SECOND FIVE-YEAR REVIEW REPORT FOR
BLACKBIRD MINE SITE
LEMHI COUNTY, IDAHO
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Prepared by:
CH2MHILL.
Boise, Idaho
Prepared for:
U.S. Environmental Protection Agency
Region 10
Seattle, Washington
Cami Grandinetti, Program Manager
Remedial Cleanup Program Date
Office of Environmental Cleanup
USEPA Region 10
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Contents
Section Page
Acronyms and Abbreviations v
Executive Summary 1
1 Introduction 1-1
1.1 Purpose of the Review 1-1
1.2 Authority for Conducting the Review 1-1
1.3 Who Conducted the Review 1-2
1.4 Lead and Support Agencies 1-2
1.5 Other Review Components 1-2
2 Site Chronology 2-1
3 Background 3-1
3.1 General Site Description 3-1
3.2 Land Uses of the Site and Surrounding Areas 3-2
3.2.1 Blackbird Mine Site 3-2
3.2.2 Panther Creek Properties and Forest Lands 3-2
3.2.3 Idaho Cobalt Project 3-2
3.3 History of Contamination 3-3
3.3.1 Blackbird Mine Site 3-3
3.3.2 Downstream Contamination 3-4
3.3.3 Waste Management Area 3-4
3.4 Initial Response Actions 3-5
3.4.1 Time-critical Removal (1993 to 1994) 3-5
3.4.2 Non Time-critical Removals (1995 to 2002) 3-5
3.5 Basis for Taking Remedial Actions 3-8
4 Remedial Actions 4-1
4.1 Regulatory Actions 4-1
4.2 Remedial Action Objectives and Cleanup Levels 4-1
4.2.1 Remedial Action Objectives 4-1
4.2.2 Cleanup Levels 4-2
4.3 Remedy Description 4-4
4.3.1 Blackbird Creek 4-4
4.3.2 Bucktail Creek 4-5
4.3.3 Panther Creek 4-5
4.3.4 Groundwater 4-5
4.3.5 Contingent Actions 4-6
4.4 Remedy Implementation 4-7
4.4.1 2003 Construction 4-7
4.4.2 Summer 2004 Construction 4-7
4.4.3 Fall 2004 through Winter 2005 Construction 4-7
4.4.4 2005 through 2006 Construction 4-8
4.4.5 2007 Construction Summary 4-9
4.4.6 2008 Construction Summary 4-9
4.4.7 2009 Construction Summary 4-9
4.4.8 2010 Construction Summary 4-9
4.4.9 2011 Construction Summary 4-10
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CONTENTS, CONTINUED
Section Page
4.4.10 2012 Construction Summary 4-11
4.4.11 Remedial Actions Not Yet Completed 4-12
4.5 Summary of Operations and Maintenance 4-14
5 Progress Since Last Five-Year Review 5-1
5.1 2008 Five-Year Review Summary of Findings 5-1
5.2 Actions Taken Since 2008 Five-Year Review 5-1
6 Five-Year Review Process 6-1
6.1 Administrative Components 6-1
6.2 Document Review 6-1
6.3 Data Review 6-1
6.3.1 Surface Water Quality Data 6-1
6.3.2 Groundwater Quality Data 6-4
6.3.3 Sediment Data 6-5
6.4 Site Inspection 6-7
6.5 Community Involvement 6-7
7 Technical Assessment 7-1
7.1 Question A: Is the Remedy Functioning as Intended? 7-1
7.1.1 Water Quality 7-1
7.1.2 Groundwater 7-2
7.1.3 In-stream Sediments 7-3
7.1.4 Overbank Deposits 7-3
7.1.5 Operation and Maintenance 7-3
7.1.6 Implementation of Institutional Controls 7-4
7.1.7 Monitoring Activities 7-6
7.1.8 Opportunities for Optimization 7-6
7.1.9 Early Indicators of Potential Remedy Problems 7-7
7.2 Question B: Are the Exposure Assumptions, Toxicity Data, Cleanup Levels, and
Remedial Action Objectives Still Valid? 7-7
7.2.1 Changes in Applicable or Relevant and Appropriate Requirements 7-7
7.2.2 Changes in Exposure Pathways or Land Use 7-7
7.2.3 New Contaminants or Contaminant Sources 7-7
7.2.4 Changes in Toxicity or Contaminant Characteristics 7-8
7.2.5 Changes in Risk Assessment Calculations Error! Bookmark not defined.
7.2.6 Changes in Remedial Action Objectives 7-8
7.3 Question C: Has Other Information Come to Light that Could Call into Question
the Protectiveness of the Remedy? 7-8
7.4 Technical Assessment Summary 7-8
8 Issues Raised During Five-Year Review 8-1
9 Recommendations and Follow-up Actions 9-1
10 Protectiveness Statement 10-1
11 Next Review 11-1
12 Documents Cited and Reviewed 12-1
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CONTENTS, CONTINUED
Tables Page
Table 2-1 Chronology of Blackbird Mine Site Events 2-1
Table 4-1 Remedial Action Objectives for Blackbird Mine Site 4-1
Table 4-2 Summary of Cleanup Levels for Blackbird Mine Site Media 4-3
Table 5-1 Actions Taken Since Last Five-Year Review 5-1
Table 6-1 96-Hour Peak Concentration Sampling Results From 2008 to 2012 at Panther
Creek and Big Deer Creek 6-3
Table 7-1 Operations, Maintenance, and Monitoring Costs for the Blackbird Mine Site
Remedy 7-4
Table 8-1 Issues Potentially Affecting the Remedy's Current or Future Protectiveness 8-1
Table 9-1 Recommendations/Follow-up Actions Regarding Issues Potentially Affecting the
Remedy's Current or Future Protectiveness 9-1
Figures
3-1 Regi onal Overvi ew Map
3-2 Blackbird Mine Waste Management Area
3-3 Properties Cleaned Up Along Panther Creek
3-4 Idaho Cobalt Project Overview Map
4-1 Blackbird Creek Stations and Stabilization Areas
6-1 Blackbird Mine Surface Water Monitoring locations
6-2 Dissolved Copper Concentrations Vs. IWQS at PASW-09, 1999 Through 2012
6-3 Dissolved Copper Concentrations Vs. IWQS at PASW-04 and PASW-04X, 1998 Through 2012
6-4 Dissolved Copper Concentrations Vs. IWQS at BDSW-03, 1995 Through 2012
6-5 Dissolved Copper Concentrations Vs. IWQS at BDSW-01, 1995 Through 2012
6-6 Monitoring Well Sampling Locations in Upper Blackbird Creek
6-7 Monitoring Well Sampling Locations at West Fork Tailings Impoundment
Appendix
A Public Notices
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Acronyms and Abbreviations
AOC
ARAR
ARD
BMSG
CCC
CERCLA
CFR
CMC
COC
COPC
cy
DLBS
DLBW
EPA
ESD
FCC
FS
gpm
HDPE
HQ
ICP
IC
IDEQ
IDFG
IWQS
MCL
mg/kg
mg/L
MOU
Administrative Order on Consent
applicable or relevant and appropriate requirement
acid rock drainage
Blackbird Mine Site Group
criteria continuous concentration
Comprehensive Environmental Response, Compensation, and Liability Act
Code of Federal Regulations
criteria maximum concentration
contaminant of concern
contaminant of potential concern
cubic yard(s)
Downstream Low Bar South
Downstream Low Bar West
U.S. Environmental Protection Agency
Explanation of Significant Differences
Formation Capital Corporation
feasibility study
gallons per minute
high density polyethylene
hazard quotient
Idaho Cobalt Project
institutional control
Idaho Department of Environmental Quality
Idaho Department of Fish and Game
Idaho Water Quality Standard
maximum contaminant level
milligram per kilogram
milligrams per liter
Memorandum of Understanding
V
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ACRONYMS AND ABBREVIATIONS
NCP
National Contingency Plan
NMFS
National Marine Fisheries Service
NO A A
National Oceanic and Atmospheric Administration
NPDES
National Pollutant Discharge Elimination System
NPL
National Priorities List
NRDA
Natural Resource Damage Assessment
O&M
operations and maintenance
OU
Operable Unit
PRP
Potentially Responsible Parties
RAO
Remedial Action Objectives
RI
Remedial Investigation
ROD
Record of Decision
SCNF
Salmon-Challis National Forest
site
Blackbird Mine Site
SOW
Statement of Work
Trustees
Natural Resource Trustees
UAO
Unilateral Administrative Order
UCL
upper confidence limit
ULBE
Upstream Low Bar East
U.S.
United States
USFS
U.S. Department of Agriculture Forest Service (United States Forest Service)
USFWS
U.S. Fish and Wildlife Service
WTP
Water Treatment Plant
VI
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Executive Summary
This report presents the findings of the second Five-Year Review performed for the Blackbird Mine,
Lemhi County, Idaho (the Site). The Five-Year Review was conducted to determine if human health and
the environment are being protected through the implementation of the selected remedy.
