proceeding with treatment of HCB Stored Waste at Oricas Botany site. Orica withdraws Geomelt application and the IRP recommends that Orica look for a remote site in NSW to treat the HCB. 2005 Alternative sites for disposal explored New planning phase commences with Orica evaluating HCB Stored Waste treatment sites in (remote) New South Wales, while exploring overseas export as an alternative. 2006 Failure to find alternative site in Australia; Exploration of international options; Application to export Stored Waste for destruction in Germany Treatment options for Car Park Waste Encapsulation (CPWE) under consideration. Second report 13 from the IRP notes the unlikely success of a search for a NSW site for HCB Stored Waste treatment (Orica unable to find a site with suitable infrastructure and community endorsement e.g. local agriculturalists concerned about potential of contamination) and the IRP recommends pursuing offshore destruction. Orica lodges a formal application (which is then supported by the Australian Governments Hazardous Waste Technical Group 14 ) for export of the HCB Stored Waste for destruction in Germany HTI facilities. 2007 Commence re- packaging of waste for planned export; The German application is rejected Automated waste re-packaging plant opens (previous packaging was manual). German state governments 15 reject the application because it was believed that Australia had the capability to build its own waste treatment plant but would not do so due to public opposition, which the German authorities felt was insufficient reason and breaches the Basel Convention which states that if alternatives for disposing of the waste exist within the country or if such alternatives could be created, then the waste should not be transported.
9 The GeoMelt process works by passing electrical current through soil-bound waste materials to melt them in a crucible at high temperature. When the current stops, the molten mass cools and solidifies into a highly stable solid glassy substance, the organic contaminants having been vaporised (air emissions require further treatment). http://www.geomelt.com 10 http://www.coi.nsw.gov.au/inquiry/40/6.pdf 11 Minister for Infrastructure Planning and Natural Resources 12 http://www.planning.nsw.gov.au/planningsystem/pdf/hcb_panel_report.pdf (p.37) 13 http://www.planning.nsw.gov.au/planningsystem/pdf/orica_hcb_panel_report.pdf 14 http://www.environment.gov.au/settlements/chemicals/hazardous-waste/tg/index.html 15 2007 letter to Orica from the Authority for Nature and the Environment of the Federal Land of Schleswig-Holstein.
4 2008 New application for export of HCB Stored Waste to Denmark Orica lodges a formal application with the Danish EPA for export of the HCB Stored Waste for destruction in a Danish HTI. 2009 A new independent expert assessment concludes lack of Australian capacity to treat the waste Australian Government commissions a new Independent Assessment Report 16 that concludes there are no suitable technologies or facilities available in Australia for the destruction of the Orica HCB Botany Stockpile. CPWE Remediation Project approved, using Directly-heated Thermal Desorption (DTD) technology. 2010 Denmark withdraws from agreement Export application approved by both Australian and Danish authorities. The Danish Government then requests the Australian government to withdraw its application, although the application meets all safety and environmental requirements. Reasons include political situation and debate within Denmark and community opposition in Denmark, with some environmental groups arguing that Australia should deal with the waste at home, and that shipping the chemicals posed an unacceptable risk. 17
An Independent Expert Panel 18 (IEP) is established to provide advice to the community for the CPWE Remediation Project. 2011 HCB waste repackaged Orica completes automated waste repackaging into new packaging with liners. 2012 Car park waste remediation completed; New options for HCB waste destruction being explored CPWE Remediation Project completed, 19 with a site audit pending. Groundwater monitoring to be maintained for a number of years. Orica gains approval from NSW Government to relocate the Stored Waste (within the BIP) from shipping containers to an on-site storage shed to facilitate safe inspection. Orica identifies broad options for treatment of the waste (all have long approvals and lead time): These are: A new treatment plant in Australia. Export to an existing treatment plant (no active investigations underway). Bioremediation - Orica funds research collaboration between the University of NSW and the Helmholtz Centre for Environmental Research in Germany.
4. SUMMARY
Management of the HCB waste at Botany exists within a complex and variable local, national and international context. Orica has been managing the storage and planning for disposal of toxic waste in consultation with government, technical experts, environmentalists and the local community, while being subject to the requirements and limitations of government decision-making, legislation and expert opinion.
Treatment alternatives have been investigated and proposed for over three decades. Each of the main proposals has passed through several years of deliberation, involving research and development of technologies, provision of independent expert advice and public participation. Some proposed solutions have received initial support from experts and from government, and have met legislative and regulatory requirements. Dealing with the HCB legacy is now one of the longest-running environmental management challenges in Australia. The search continues for an agreed solution that will see the destruction of the waste in the interests of the community and the environment.
16 Report by Sustainable Infrastructure Australia PL www.ing.dk/modules/fsArticle/download.php?fileid=555 17 http://www.heraldsun.com.au/ipad/danish-waste-ban-political-burke/story-fn6bfmgc-1225976011500 18 Remediation of the CPWE is a separate project from the stored HCB waste, but involved the CPRC: http://www.oricabotanytransformation.com/files/pdf/Reports/CPWE/IEP/CPWE_IEP_ToR_final_Feb2010.pdf 19 http://www.oricabotanytransformation.com/index.asp?page=127&project=74