United States
Environmental Protection
Agency
Solid Waste and
Emergency Response
(5502G)
EPA 520-F-94-004
Fall 1993
v>EPA Super-fund At Work
Hazardous Waste Cleanup Efforts Nationwide
Bunker Hill
Site Profile
Site Description:
A smelting facility in the heart of
Silver Valley, Northern Idaho
Site Size: 21 square miles
Primary Contaminants:
Lead, arsenic, cadmium and zinc
Potential Range of Health Risks:
Inhalation or ingestion can cause
brain and central nervous system
damage, chronic kidney and cardio-
vascular disorders, and impaired
fetal development
Nearby Population:
6,000 within the site boundaries
Ecological Concerns: Contami-
nated ground water, the South Fork
of the Coeur d'Alene River, barren
hillsides, and airborne dust
Year Listed on NPL: 1983
EPA Region: 10
State: Idaho
Congressional District: 1
The Bunker Hill smelter facility caused extensive lead contamination of Silver Valley.
Success In Brief
Restoring the Environment:
EPA's Efforts at Bunker Hill
Residents in the communities surrounding the Bunker Hill smelter
facility in northern Idaho faced a dangerous problem: extensive lead
contamination from decades of refining mined ores. Stack emissions
caused a variety of environmental and human health problems through-
out Silver Valley. In response, the U.S. Environmental Protection
Agency's (EPA) Superfund Program, the Idaho Department of Health
and Welfare (IDHW), the local Panhandle Health District, and other
organizations intervened to conduct a variety of activities including:
• A lead health screening and education program;
• Removal and replacement of contaminated soil at public parks
and playgrounds;
• Removal and replacement of contaminated residential yard
soil from the homes of small children and pregnant women;
• Efforts to rebuild the local economy following the facility's
closure.
EPA identified the liable parties and negotiated several interim
cleanup actions. Comprehensive remedial plans for the smelter and
ground water treatment will take seven to 10 years to complete,
beginning in 1994.
The Site Today
Under EPA and IDHW supervi-
sion, the liable parties have taken
over interim cleanup actions for the
"Populated Area" and have already
removed the top 6 to 12 inches of
contaminated soil in the yards of
over 400 high-risk residences.
Cleanup plans require the removal
and replacement of an additional
1,200 to 1,500 residential yards over
the next seven years.
The liable parties have con-
structed erosion control terraces
and sediment control structures,
and have planted the surrounding
barren hillsides with over 750,000
trees to date.
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Superfund At Work • Bunker Hill Site'Kellogg, ID • Fall 1993
The Bunker Hill site spans
21 square miles in the heart of
Silver Valley in northern Idaho,
one of the largest Superfund
sites in the nation. Approxi-
mately 6,000 people live within
the site boundaries including the
communities of Kellogg,
Smelterville, Wardner, Pine-
hurst, Page, Ross Ranch, and
Elizabeth Park. The site also
includes the Bunker Hill mine,
mill and concentrator, a lead
smelter, an electrolytic zinc
plant, a phosphoric acid fertil-
izer plant, a cadmium plant, and
sulfuric acid plants. The South
Fork of the Coeur d'Alene River
runs through the site.
Mining activities in the valley
began in the late 1800s and in
A Site Snapshot
1917, a smelting facility began to
process mined ores including
lead, zinc, cadmium, silver, and
gold. Emissions from smelting
operations were poorly controlled
at the stack; additional fugitive
dust emissions of heavy metals
and sulfur dioxide were depos-
ited throughout the surrounding
valley.
Early in the century, mine
tailings (fine crushed waste rock)
from the mills were deposited in
the South Fork of the Coeur
d'Alene River, causing contami-
nation of the river bed. Subse-
quent periodic flooding spread
the contaminants further along
the valley floor.
Although the ground water,
sediments, soil and surface water
are all con-
taminated
with a vari-
ety of heavy
metals, the
primary
contaminant is lead. Lead
poses a serious health hazard
especially for pregnant women
and small children. Lead in the
bloodstream can cause brain
and central nervous system
damage, chronic kidney and
cardiovascular disorders, and
impaired fetal development.
Elevated levels of arsenic and
cadmium are present in dust
blown from some of the barren
areas of the site, but recent dust
control efforts have significantly
reduced this problem.