The remedy for the Blackbird Mine Site as identified in the 2003 Record of Decision (ROD) included
collection, storage, and treatment of contaminated waters from mine drainage and mine wastes, diversion
facilities to reroute clean and contaminated waters, relocation and capping of waste rock, removal and
stabilization of contaminated overbank deposits, natural recovery of in-stream sediments, long-term
operation and maintenance, and institutional controls (ICs).
The Five-Year Review was conducted in accordance with the U.S. Environmental Protection Agency
(EPA) Comprehensive Five-Year Review Guidance (EPA, 2001) and included the following:
• Review of site data to evaluate compliance with the risk-based surface water, sediments, overbank
soils, and groundwater performance standards specified by the ROD.
• A site inspection to evaluate whether the remedy is operating and being maintained consistent with the
ROD objectives and requirements.
• Review of federal and state regulations promulgated since the last Five-Year Review that could affect
the remedy's overall protectiveness with respect to performance standards specified in the ROD.
During the last 5 years, additional study and analysis were conducted to assess whether additional
response actions were needed to minimize recurring recontamination of downstream properties.
Additionally, questions have been raised concerning oxyhydroxide floe, and whether it is a source of
arsenic that poses a potential risk to humans primarily in overbank deposits. Lastly, EPA published a new
reference dose for cobalt, which required additional risk assessment evaluations of media of concern and
sampling and analysis to determine if additional response actions were needed. Thus, over the last 5 years,
the Blackbird Mine Site Group (BMSG) has focused on implementing the monitoring program,
characterization and removal of contaminated overbank soils, construction of in-stream stabilization
features in Blackbird Creek, and miscellaneous optimization improvements to the overall remedy.
The results of this Five-Year Review indicate that the remedy is not yet performing as intended because
not all of the necessary ICs have been implemented. In addition, concentrations of contaminants of
concern (COCs) in surface waters and sediments remain above cleanup levels in certain streams, certain
overbank soils exceed cleanup levels, effectiveness of the Blackbird Creek stabilizations structures is
unknown, and the significance of floe as a source of arsenic that poses a potential risk to humans is
unknown. Finally, the full nature and extent of the cobalt groundwater contamination in the Blackbird
Creek, Panther Creek, and Bucktail Creek drainage shallow alluvium aquifer has not been fully defined.
In addition, a pipeline to divert Bucktail Creek around South Fork Big Deer Creek has not yet been
constructed to allow for further monitoring through 2014 to determine if the pipeline is needed.
Implementation of contingent actions in Blackbird Creek including the construction of in-stream
stabilization structures and additional soil characterization and removal in Blackbird Creek and Panther
Creek provide support for the remedy to function as intended. Continued monitoring and optimization of
(if determined to be necessary) the in-stream stabilization structures will be necessary to abate any future
high flow events recontaminating overbank soils downstream.
It is anticipated that the remedy will be protective upon completion of all remedial actions, completion of
relevant contingent actions, evaluation and optimization (if determined to be necessary) of in-stream
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EXECUTIVE SUMMARY
stabilization along Blackbird Creek, implementation of all ICs, and following natural recovery of
sediments.
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SECOND FIVE-YEAR REVIEW REPORT FOR BLACKBIRD MINE SITE LEMHI COUNTY, IDAHO
Five-Year Review Summary Form
SITE IDENTIFICATION
Site Name: Blackbird Mine Site
EPA ID:
IDD980725832
Region: 10
State: Idaho
City/County: 25 West of the city of Salmon,
Lemhi County
NPL Status: Proposed. Site was proposed by EPA for NPL listing in May 1993, but was not
listed due to lack of concurrence by the State of Idaho
Multiple OUs?
No
Has the site achieved construction completion?
No
Lead agency: EPA
If "Other Federal Agency" was selected above, enter Agency name: Click here to enter
Author name (Federal or State Project Manager): Fran Allans
Author affiliation: EPA Region 10
Review period: August 2008 - August 2013
Date of site inspection: September 25, 2012
Type of review: Statutory
Review number: 2
Triggering action date: August 25, 2008
Due date (five years after triggering action date): August 25, 2013
Issues/Recommendations
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: Concentrations of COCs in sediments remain above current
cleanup levels at certain times and places in area creeks downstream
from the mine.
Recommendation: Continue to implement the sediment monitoring
program to determine if further action is warranted.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
8/25/2018
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EXECUTIVE SUMMARY
Five-Year Review Summary Form (continued)
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: Concentrations of COCs in certain overbank areas soils exceed
cleanup levels.
Recommendation Conduct removal of soils at Sillings pastures/overbank
areas.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
Yes
Yes
PRP
EPA
12/31/2014
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: Surface water cleanup levels are not currently met in South Fork
Big Deer Creek.
Recommendation Monitor in South Fork Big Deer Creek through 2014 to
determine if the diversion pipeline is warranted.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
Yes
Yes
PRP
EPA
12/31/2014
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: Surface water cleanup levels are not currently met in the lower
reaches of Big Deer Creek.
Recommendation Continue monitoring in Big Deer Creek and identify if
any additonal actions are necessary if water quality goals are not achieved
and exceedances are due to the Blackbird Mine
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
8/25/2018
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: ICs have not been established or implemented at the Cobalt
Townsite, former Panther Creek Inn area, and the Blackbird Mine.
Recommendation Continue efforts with the PRPs and Department of
Justice to have ICs implemented.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
12/31/2013
Five-Year Review Summary Form (continued)
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SECOND FIVE-YEAR REVIEW REPORT FOR BLACKBIRD MINE SITE LEMHI COUNTY, IDAHO
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: The nature and extent of cobalt contamination in the Panther Creek
shallow alluvium aquifer has not been fully defined.
Recommendation: Conduct a study to characterize the nature and extent
of groundwater contamination.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
12/31/2013
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: Bucktail Creek groundwater concentration of cobalt exceeds the
cleanup level. Nature and extent of groundwater contamination in Bucktail
Creek and South Fork Big Deer Creek drainage has not been fully
characterized.
Recommendation: Conduct a study to characterize the nature and extent
of groundwater contamination.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
12/31/2013
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: The effectiveness of the Blackbird Creek stabilization structures is
unknown.
Recommendation: Continue to monitor the effectiveness of stabilization
structures and conduct future contingent action removals along Panther
Creek in overbank areas if they become recontaminated at concentrations
above the cleanup levels.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
8/28/2018
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EXECUTIVE SUMMARY
Five-Year Review Summary Form (continued)
Issues and Recommendations Identified in the Five-Year Review:
OU(s): N/A
Issue Category: Remedy Performance
Issue: The significance of oxyhydroxide floe as a recontamination source
is unknown.
Recommendation: Continue to monitor arsenic concentrations in
oxyhydroxide floe deposits in Blackbird Creek and Panther Creek
overbanks when there is an event that results in them being inundated.
Affect Current
Protectiveness
Affect Future
Protectiveness
Implementing
Party
Oversight
Party
Milestone Date
No
Yes
PRP
EPA
8/25/2018
Protectiveness Statement(s)
Operable Unit: Protectiveness Determination: Addendum Due Date
N/A Will Be Protective (if applicable):
Click here to enter elate,
Protectiveness Statement: The remedy at the Blackbird Mine Site is expected to be protective
of human health and the environment upon completion of all remaining remedial actions,
completion of any relevant contingent actions (if determined to be necessary), evaluation and
optimization of in-stream stabilization and any potential additional measures along Blackbird
Creek, and implementation of all ICs. In the interim, remedial activities completed to date
have adequately addressed all exposure pathways that could result in unacceptable risks in
those areas.
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SECTION 1
Introduction
1.1 Purpose of the Review
The U.S. Environmental Protection Agency (EPA) Region 10, the lead agency for this site, has conducted
a statutory Five-Year Review of the Blackbird Mine Site (site) located in Lemhi County, Idaho. This
review was conducted from October 2012 through August 2013 and is the second Five-Year Review for
this site.
Investigations, Early Actions, Remedial Designs, and Remedial Actions at this site have been conducted
under EPA oversight by the potentially responsible parties (PRPs) for the site. The PRPs identified for the
site include: Noranda Exploration, Inc., Noranda Mining, Inc., Blackbird Mining Company Limited
Partnership, M. A. Hanna Company, Hanna Services Company and their predecessor Rojet Enterprises,
now known as Polyone Corporation, and Alumet Corporation, successor to Alumax Corporation,
Pechiney Corporation, and Intalco Aluminum Corporation. Certain PRPs have formed a group named the
Blackbird Mine Site Group (BMSG) that has taken the lead in performing investigations and cleanup
actions at the site.
The purpose of the Five-Year Review is to evaluate the implementation and performance of the remedy to
determine if the remedy is or will be protective of human health and the environment. The methods,
findings, and conclusions of reviews are documented in this Five-Year Review report. In addition, this
Five-Year Review report identifies issues found during the review, if any, and provides recommendations
to address them.
1.2 Authority for Conducting the Review
Five-Year Reviews are required whenever remedial actions result in hazardous substances, pollutants, or
contaminants remaining onsite above levels that allow for unlimited use and unrestricted exposure
(UU/UE). EPA prepared this statutory Five-Year Review pursuant to Comprehensive Environmental
Response, Compensation, and Liability Act (CERCLA) Section 121(c) and the National Contingency
Plan (NCP). CERCLA Section 121(c) states:
If the President selects a remedial action that results in any hazardous substances, pollutants, or
contaminants remaining at the site, the President shall review such remedial action no less often than
each five years after the initiation of such remedial action to assure that human health and the
environment are being protected by the remedial action being implemented. In addition, if upon such
review it is the judgment of the President that action is appropriate at such site in accordance with
section (104) or (106), the President shall take or require such action. The President shall report to the
Congress a list offacilities for which such review is required, the results of all such reviews, and any
actions taken as a result of such reviews.
EPA interpreted this requirement further in the NCP; 40 Code of Federal Regulations (CFR)
300.430(f)(4)(ii) states:
If a remedial action is selected that results in hazardous substances, pollutants, or contaminants
remaining at the site above levels that allow for unlimited use and unrestricted exposure, the lead agency
shall review such action no less often than every five years after initiation of the selected remedial action.
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SECTION 1 INTRODUCTION
1.3 Who Conducted the Review
EPA Region 10 conducted this Five-Year Review of the cleanup actions implemented at the Blackbird
Mine Site in Lemhi County, Idaho. The Five-Year Review was conducted from October 2012 through
August 2013. This report documents the results of the Five-Year Review.
1.4 Lead and Support Agencies
EPA Region 10 is the lead agency and the U.S. Department of Agriculture, Forest Service (USFS) and
Idaho Department of Environmental Quality (IDEQ) are the support agencies at this site. EPA and USFS
entered into a Memorandum of Understanding (MOU) in November 1995 regarding oversight and
management of the site, given that releases from the Blackbird Mine have impacted land under the
management of USFS. In the MOU, it was agreed that EPA would be lead agency with USFS serving as
support agency and exercising particular consultative and concurrence roles with respect to certain major
decisions.
The National Oceanic and Atmospheric Administration (NOAA) has provided extensive input and
guidance. USFS, IDEQ, and NOAA are collectively referred to as the Natural Resource Trustees
(Trustees). Several other resource agencies also have been actively involved at the Site and have provided
extensive input and guidance. These agencies include the National Marine Fisheries Service (NMFS), the
U.S. Fish and Wildlife Service (USFWS) and the Idaho Department of Fish and Game (IDFG).
The Shoshone-Bannock Tribe and the Nez Perce Tribe have represented Native American interests at
the site.
1.5 Other Review Components
This is the second Five-Year Review for the Blackbird Mine Site. The triggering action for this review
was the completion of the first Five-Year Review in August 2008. This Five-Year Review is required
because hazardous substances, pollutants, or contaminants remain at the site above levels that allow for
unlimited use and unrestricted exposure.
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SECTION 2
Site Chronology
Table 2-1 presents a chronology of cleanup actions and regulatory events that have occurred at the
Blackbird Mine Site.
TABLE 2-1
Chronology of Blackbird Mine Site Events
Blackbird Mine Site, Lemhi County, Idaho
Cleanup Actions or Regulatory Events
Date
USFS removed bed tailings, sediments, and debris from approximately 5,000 linear feet of the Blackbird Creek
1975
Channel, and deposited the materials outside of the Blackbird channel.
The State of Idaho initiated a Natural Resource Damage Assessment (NRDA) lawsuit for the Blackbird Mine cleanup
December 1983
and natural resource damages restoration pursuant to CERCLA. Subsequently, the United States joined the lawsuit
to June 1992
in 1993.
EPA proposed to add the Blackbird Mine Site to the National Priorities List (NPL), pursuant to Section 105(a)(8) of
May 1993
CERCLA, 42 United States Code 9605(a)(8). The site was not added to the NPL because of lack of concurrence by the
State of Idaho.
Unilateral Administrative Order (UAO) issued by EPA to Noranda Mining, Inc (EPA Docket No. 1093-07-04-106).
July 1993
Emergency response actions at the West Fork Tailing Impoundment to minimize the potential for release of tailings
into Blackbird and Panther Creeks.
Emergency Response design and construction at the West Fork Tailing Impoundment.
1993-1994
AOC issued by EPA to M.A. Hanna Company, and several other parties (EPA Docket No. 10-94-0222) requiring the
November 1994
Respondents to conduct a Remedial Investigation (Rl)/Feasibility Study (FS).
NRDA Consent Decree entered by federal district court (No. 83-4179 State of Idaho, et al. v. The M.S. Hanna
June 1995
Company et al.) committing the Settling Defendants to, among other things, restore water quality in Panther Creek
and Big Deer Creek to a level that will support all life stages of salmonids, implement a Natural Resource Restoration
Plan for returning Snake River Chinook salmon to Panther Creek, and implement the future remedial actions under
separate order or consent decree.
AOC issued by EPA to the BMSG (EPA Docket No. 10-95-0083) requiring non time-critical removal actions to control
June 1995
sources of acid rock drainage (ARD), overbank deposit removal actions, and collect waters in the Bucktail Creek and
Meadow Creek drainage basins for treatment. These actions are referred to as the Early Actions.
Early Action designs and construction (multiple designs were completed for the Early Actions, and these designs
1995-2002
were generally completed during the spring of each year for that year's construction season).
Remedial Investigation completed.
November 2001
Feasibility Study completed.
June 2002
Proposed Plan issued by EPA.
August 2002
Record of Decision (ROD) issued by EPA.
March 2003
Unilateral Administrative Order (UAO) issued by EPA to the BMSG (EPA Docket No. CERCLA-10-2003-0112) requiring
July 2003, August
the BMSG to implement Remedial Designs and Remedial Actions consistent with the ROD; the UAO was amended in
2003, February
August 2003, February 2011, and February 2013. The Statement of Work (SOW) attached to the UAO has been
2011, February
modified seven times.
2013
Remedial Action designs and construction (multiple designs were completed for the Remedial Actions, and these
August 2003 to
designs were generally completed during the spring of each year for that year's construction season).
August 2012
Explanation of Significant Differences (ESD) to the ROD was issued by EPA to change the cobalt water quality
July 2007
cleanup level from 0.038 milligrams per liter (mg/L) to 0.086 mg/L.
First FYR conducted
August 2008
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TABLE 2-1
Chronology of Blackbird Mine Site Events
Blackbird Mine Site, Lemhi County, Idaho
Cleanup Actions or Regulatory Events Date
ESD to the ROD was issued by EPA to establish cleanup levels for cobalt in overbank deposits in Blackbird Creek and May 2012
Panther Creek, and lowered the cleanup level for cobalt in groundwater. Revised recreational-use scenarios for
certain USFS lands, increasing the arsenic and cobalt cleanup levels.
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SECTION 3
Background
3.1 General Site Description
Discovered in 1893, the Blackbird Mine Site is located within one of the largest of North America's
cobalt deposits. The mine sits within the Salmon-Challis National Forest (SCNF), approximately 25 miles
west of the town of Salmon in Lemhi County, Idaho. The former mining town of Cobalt is located
approximately 8 miles east from the mine along Panther Creek (Figure 3-1). The River of No Return
Wilderness area is located approximately 5 miles north of the mine site. The Blackbird Mine consists of
approximately 830 acres of private patented mining claims and surrounding National Forest land.
The Blackbird Mine Site is located within the Northern Rocky Mountain physiographic province and is
topography characterized by deep stream cut canyons having steep and rocky slopes. Regional elevations
range from 3,000 feet at the confluence of Panther Creek and the Salmon River, to approximately
9,000 feet near the site.
The mine site lies within two primary drainages: Bucktail Creek and Meadow/Blackbird Creek
(Figure 3-1). The northern portion of the mine site includes the area surrounding the Blacktail open-pit
and several sub-basins that drain into Bucktail Creek. The southern portion of the mine site drains into
Meadow Creek, eventually draining into Blackbird Creek. Both drainage basins discharge to Panther
Creek, which is one of seven major tributaries to the Salmon River.
Mining at the Blackbird Mine first began in 1893 by the Blackbird Copper-Gold Mining Company until
1907. From 1917 until 1920, the Haynes-Stellite Company mined and milled approximately 4,000 tons of
ore from a site located along the east side of Blackbird Creek, approximately 1.2 miles downstream of the
present Blackbird Mine Site. Mining activities slowed until 1938 when the Uncle Sam Mining Company
reopened two old adits and built a 75-ton-per-day flotation mill at the present Blackbird Mine Site.