Bunker Hill Site
Timeline
• EPA orders Gulf to upgrade pollution control equipment for SC>2
• 1 st sick child examined ^
• CDC, state and local authorities conduct widespread blood lead testing m
• Education and intervention programs begin
• Fire in the smelter baghouse damages air emission controls
• Lead emissions increase dramatically
• Congress enacts Clean Air Act
1 Gulf purchases facility
• Congress enacts Mining Waste Pollution Control <
U.S. Environmental Protection Agency
Region 5, Library (PL-12J)
77 West Jackson Boulevard, 12th Floor
Chicago, IL 60604-3590
Mining activities begin in the valley
1
Zinc smelter production begins
I Lead smelter production begins
1883
1917
1928
2
1948
1968 1970 1973 1974
1977
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Superfund At Work • Bunker Hill Site, Kellogg, ID • Fall 1993
Responding to Widespread Lead Contamination
Lead smelting, which followed
on the heels of ore mining, began
in 1917. Solid waste from the
smelting activities (slag) was piled
on the western end of a large
outwash plain near the town of
Kellogg. A zinc processing facility
opened in 1928. Most mill tailings
were discharged directly to the
river, although as early as 1926
some companies began building
tailings impoundments.
In 1928, the Bunker Hill complex
began discharging mine drainage
and process water from the mill
into a large unlined pond called
the Central Impoundment Area.
Water from this unlined pond dis-
charged into the nearby river.
Until 1948, when the Mining
Waste Pollution Control Act was
passed, the federal government
had no authority to monitor min-
ing operations. Even after this law
was enacted, years passed before
all direct discharges of mill tailings
to the river were stopped. These
discharges, and leachate from the
tailings ponds infiltrating the
ground water, have severely
damaged the environment.
Discovery of Public Health
Problems
In 1968, Gulf Resources and
Chemical Corporation (Gulf)
bought the Bunker Hill facility and
continued operations. In 1973, a
fire at the Bunker Hill baghouse (a
system of cloth bags that filtered
lead-contaminated dust from the
smokestack emissions) crippled the
smelter's air pollution control
capability. As a result, lead emis-
sions from the smelter dramati-
cally increased for months until
the baghouse was repaired.
Less than one year later, a sick
child was brought to a doctor in
the nearby town of Coeur d'Alene.
Blood tests indicated extremely
high levels of lead in the child's
system. The doctor asked the local
Panhandle Health District to
conduct an investigation. The
Health District's tests revealed
lead contamination in the child's
yard and in airborne dust.
Comprehensive Testing
Reveals Elevated Blood Levels
Suspecting that the problem
was not confined to one home, the
• Congress enacts Superfund
1 Gulf shuts down facility
m • BLP purchases mine, mill and smelter
I [\ • Site listed on NPL
I / • EPA begins site studies, identifies liable parties
, • Local citizen Task Force formed
1 Lead Health Intervention Program begins.
• EPA and IDHW remove contaminated soil from 16 public areas
• Gulf agrees to study the Non-Populated Area
1 EPA begins soil removal from yards of pregnant women and small children
1 Silver Valley Gondola opens
Gulf and Hecla Mining begin hillside tree planting
8 companies pay for residential soil cleanup work
Studies completed for Populated Area
Bunker Hill Mining and BLP declare bankruptcy
Site investigation for Non-Populated Area complete
Negotiations for comprehensive cleanup begin
• Blood lead screening
• Hillside re-vegetation
• Residential soil removal
• Task Force participation
• Deed restrictions
'A an
Soil removal begins
1980 1981 1982 1983 1985 1986 1987 1989 1990 1992 1993 Ongoing
3
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Superfund At Work • Bunker*Hill Site, Kellogg, ID • Fall 1993
Panhandle Health District called
the Idaho Department of Health
and Welfare (IDHW) and the
Centers for Disease Control and
Prevention (CDC) for assistance
in testing children throughout the
valley. The three organizations
discovered that 99 percent of the
children within a one-mile radius
of the smelter had very high blood
lead levels. One area infant tested
four times higher than the cur-
rently-accepted level. In response,
the CDC and IDHW developed
education and intervention pro-
grams to inform residents in these
communities about preventing
exposure to lead. A yearly blood
lead screening program was
initiated to monitor area children.
Area children had elevated
blood lead levels
Air Emissions Spread
Contaminants Far and Wide
In 1977, in response to IDHW
reports, EPA ordered Gulf to
upgrade its pollution control
equipment to meet SO2 standards
under the Clean Air Act. In re-
sponse, the company built its
smokestacks higher and threat-
ened to shut down the facility
unless EPA relaxed its regulations.
Gulf was the largest employer in
the valley, and closing the facility
would leave more than two thou-
sand people unemployed. Despite
the company's threats, for three
years EPA pursued legal actions
against Gulf to meet emission
standards.
In 1981, as a result of a decrease
in metal prices, Gulf shut down
the Bunker Hill mine, mill,and
smelting complexes, andsold them
in 1982 to Bunker Limited Partner-
ship (BLP). Although the mine
and mill re- opened for several
years in the late 1980s,the smelt-
ing complex remained closed.
Superfund Takes Over
In 1980, Congress enacted the
Comprehensive Environmental
Response, Compensation, and
Liability Act (CERCLA) establish-
ing the Superfund program to
address hazardous waste sites
nationwide. CERCLA authorized
EPA to compel those responsible
for contaminating the sites to
undertake prescribed cleanup
actions.
In September 1983, the site was
added to the National Priorities
List (NPL), a roster of hazardous
waste sites eligible for compre-
hensive cleanup under the
Superfund program. EPA subse-
quently identified 17 private
companies believed to be respon-
sible for remediating the site.
Division of the Site
EPA and IDHW began a series
of investigations to determine the
nature and extent of the contami-
nation, dividing the studies into
two parts. The first consisted of
residential soil in the "Populated
Area". Because the risks were
more apparent, IDHW and EPA
agreed to address this area first.
The second part included the
smelter complex, tailings im-
poundments, surrounding hills,
ground water, sediments and
surface water, ambient dust, and
adjacent commercial properties in
the "Non-Populated Area".
Restoration of Residential Soil
In 1986, EPA and the IDHW
removed and replaced an esti-
mated 8,750 cubic yards of con-
taminated soil from public areas,
parks, and playgrounds. The soil
was stored in a fenced contain-
ment area away from residences.
One of the liable parties later
reimbursed EPA for these emer-
gency actions.
In 1989 and 1990, EPA found
high concentrations of lead near
residences and removed the soil
from the yards of small children
and pregnant women. During
those two years, EPA replaced the
yards and gardens of 219 homes
and two large apartment com-
plexes. Because of concern about
the local economy and high unem-
ployment in the area, EPA hired
local residents whenever possible
to do the work.
The IDHW also investigated
how contaminated dust could be
removed from home interiors.
Lead-contaminated dust is difficult
to remove completely from carpets
and furniture. Nevertheless, the
liable parties agreed to purchase
high efficiency vacuums for resi-
dents to clean house interiors.
Closure of the facility left
2,000 people unemployed
Liable Parties Begin Interim
Activities
In November 1989, EPA or-
dered Gulf and BLP to take imme-
diate action in response to deterio-
rating conditions at the inactive
smelter complex. EPA identified
exposed waste piles, uncontrolled
salvage activities, lack of site
security, dust from the barren
hillsides, asbestos from deterio-
rated pipes and insulation, and
other potential hazards.
In October 1990, EPA entered
into a consent order with Gulf and
continued on page 5
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Superfund At Work • Bunker Hill Site, Kellogg, ID • Fall 1993
Responding to
Contamination
continued from page 4
Hecla Mining Company to ad-
dress the barren hillsides sur-
rounding the site. In the summer
of 1991, these companies began
reducing erosion of contaminated
soil from the hills by re-establish-
ing the native forest of the Silver
Valley. The companies con-
structed 50 miles of terraces and
numerous sediment dams and
erosion control structures. By the
end of 1993, almost 750,000 trees
had been planted; one million will
be planted over 3,200 acres by
1996.
Earlier that summer, EPA
proposed a cleanup plan for the
remaining contaminated yards in
the "Populated Area". This plan
included the excavation of the
yards and gardens of 1,200 to
1,500 homes. These actions are
expected to take seven years to
complete.
Reducing the Source of
the Problem
In 1987, Gulf agreed, under
EPA oversight, to investigate the
"Non-Populated Area" of the site.
Studies were completed in 1991
and in the summer of 1992, EPA
proposed a comprehensive
cleanup plan that included:
• demolition of the smelter
complex structures;
• removal of the worst-
contaminated materials;
• continued erosion control
and re-vegetation efforts;
• treatment of ground water
Community Adjusts to Change
The dosing of the mine and smelter deprived the community of
income and left many local residents unemployed. Undaunted, the
community took a fresh look at other natural assets in the area. For
years, local residents had enjoyed excellent skiing on St. Joe Moun-
tain and decided to build a ski resort.