The Calera Mining Company purchased the site in 1943 and began full-scale mining activities in 1949.
Calera Mining Company expanded the mill to accommodate 1,000 tons per day. In 1954, Calera initiated
open-pit activities in the Blacktail Pit resulting in the deposition of approximately 3.8 million tons of
waste rock in the headwaters of the Blackbird and Bucktail Creeks. Starting around 1950, mine tailings
from milling operations were deposited in the West Fork Tailings Impoundment. The impoundment dam
is approximately 150 feet high and 600 feet long. The tailing deposit covers an area of approximately
9 acres and is 1,250 feet long. During the 1950s, Calera continued the underground mining operations at
the site resulting in the formation of a number of waste piles outside mine adits, totaling approximately
1 million tons.
Calera sold their interest in the Blackbird Mine to Machinery Center Company in 1963. The Machinery
Center Company operated the mine site for 4 years, producing copper. However, the mine site was sold in
1967 to the Idaho Mining Company, a subsidiary of the Hanna Mining Company, who engaged in an
exploration program on the property for the next few years and sought to reopen the mine.
In 1977, Noranda Exploration entered into an option agreement with the Idaho Mining Company,
allowing Noranda to explore and acquire interest in the mine property. In December 1979, Noranda
Mining, Inc. and Hanna Services Company created the Blackbird Mining Company, wherein Noranda
Mining became the general partner responsible for reopening the mine. By 1982, all exploratory activities
were suspended at the Blackbird Mine due to poor market conditions.
The mining activities resulted in construction of approximately 14 miles of underground workings
(12 levels with more than 15 adits and portals) and a 12-acre open-pit mine. Additionally, the mine site
included a mill, graded roads, numerous piles of waste rock, a tailings impoundment, sedimentation
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ponds, office, maintenance shop, and warehouse structures. A small reservoir located on upper Blackbird
Creek provided potable water. Lemhi County and USFS roads provide access to the site.
A water treatment plant (WTP) was placed in service in 1981 to treat acid mine drainage from the
6850 adit. Discharges from the treatment plant to Blackbird Creek are permitted under National Pollutant
Discharge Elimination System (NPDES) permit no. ID-002525-9.
Subsequent to mining operations, debris flows, erosion, and acid rock drainage (ARD) resulted in the
spreading of arsenic, cobalt, and copper from the original mining waste disposal areas to downstream
locations. The tailings and waste rock materials were deposited in overbank areas along Bucktail Creek,
South Fork Big Deer Creek, Big Deer Creek, Blackbird Creek, and Panther Creek.
3.2 Land Uses of the Site and Surrounding Areas
The Blackbird Mine consists of approximately 830 acres of private patented mining claims and
10,000 acres of unpatented claims. The Blackbird Mine is surrounded by SCNF land. The former Cobalt
Townsite is located on Panther Creek road approximately 8 miles east of the mine and has no permanent
residences. The closest inhabited town is Salmon, which is approximately 25 miles east of the mine site
and the location of the Lemhi County seat. The Panther Creek drainage basin downstream of the mine is
rural and sparsely populated with seasonal and year-round residences. The following sections describe in
more detail the land use of the Blackbird Mine Site and the surrounding areas impacted by the mine.
3.2.1 Blackbird Mine Site
The Blackbird Mine is currently inactive. Workers at the mine operate the WTP and perform long-term
operations and maintenance (O&M) of the remedial actions and facilities. For safety reasons, vehicular
access by the public to the mine site is restricted by a gate near the West Fork Tailing Impoundment;
however, the mine area can be accessed by the public on foot or by horseback. The groundwater at the
mine is not currently used for domestic water supply. The O&M workers at the site use bottled water for
drinking water.
3.2.2 Panther Creek Properties and Forest Lands
Panther Creek from Blackbird Creek to the confluence with the Salmon River is a steeply incised creek
valley interspersed with flatter areas (Figure 3-3). Most of the land along the creek is public land under
the jurisdiction of USFS. The public lands are used for recreational activities, including fishing, hunting,
sightseeing, and camping. There are a number of undeveloped campsites along the creek and one
developed campground at Deep Creek. There are a number of private properties along the creek,
especially at the flatter areas. Most of the private properties include residences (full-time and part-time)
and some agricultural uses (primarily pasture). Residences along the Panther Creek drainage use private
wells or springs to obtain water.
3.2.3 Idaho Cobalt Project
In June 2008, USFS completed an environmental impact statement and has provided approval of the
Idaho Cobalt Project (ICP) in a ROD. The ICP is a proposed cobalt and copper mine that will include two
underground mine areas, a mill, a waste disposal site, and associated facilities on National Forest and
private lands within and adjacent to the Blackbird Mine Site (Figure 3-4). The area affected by the
proposed mineral development project will consist of surface disturbance on approximately 115 acres
(USFS, 2008). The Formation Capital Corporation (FCC) is the proposed developer of the ICP, which
consists of 146 unpatented mining claims for a total of 2,529 acres of mineral rights.
Surface and groundwater drain from the ICP site into Bucktail Creek, South Fork Big Deer Creek, Big
Deer Creek, and Panther Creek, all of which are being cleaned up under the Blackbird Mine remedial
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actions. In addition, a portion of the ICP (the Sunshine Mine) will be located within the Blackbird Mine
Site near the upper end of the Bucktail Creek drainage.
The date for completion of construction and commencement of active mining is not known.
3.3 History of Contamination
The following sections discuss the history of contamination at the site for both the mine site itself and for
the areas downstream from the mine site.
3.3.1 Blackbird Mine Site
RIs were conducted from 1995 through 2001 and are described in detail in the RI report and an
Addendum (Golder, 2001a and 2001b). RIs included studies to determine the nature and extent of
contamination in waste rock deposits, tailings deposits, surface waters, in-stream sediments, overbank soil
deposits, and groundwater at the Blackbird Mine Site and surrounding area. The RI was completed after
construction of most of the Early Actions at the mine site. The Early Actions (described in Section 3.4)
resulted in reduction in dissolved metals transported in surface water from the mine area and in removal
of contaminated overbank deposits along Panther Creek. A major focus of the RI was to determine the
metals loading from residuals and remaining sources following implementation of the Early Actions.
Information developed during the RI also was used to complete both human health and ecological risk
assessments.
The initial list of contaminants of potential concern (COPCs) at the site included arsenic, cobalt, copper,
manganese, nickel, and zinc. This list was narrowed down through the risk assessment process, and the
final contaminants of concern (COCs) include arsenic, cobalt, and copper. Sampling results from the RI
for each of the contaminated media at the site are summarized below:
• Waste Rock Deposits - Waste rock piles were sampled for arsenic, copper, and cobalt. Among the
waste rock piles sampled, maximum concentrations of arsenic, cobalt, and copper were
5,900 milligrams per kilogram (mg/kg), 3,210 mg/kg, and 20,200 mg/kg, respectively.
• Tailings Deposits - Approximately 2 million tons of tailings were deposited in the West Fork Tailings
Impoundment during the active mining operations. Maximum concentrations of arsenic and copper
(cobalt was not measured) in the tailings impoundment were 554 mg/kg and 650 mg/kg, respectively.
• Overbank Deposits - Maximum concentrations of arsenic, cobalt, and copper in the overbank areas
along Blackbird Creek were 138,000 mg/kg, 97,700 mg/kg, and 41,000 mg/kg, respectively.
• In-stream Sediments - Following completion of the Early Actions, sampling was conducted during
2000 and 2001. Stream bottom sediments were sampled in Blackbird Creek. Maximum concentrations
for arsenic, cobalt, and copper were 717 mg/kg, 4,250 mg/kg, and 1,330 mg/kg, respectively.
• Groundwater - Groundwater samples were collected from nine monitoring wells at the site. Maximum
concentrations of arsenic, cobalt, and copper in the monitoring wells were 0.048 mg/L, 6.83 mg/L,
and 19.8 mg/L, respectively.
• Surface Waters - The surface waters at the Site were sampled at different times of the year.
The primary purpose of the surface water sampling was to determine the remaining sources of metals
loading that needed to be addressed through remedial actions. Results of the surface water sampling
indicated that the water quality cleanup levels were being exceeded in Panther Creek, South Fork Big
Deer Creek, and Big Deer Creek downstream from the mine influences. During periodic sampling in
2000, maximum concentrations of arsenic, cobalt, and copper in Panther Creek were 0.006 mg/L,
0.075 mg/L, and 0.012 mg/L, respectively. Maximum concentrations of arsenic, cobalt, and copper in
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South Fork Big Deer Creek were 0.002 mg/L, 0.089 mg/L, and 0.155 mg/L, respectively. Maximum
concentrations of arsenic, cobalt, and copper in Big Deer Creek were 0.003 mg/L, 0.011 mg/L, and
0.021 mg/L, respectively.