The key to the entire project is a single-stage aerial gondola, the
longest in North America. The gondola runs between the town of
Kellogg and the Silver Mountain ski area, and serves as a year-
round tourist attraction. This project is considered a cornerstone for
rebuilding the economy of the Silver Valley.
Construction of the gondola was the result of cooperation among
state and federal agencies, the City of Kellogg, residents, and local
businesses. Everyone involved realized that the environmental
restoration of the area would mean little if area residents were
forced to move due to economic hardship. Tourism would bring a
new source of income for local residents. In 1987, a $6.4 million
Forest Service appropriations bill was passed that paid for half the
construction costs of the gondola. To help cover the remaining
costs, the local residents voted to increase their own taxes.
The gondola opened in 1990 and tourists have started to come to
Silver Valley. Jobs are still scarce, but the community remains
optimistic that the economy will recover. Hotel/motel occupancy
rates were up 20% from 1991 to 1992, and the ski resort showed a
40% increase in business.
and surface water;
• capping of tailings impound
ments;
• protection of cleaned up
areas through the use of loca
regulations and deed
restrictions.
These activities will last seven
to 10 years and are scheduled to
begin in 1994.
EPA Recovers Cleanup Costs
In 1990, eight of the 17 compa-
nies agreed to contribute a total of
$3.18 million to pay for the soil
removal work that EPA performed
in 1990.
In September 1991, EPA issued
a unilateral order to BLP requiring
cleanup of the inactive smelter
complex. Both Bunker Hill Min-
ing Company and BLP declared
bankruptcy that year, but EPA
filed claims against them in bank-
ruptcy court based on their
cleanup liability.
On July 13,1992, the U.S. Bank-
ruptcy Court confirmed BLP's
Reorganization Plan, which re-
quired a deposit of approximately
$5 million into an account to fund
cleanup activities at the site. This
amount was in addition to an
initial $2 million ordered by the
court earlier that year. To date,
approximately half of this money
has been spent on cleanup activi-
ties at the smelter complex.
Addressing the Community's
Concerns
EPA's Bunker Hill Team
worked hard to inform and
educate local residents about the
cleanup process. Community
relations staff used a variety of
tools including site fact sheets,
progress updates, public meetings,
small group sessions, public
continued on page 6
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Superfund At Work • Bunker Hill Site, Kellogg, ID • Fall 1993
Lead
Contamination
continued from page 5
information repositories, and
incorporation of individual
comments in proposed cleanup
plans. Two of the Bunker Hill
project team members also live
in the area and have an open and
accessible relationship to the
community.
In 1985, the Shoshone County
Commissioners established a
Superfund Task Force comprised
of local citizens to facilitate com-
munication among all the agen-
cies involved at the site and the
affected communities. The group
has held over 40 public meetings
and has been a key participant in
the decision-making process. In
addition, there have been over
100 meetings with local civic
organizations and several work-
shops to better educate financial
institutions and investors.
One workshop sponsored by
Congressman LaRocco in March
1992 focused on the economic
development of the community.
Concern over Superfund liability
caused many investors to hesitate
to develop in the area. Lending
institutions and investors are
better informed now about
Federal Housing Administration
(FHA) procedures to insure
bank loans. In addition, efforts are
under way to develop a large
tract near Smelterville as an
industrial park and to attract
other enterprises to help diversify
the local economy.
Success at Bunker Hill
EPA and the liable parties
have conducted many cleanup
actions at the site. These ac-
tions, coupled with ongoing
education to minimize exposure
to lead, have resulted in an
average blood lead level de-
crease from 65 micrograms per
deciliter in 1974 to 8 micrograms
per deciliter in 1992.
Contaminated soil and sod
from more than 400 yards and
gardens and 16 public proper-
ties have been replaced. Ap-
proximately 750,000 trees are
growing on the once-barren
hillside slopes. Controls are in
place for windblown dust, ero-
sion and sediment movement.
Mercury acid sludges have been
removed from a fertilizer plant
and shipped off-site for disposal.
Negotiations for the remaining
cleanup actions of the old smelter
complex and area ground water
are ongoing.
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