3.3.2 Downstream Contamination
Contaminated sediments, tailings, waste rock, and soil (deposits) from the Blackbird Mine Site were
transported down Blackbird Creek and Bucktail Creek during high flow events and were deposited at
overbank areas and in-stream areas along Panther Creek, South Fork Big Deer Creek, and Big Deer
Creek. There is also evidence of transport and deposition of contaminated materials at several areas along
Panther Creek by irrigation waters diverted from Panther Creek.
• Overbank Deposits Along Panther Creek - A number of overbank areas along Panther Creek were
contaminated with sediments containing elevated concentrations of arsenic (in the 2003 ROD, arsenic
was determined to be the primary risk driver from a human health standpoint). The contaminated areas
on USFS lands included an area called Riprap Bar, the Deep Creek Campground, and an area near the
confluence with Napias Creek (Figure 3-3). The contaminated areas on private lands included the
former Panther Creek Inn, Cobalt Townsite, Noranda Pastures, George Fernandez property, Sillings
property, Chuck Fernandez property, Rogers property, Shook property (formerly the Strawn property),
Bevan property, Rufe property, and Hade property. Maximum concentrations of arsenic, cobalt, and
copper in the overbank sediments along Panther Creek were 1,940 mg/kg, 391 mg/kg, and 928 mg/kg,
respectively.
• Other Overbank Deposits - Along South Fork Big Deer Creek and Big Deer Creek, arsenic and metals
were of concern in the overbank deposits. Maximum concentrations of arsenic, cobalt, and copper in
the overbank sediments along South Fork Big Deer Creek were 820 mg/kg, 1,600 mg/kg, and
42,000 mg/kg, respectively. Maximum concentrations of arsenic, cobalt, and copper in the overbank
sediments along Big Deer Creek were 268 mg/kg, 619 mg/kg, and 17,200 mg/kg, respectively.
• In-stream Sediments - Arsenic and metals were of concern in the in-stream sediments. Maximum
concentrations of arsenic, cobalt, and copper in the in-stream sediments in Panther Creek were
203 mg/kg, 246 mg/kg, and 313 mg/kg, respectively. Maximum concentrations of arsenic, cobalt, and
copper in the in-stream sediments in South Fork Big Deer Creek were 176 mg/kg, 397 mg/kg, and
7410 mg/kg, respectively. Maximum concentrations of arsenic, cobalt, and copper in the in-stream
sediments in Big Deer Creek were 13 mg/kg, 70 mg/kg, and 385 mg/kg, respectively.
The properties along Panther Creek obtain their drinking water from wells or springs. The wells and
springs were sampled during the RI, and three of these drinking water sources had arsenic concentrations
above the maximum contaminant level (MCL) of 0.010 mg/L. These included: George Fernandez spring
(0.078 mg/L), Warburton well (0.023 mg/L), and abandoned Panther Creek Inn well No. 2 (0.016 mg/L).
EPA conducted an evaluation of these wells, examining their hydrogeology and geochemistry, and
determined that the elevated arsenic concentrations were not the result of contamination from the
Blackbird Mine (EPA, 2003).
High runoff during spring snowmelt in 2008 and 2009 resulted in deposition of overbank materials with
elevated concentrations of arsenic and cobalt along Blackbird and Panther Creeks in certain of the areas
where remediation was completed. Remedial activities to address the recontamination from high flow
events are discussed in Sections 4.4.8 through 4.4.10.
3.3.3 Waste Management Area
The Waste Management Area (WMA) for the Site is shown on Figure 3-2. The WMA includes the mine
area itself, including all of the remaining waste rock dumps. The WMA also extends downstream along
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the two major drainages to the most downgradient features of the remedial actions—the lower Pumpback
Station in Bucktail Creek and the downstream end of Blackbird Creek at Panther Creek Road.
3.4 Initial Response Actions
Initial response actions at the Blackbird Mine Site were conducted under EPA's removal authority and
included both time-critical removals (Emergency Removal Actions) and non time-critical removals (Early
Actions). The locations of the initial response actions are shown on Figures 3-2, 3-3, and 3-5.
3.4.1 Time-critical Removal (1993 to 1994)
An Emergency Removal Action was conducted in 1993 and 1994 at the West Fork Tailings Impoundment
to stabilize the dam and to minimize the potential for release of tailings into Blackbird and Panther
Creeks. This action was taken in accordance with an Action Memorandum and pursuant to an AOC issued
by EPA to the BMSG in July 1993 (EPA Docket No. 1093-07-04-106). Prior to these actions, West Fork
Blackbird Creek flowed through a buried concrete culvert beneath the tailings pile, and there was concern
that mass failure of the tailings storage facility was possible if the culvert became plugged.
The Emergency Removal Actions included the following (Knight Piesold, 1994):
• Construction of a concrete-lined spillway excavated through bedrock at the dam to pass a 500-year
flood
• Construction of a new channel for the West Fork Blackbird Creek over the top of the impoundment to
convey the 500-year flood; the channel consists of a flood-flow channel, a low-flow channel, and a
2-foot-thick compacted clay liner
• Installation of a slurry cutoff trench into bedrock at the upstream end of the impoundment to minimize
alluvial groundwater discharge into the tailings
• Filling of the existing concrete drainage culvert beneath the tailings with pea gravel
3.4.2 Non Time-critical Removals (1995 to 2002)
Non time-critical removal actions (Early Actions) were initially implemented to address releases of
dissolved cobalt and copper into area streams downstream from the mine site. Concentrations of cobalt
and copper were significantly elevated in stream waters and sediments such that the populations of
benthic invertebrates and resident fish were severely impacted. In addition, historic populations of
anadromous fish (including threatened and endangered species) no longer existed in area streams.
Subsequent to initiation of the Early Actions, it was discovered that overbank sediments along Panther
Creek were significantly elevated in arsenic. Human health risk assessments established that there were
unacceptable risks associated with the arsenic in the overbank deposits at many of the properties along
Panther Creek (CH2M HILL, 1998 and 1999). The Early Actions therefore included cleanup of
contaminated overbank deposits at both private properties and USFS properties along Panther Creek.
The Early Actions were initiated during the summer of 1995 and were continued each year through 2002.
These actions were conducted in accordance with an Action Memorandum and pursuant to an AOC
issued by EPA to the BMSG in June 1995 (EPA Docket No. 10-95-0083, as amended). The Early Actions
were conducted in five phases, with the initial phases focused on controlling sources of ARD that were
impacting water quality. Generally, Phase I facilities were built during the 1995 construction season,
Phase II facilities were built during the 1996 and 1997 construction seasons, and Phase III facilities were
initiated during the 1997 construction season and completed during the summer of 1998.
Subsequent to the initiation of Early Actions to address water quality (Phases I through III), EPA
determined that arsenic-contaminated materials were present along Blackbird Creek and that some of
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these materials had been transported down Blackbird Creek and deposited at overbank areas along
Panther Creek. Phases IV and V of the Early Actions therefore focused on overbank deposit removal
actions, which were conducted along Panther Creek and Blackbird Creek to abate potential risk to human
health associated with elevated levels of arsenic present in these deposits. Phase IV and V actions also
reduced the potential risk to terrestrial and aquatic ecological receptors. Phase IV activities were initiated
in 1998 and completed in 1999. Phase V activities were initiated in 1999; however, a major forest fire
during 2000 caused delays, and Phase V was not completed until 2001.
During the fall of 2002, additional Early Actions were performed under the 1995 AOC to collect
contaminated waters in the Bucktail Creek and Meadow Creek drainage basins that were not intercepted
during previous actions.
Subsequent to the Early Actions removals, removals of overbank materials occurred and were considered
remedial actions. A detailed discussion on the additional overbank material removals is included in
Section 4.4.
3.4.2.1 Meadow Creek and Blackbird Creek
Early Actions in Meadow Creek and Blackbird Creek drainages included:
• Construction of an earth filled clay-core dam (7100 Dam) to collect and store water draining from the
waste rock dumps in the Meadow Creek drainage basin
• Installation of piping from the 7100 Dam and from the underground workings at the 6850 adit to the
existing WTP
• Upgrade and expansion of the existing WTP to increase flow capacity to 800 gallons per minute
(gpm) and to improve effluent quality
• Installation of a sludge pipeline from the WTP to the underground mine at the Hawkeye Ramp to
dispose of sludge generated by the WTP
• Construction of contaminated water collection ditches and pipelines to route contaminated water to
the 7100 Dam reservoir
• Installation of a series of clean water ditches and pipelines to divert clean water around the
contaminated areas and the 7100 Dam reservoir
• Relocation and consolidation of waste rock from the canyon walls of Meadow Creek, Blackbird
Creek, and Hawkeye Gulch to the Meadow/Blackbird Creek bottoms
• Covering of waste rock in the Meadow Creek and Blackbird Creek bottoms with a clean earth cap and
installation of drains beneath the cap to route contaminated waters to the WTP
• Construction of concrete channels across the top of the capped waste rock to convey Meadow Creek
and Blackbird Creek
• Removal of visually obvious and eroding tailings from overbank deposits along Blackbird Creek
• Construction of three sediment basins along Blackbird Creek
3.4.2.2 Bucktail Creek Drainage
Early Actions in the Bucktail Creek drainage included:
• Construction of an earth filled clay-core dam (7000 Dam) to collect, store, and divert contaminated
water to the WTP through the underground workings via the 6930 adit and 6850 level
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• Construction of a groundwater collection system downstream of the 7000 Dam, with a pump station
(upper Bucktail Pump Station) and pipelines to the 6930 adit
• Relocation of waste rock piles into the Blacktail Pit
• Construction of a series of clean water ditches and pipelines to divert water around the waste rock
dumps and the 7000 Dam, and to deliver water to Bucktail Creek downstream of the 7000 Dam
• Construction of a contaminated water collection ditch (7200 ditch) to divert contaminated water to the
7000 Dam
• Construction of a series of sediment control ditches within the waste rock piles
• Installation of two debris traps in the Bucktail Creek channel
• Construction of two temporary sediment control dams (upper and lower sediment dams) along
Bucktail Creek
• Removal of contaminated debris flow material along Bucktail Creek between the upper and lower
sediment dams with disposal at the Blacktail Pit
3.4.2.3 Overbank Deposit Removal Actions
Beginning in late 1998 and continuing through 2002, overbank deposit removal actions were conducted
along portions of Panther Creek and Blackbird Creek. These actions were primarily focused on removal
of mine-related materials containing elevated concentrations of arsenic. The overbank deposit removal
actions included:
• Removal of the contaminated materials until testing indicated that the underlying soils were below the
cleanup levels, or until the water table was reached
• Disposal of removed materials at the West Fork Tailings Impoundment
• Backfilling of excavated areas with clean soil and revegetation with native species or pasture grasses,
as appropriate
• Stabilization of excavated areas with installation of riprap, grade control structures, and/or bend way
weirs
Removal actions were completed at the following sites on private properties (Figure 3-3):
• At the former Panther Creek Inn and the former Panther Creek Inn campground
• Cobalt Townsite and the adjacent pasture area (Noranda Pastures) immediately downstream of the
Cobalt Townsite
• Sillings/Fernandez area located approximately 2 miles downstream from the Cobalt Townsite
• Bevan property located approximately 5.5 miles upstream from the confluence of Panther Creek and
the Salmon River
• Rufe Property located approximately 5.3 miles upstream from the confluence of Panther Creek and
the Salmon River
• Roger Property located 6.1 miles upstream from the confluence of the Panther Creek and the Salmon
River
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Removal actions were completed at the following sites on USFS lands:
• The Riprap Bar area approximately 1 mile downstream from the Cobalt Townsite
• Deep Creek Campground located just upstream of the confluence of Deep Creek and Panther Creek.
• Napias Creek area just upstream from the confluence of Napias and Panther Creeks.
Removal actions were completed at Blackbird Creek targeting pipeline break materials, overbank deposits
exceeding criteria, and streambed sediments. Removal actions and in-stream stabilization along the
Blackbird Creek occurred from the Blackbird Mine Site WTP to the confluence of Panther Creek.
3.5 Basis for Taking Remedial Actions
The ecological risk assessments (Golder 2000 and CH2M HILL 2001), and a human health risk
assessment (CH2M HILL 2002) determined that there were still unacceptable risks associated with
contamination remaining following implementation of the Emergency Removal Actions and Early
Actions. The remaining contamination that needed to be addressed through remedial actions included:
• Water Quality - Concentrations of dissolved cobalt and copper remained above the water quality
cleanup levels in Panther Creek, Big Deer Creek, and South Fork Big Deer Creek. This remaining
contamination posed unacceptable risks to aquatic organisms.
• Groundwater - Concentrations of arsenic and copper in monitoring wells at the mine were above the
MCLs for potable water. The groundwater would pose unacceptable risks to human health if used as a
drinking water source.
• Overbank Deposits - Concentrations of arsenic in overbank deposits not addressed during the Early
Actions posed an unacceptable risk to human health and to ecological receptors. These deposits were
located along Blackbird Creek and along lower Panther Creek. In addition, overbank deposits along
Blackbird Creek could pose a risk to human health if mobilized during high flow events and deposited
at overbank areas downstream along Panther Creek.
• In-stream Sediments - Concentration of arsenic, cobalt, and copper in the in-stream sediments posed
an unacceptable risk to human health and to ecological receptors. In-stream sediments themselves
posed a risk to aquatic organisms in Panther Creek, Big Deer Creek, and South Fork Big Deer Creek.
In addition, in-stream sediments in Blackbird Creek could pose a risk to human health if mobilized
during high flow events and deposited at overbank areas downstream along Panther Creek.
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SECTION 4
Remedial Actions
4.1 Regulatory Actions
Remedial Actions at the Blackbird Mine Site were conducted subsequent to the Emergency Removal and
Early Actions and have been governed by several regulatory and enforcement actions. These include the
following:
• EPA issued a ROD for the Blackbird Mine Site in March 2003 that specified the preferred alternative
for Remedial Actions at the Site (EPA, 2003).
• EPA issued a UAO to the BMSG in July 2003 for Remedial Design and Remedial Actions at the
Blackbird Mine Site (EPA Docket No. 10-2003-0112), and amended it in August 2003,
February 2011, and February 2013. The SOW has been modified seven times since the UAO was
issued in July 2003.
• EPA issued an ESD to the ROD in July 2007. This ESD changed the dissolved cobalt cleanup level in
site waters from 0.038 mg/L to 0.086 mg/L based on site-specific biological studies.
• EPA issued an ESD to the ROD in May 2012. The ESD documents two significant changes of the
remedy selected in 2003 ROD:
- Established cleanup levels for cobalt in overbank deposits for Blackbird, South Fork Big Deer
Creek, Big Deer Creek, and Panther Creeks and lowered the cleanup level for groundwater from
1.53 mg/L to 0.009 mg/L (See Table 4-2 for all cleanup levels)
- Revised recreational-use scenario for certain USFS lands along Panther Creek raising the arsenic
cleanup level from 590 mg/kg to 1,180 mg/kg and the cobalt cleanup level from 390 mg/kg to
780 mg/kg
- Cleanup levels for cobalt in Blackbird Creek for overbank deposits and in-stream sediments are:
2,700 mg/kg downstream of mine gate and 5,500 mg/kg upstream of mine gate.
4.2 Remedial Action Objectives and Cleanup Levels
4.2.1 Remedial Action Objectives
Remedial action objectives (RAOs), developed during the FS and finalized in the ROD, provide a general
description of what the cleanup action was to accomplish. Table 4-1 lists the RAOs for this Site.
TABLE 4-1
Remedial Action Objectives for Blackbird Mine Site
Blackbird Mine Site, Lemhi County, Idaho
Receptors of
Media Concern Remedial Action Objectives
Surface Soils Human Reduce direct contact (such as ingestion and dermal contact) with surface soils containing COCs in
excess of the cleanup levels.
Reduce migration of surface soil and overbank deposits to downstream areas that would deposit
concentrations of contaminant of concern (COCs) in excess of the cleanup levels established at
those downstream areas.
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TABLE 4-1
Remedial Action Objectives for Blackbird Mine Site
Blackbird Mine Site, Lemhi County, Idaho
Receptors of
Media Concern Remedial Action Objectives
Aquatic Reduce migration of metals into the water column of the streams so that the cleanup levels for the
COCs established for the streams are not exceeded.
Reduce migration of the surface soils to in-stream sediments so that the cleanup levels for the
COCs established for in-stream sediments are not exceeded.
Prevent use of contaminated groundwater underlying waste management areas.
Maintain water quality for protection of human health.
Reduce direct contact with surface water containing COCs in excess of the cleanup levels.
Restore and maintain water quality and aquatic biota conditions capable of supporting all life
stages of resident salmonids and other fishes in South Fork Big Deer Creek and Big Deer Creek.
Restore and maintain water quality and aquatic biota conditions capable of supporting all life
stages of resident and anadromous salmonids and other fishes in Panther Creek.
Reduce concentrations of COCs in Blackbird Creek to improve water quality such that cleanup
levels are not exceeded in Panther Creek and to support some aquatic life in Blackbird Creek.
Reduce concentrations of COCs in Bucktail Creek to improve water quality such that cleanup levels
are not exceeded in South Fork of Big Deer and Big Deer Creeks.
Sediments Aquatic Reduce direct contact with in-stream sediments containing COCs in excess of the cleanup levels.
Reduce migration of in-stream sediments to downstream areas so that the cleanup levels for the
COCs established for in-stream sediments at those downstream areas are not exceeded.
Restore and maintain sediment quality and aquatic biota conditions capable of supporting all life
stages of resident salmonids and other fishes in South Fork Big Deer Creek and Big Deer Creek.
Restore and maintain sediment quality and aquatic biota conditions capable of supporting all life
stages of resident and anadromous salmonids and other fishes in Panther Creek.
Reduce concentrations of COCs in Blackbird Creek to improve sediment quality such that cleanup
levels are not exceeded in Panther Creek and to support some aquatic life in Blackbird Creek.
Reduce concentrations of COCs in Bucktail Creek to improve sediment quality such that cleanup
levels are not exceeded in South Fork of Big Deer and Big Deer Creeks.
Source: EPA, 2003
Note:
COC = contaminant of concern
4.2.2 Cleanup Levels
Cleanup levels for overbank deposits, in-stream sediments, surface water, and groundwater at the Site
were established for arsenic, cobalt, and copper in the ROD and ESDs for the various drainages. These
cleanup levels were based on promulgated standards, site-specific risk assessments, and/or biological
studies. The cleanup levels are summarized in Table 4-2.
Groundwater Human
Surface Water Human
Aquatic
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TABLE 4-2
Summary of Cleanup Levels for Blackbird Mine Site Media
Blackbird Mine Site, Lemhi County, Idaho
Drainage
Media
Arsenic
Cobalt
Copper
Panther Creek
Overbank Deposits—Residential Use
100 mg/kg
97 mg/kg
NEa
Overbank Deposits—Recreational Use (USFS
Campgrounds)
280 mg/kg
180 mg/kg
NEa
Overbank Deposits-Recreational Use (Other
Undeveloped Camping Areas)
400 mg/kg
260 mg/kg
NEa
Overbank Deposits—Recreational Day Use on
Road Side
590 mg/kg
390 mg/kg
NEa
Overbank Deposits—Recreational Day Use on
Opposite side Road Side
1,180 mg/kg
780 mg/kg
NEa
In-stream Sediments
35 mg/kg
80 mg/kg
149 mg/kg
Surface Water5
0.010 mg/Lc
0.086 mg/L
IWQSd
South Fork Big Deer
Creek
Overbank Deposits—Recreational Day Use
In-stream Sediments
NEa
35 mg/kg
NEa
436 mg/kg
NEa
637 mg/kg
Surface Water
0.010 mg/Lc
0.086 mg/L
IWQSd
Big Deer Creek
Overbank Deposits—Recreational Day Use
NEa
NEa
NEa
In-stream Sediments
35 mg/kg
80 mg/kg
149 mg/kg
Surface Water
0.010 mg/Lc
0.086 mg/L
IWQSd
Blackbird Creek
Overbank Deposits—Upstream from Mine
Gate
8,500 mg/kg
5,500 mg/kg
NEa
Overbank Deposits—Downstream from Mine
Gate
4,300 mg/kg
2,700 mg/kg
NEa
In-stream Sediments—Upstream from Mine
Gate
8,500 mg/kg
5,500 mg/kg
NEa
In-stream Sediments—Downstream from
Mine Gate
4,300 mg/kg
2,700 mg/kg
Narrative Goal0
Surface Water
0.010 mg/Lc
Narrative Goal0
Narrative Goal0
Bucktail Creek
Overbank Deposits—Recreational Day Use
NEa
NEa
NEa
In-stream Sediments
Narrative Goal0
Narrative Goal0
Narrative Goal0
Surface Water
Narrative Goal0
Narrative Goal0
Narrative Goal0
Groundwater
Residential
0.010 mg/L
0.009 mg/L
3.060 mg/L
Mine Worker
0.010 mg/L
0.023 mg/L
3.060 mg/L
a NE = Cleanup level Not Established for this contaminant because there was no unacceptable risk shown.
b Water Quality cleanup levels for arsenic are total and for cobalt and copper are dissolved.
CIDEQ human health water quality standard.
d IWQS = Idaho Water Quality Standard: The standard is hardness-based, and the typical hardness in area creeks varies from approximately
20 mg/L to 100 mg/L.
0The cleanup level is a non-numeric narrative goal. See text below for an explanation of the narrative goals.
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IDEQ performed Use Attainability Analyses of Blackbird Creek and Bucktail Creek and determined
that certain uses and water quality criteria could not be applied to these creeks (IDEQ, 1997 and 2002).
The ROD therefore did not require that numeric surface water cleanup levels for cobalt and copper be
met in Blackbird Creek or Bucktail Creek. However, the ROD required that narrative goals be met.
The non-numeric narrative goals established in the ROD are:
• Blackbird Creek - "The remedial goal for Blackbird Creek is to improve water and sediment quality
such that cleanup levels are not exceeded downstream in Panther Creek. In addition, the remedial goal
for Blackbird Creek is to support aquatic life at levels similar to that of nearby reference streams,
although not necessarily to support salmonids or metals-sensitive macroinvertebrate taxa."
• Bucktail Creek - "The remedial goal for Bucktail Creek is to improve water and sediment quality such
that cleanup levels are not exceeded downstream in South Fork Big Deer Creek or in Big Deer
Creek."
4.3 Remedy Description
The ROD (EPA, 2003) selected site-specific Remedial Actions to take place at the Blackbird Mine Site
subsequent to the Emergency Removal and Early Actions. The Emergency Removal and Early Actions
were incorporated as part of the Remedial Actions by the ROD. Because the Blackbird Mine affects three
different drainages, the Remedial Actions for the Blackbird Mine Site were divided into three remediation
areas: (1) Blackbird Creek, (2) Bucktail Creek, and (3) Panther Creek. The remedies selected in the ROD
for each of these drainages are described below and shown on Figures 3-2, 3-3, and 3-5. The actual
implementation of the Remedial Actions, including the schedule of construction activities, is described in
Section 4.4.
4.3.1 Blackbird Creek
The selected remedy for the Blackbird Creek drainage area included:
• Collection of Meadow Creek seeps
• Covering the West Fork Tailings impoundment and treating tailings impoundment seepage
• Removal with selective stabilization of overbank deposits along Blackbird Creek
• Natural recovery of in-stream sediments in Blackbird Creek
• Institutional controls (ICs)
The selected remedy consisted primarily of removing overbank deposits along Blackbird Creek with
selective physical stabilization by armoring to reduce the risks of direct human contact with the overbank
deposits. The removal and selective stabilization also reduce the risk of remobilization during high flow
events in Blackbird Creek with downstream deposition at overbank areas along Panther Creek.
The selected remedy also included collection and treatment of cobalt in groundwater draining from the
West Fork Tailings Impoundment. Groundwater draining from the West Fork Tailings Impoundment is
high in cobalt and iron and typically accounts for over half of the cobalt loads measured at the mouth of
Blackbird Creek. At the time that the ROD was issued, the dissolved cobalt cleanup level for surface
waters at the Site had been established at 0.038 mg/L, and concentrations of dissolved cobalt in Panther
Creek were greater than the cleanup level during much of the year (typically about 0.050 to 0.060 mg/L
during low flow conditions). Subsequent to the issuance of the ROD, the BMSG conducted a study of
site-specific cobalt toxicity under EPA and Trustee oversight. Based on the results of this toxicity study,
EPA revised the surface water cobalt cleanup level for the Site from 0.038 mg/L to 0.086 mg/L. Surface
water monitoring in Panther Creek since 2003 has indicated that the dissolved cobalt concentrations have
been consistently less than the revised cobalt cleanup level. Therefore, EPA determined that treatment of
groundwater from the West Fork Tailings Impoundment to address cobalt in surface waters is no longer
required.
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IC objectives consist of requirements to protect the remedy, requirements to preclude uses that would
result in unacceptable risks (such as residential use), and maintenance of access controls (fencing and
gates) to limit unauthorized use (see Section 7.1.6 for details of the ICs).
4.3.2 Bucktail Creek
The selected remedy for the Bucktail Creek drainage area included:
• Groundwater seep collection and treatment
• Diversion of Bucktail Creek around the South Fork Big Deer Creek
• Natural recovery of sediments
• ICs
The selected alternative has groundwater seep collection and treatment as well as natural recovery for
stream sediments. This alternative includes diverting Bucktail Creek in a pipeline or ditch around South
Fork Big Deer Creek to discharge directly into Big Deer Creek. The groundwater seep collection cannot
intercept all of the groundwater, and Bucktail Creek still has elevated metals, which would prevent water
quality goals from being met in South Fork Big Deer Creek. By diverting Bucktail Creek around South
Fork Big Deer Creek in a pipeline or ditch, water quality goals in both South Fork of Big Deer and Big
Deer Creeks can be met with this alternative. IC objectives are similar to those required for Blackbird
Creek.
4.3.3 Panther Creek
The selected remedy was a combination of removal of contaminated soils and ICs. The contaminated
areas at the Rufe, Shook, and Hade properties were comparatively small. Therefore, soil in overbank
deposits was removed to the human health cleanup level for arsenic. The contaminated overbank deposits
at the Rogers property included both small and large areas. Soil in the smaller areas was removed.
However, the larger areas require ICs, described in Section 6.1.3, to preclude future residential and
intensive recreational development.
Soil management ICs are also needed at some of the properties where overbank deposits were removed as
part of Early Actions or Remedial Actions to preclude unacceptable future exposure if underlying soils
with elevated arsenic and cobalt concentrations are brought to the surface (as a result of erosion, digging
or construction activities). The private properties that require ICs for underlying soils are: former Panther
Creek Inn, Cobalt Townsite, Noranda Pasture, Sillings, Fernandez, and Bevan. The properties under
USFS control that require ICs are the Riprap Bar and Deep Creek Campground. The ICs are described in
Section 7.1.6.
4.3.4 Groundwater
Some of the groundwater monitoring wells at the mine have concentrations of arsenic, copper, and cobalt
above the MCLs or risk-based levels (see Section 6.3.2 for recent groundwater monitoring results). There
are currently no drinking water wells at the mine. Potential ingestion of contaminants in groundwater in
drinking water wells at the mine will be addressed through ICs. Contaminated groundwater migration off
of the mine was not addressed in the ROD due to:
Groundwater downgradient of the waste management area shown on Figure 3-2 was not contaminated
above the MCL for arsenic. In addition, cobalt and copper were not shown to pose a potential risk from
groundwater ingestion.
No drinking water wells downgradient from the mine are impacted by mine sources. In the Blackbird
Creek drainage, the nearest drinking water well is at the former Panther Creek Inn, located approximately
2.5 miles downgradient from the nearest significant contaminant source (the West Fork Tailings
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Impoundment). Water quality monitoring at this well indicated that concentrations of arsenic, cobalt, and
copper were significantly lower than the MCLs or risk-based levels at the time of issuance of the ROD.
In 2012, the second ESD to the ROD revised the cobalt groundwater cleanup level from 1.53 mg/L to
0.009 mg/L. The well at the former PCI property has cobalt concentrations significantly higher than the
0.009 mg/L cleanup level; therefore, the 2012 ESD provides that ICs are needed to assure no one uses the
groundwater for drinking water. Cobalt in groundwater at the PCI and downstream along Panther Creek is
discussed further in Sections 6 and 7. In the Big Deer Creek drainage, there are currently no drinking
water wells downgradient from the mine.
4.3.5 Contingent Actions
There was uncertainty whether some of the components of the remedial actions would be effective in
meeting the RAOs and cleanup levels. Therefore, the ROD determined that monitoring and evaluations
would be needed after construction of the remedial alternative. Based on the monitoring results and
further evaluations, contingent actions may be necessary for some areas of the site in the future if cleanup
levels are not met. The ROD identified contingent actions that include:
• Actions to reduce the hydraulic head upstream of the cutoff wall on upper Blackbird Creek to reduce
seepage through the wall and metals loading from groundwater discharging to Blackbird Creek. As an
alternative, groundwater could be intercepted downgradient from the cutoff wall and pumped to the
existing WTP for treatment.
• Increases to the water storage and/or treatment capacity, and/or revisions to the treatment schedule, if
there is insufficient capacity to meet water storage and treatment needs.
• Additional removal of overbank deposits along Blackbird Creek.
• Run-on/run-off controls for the cover on the West Fork Tailings Impoundment, if monitoring
indicates excessive erosion or water quality impacts from runoff.
• Measures to reduce the water table beneath the West Fork Tailings Impoundment, if the water table
begins to rise to a level that threatens the stability of the dam.
• Additional collection and treatment of Bucktail Creek seeps, if they result in unacceptable metals
loading to Big Deer Creek.
• Removal of Bucktail Creek sediments and/or overbank materials, or installation of a passive (or
semi-passive) treatment system near the confluence of the South Fork Big Deer Creek and Big Deer
Creek, if water quality goals in Big Deer Creek are not achieved because of metals leaching from
sediments/overbank materials along Bucktail Creek.
• Alternatives to address metals discharges to South Fork Big Deer Creek from groundwater and/or
overbank materials if water quality goals in South Fork Big Deer Creek are not achieved.
• Additional removals along Panther Creek if monitoring results following storm events indicate
deposition of overbank deposits that exceed remediation goals.
• Monitoring the selected response actions to determine if the mixing zone for the copper water quality
standard and cobalt cleanup level is protective of cold water biota to meet the substantive NPDES
requirements for both Panther Creek and Big Deer Creek. If monitoring indicates that the mixing
zones are not protective of cold water biota, alternatives will be evaluated to meet the substantive
NPDES mixing zone requirements.
• Alternatives to address metals loads to Big Deer Creek downstream from South Fork Big Deer Creek
if monitoring indicates that these loads result in exceedances of water quality goals in Big Deer Creek.
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4.4 Remedy Implementation
Remedial Actions specified in the ROD have been constructed from 2003 through 2012. The remedial
actions constructed during each of these years are described below. Several of the Remedial Actions
specified in the ROD have not yet been completed and are discussed in Section 4.4.11. Remedial designs
for each year's remedial action construction were generally completed during the spring and early
summer of that year's construction.
4.4.1 2003 Construction
• Upper and Lower Blackbird Creek - Overbank construction activities on Upper and Lower Blackbird
Creek began in late August 2003 and were completed by early November 2003. Remedial activities
included excavation of overbank materials to arsenic cleanup levels (8,500 mg/kg arsenic in the Upper
Blackbird Creek and 4,300 mg/kg arsenic in the Lower Blackbird Creek) with disposal at the West
Fork Tailings Impoundment. In selected areas, overbank deposits were stabilized with riprap to avoid
mobilization during high flow events.
• Meadow Creek - Construction of the 7560 Dam and collection ditch to route clean waters around the
7100 Dam. The actions also included removal of a small earth fill dam (7350 Dam) to allow
contaminated waters to flow to the 7100 Dam catchment area.
• Bucktail Creek - Construction of 4-inch and 6-inch-diameter high density polyethylene (HDPE)
piping from the upper Bucktail Pumpback Station to the 6930 adit to increase conveyance capacity for
contaminated groundwater collected downgradient from the 7000 Dam.
4.4.2 Summer 2004 Construction
• Overbank Deposits - Overbank deposits were remediated along Panther Creek from mid-August
through September 2004. Contaminated soil was excavated and hauled to the West Fork Tailings
Impoundment for disposal. Depending on location, clean replacement soils were spread over the
excavated areas and revegetated. Overbank deposits were remediated along lower Panther Creek at the
Hade, Rogers, and Shook properties. Also, overbank deposits were remediated at the former Panther
Creek Inn and Campground in areas where removals were not conducted during the Early Actions in
1998.
• Lower Blackbird Creek - Contaminated in-stream and overbank deposits were removed from the
Blackbird Creek channel downstream from the Panther Creek Road bridge. In addition, earthen
containment berms and deflector structures were constructed along the Blackbird Creek channel in
this reach to reduce the potential for channel migration and erosion.
4.4.3 Fall 2004 through Winter 2005 Construction
Construction began on several elements of the remedial actions in fall of 2004 and continued into early
2005 until construction was shut down by winter weather. The construction elements installed during the
fall of 2004 and early 2005 included:
Upper Blackbird Creek - Construction of a new pumping well downgradient from the groundwater cutoff
wall near the WTP, with piping to the WTP. This well collects contaminated groundwater that bypasses
the cutoff wall and directs it to the WTP for treatment.
Upper Bucktail Creek - The eastern embankment section of the upper Bucktail Creek sediment dam was
removed to expose the native subgrade soils and seeps/springs along the east side of the drainage.
Excavated soils were placed as embankment fill upgradient of the western part of the dam, and to
establish a temporary diversion dam upgradient of the fill area. Seep collection structures with associated
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piping were installed to collect contaminated seeps and direct their flow to the lower Bucktail pumping
station.
Overbank Deposits Along Panther Creek - High flows during the spring of 2003 resulted in mobilization
of arsenic-contaminated materials along Blackbird Creek with transport downstream and redeposition at
areas along Panther Creek that had been previously cleaned up during the Early Actions. Testing indicated
that some of these redeposited overbank materials contained arsenic above the cleanup levels and
therefore needed to be removed. Overbank deposits were excavated from the Cobalt Townsite, Noranda
Pastures, and Sillings property and were hauled to the West Fork Tailing Impoundment for disposal.
A 12-inch layer of clean fill material was subsequently placed in selected portions of the removal areas.
4.4.4 2005 through 2006 Construction
The following remedial action construction activities were completed during the 2005 and 2006
construction seasons. This construction was originally planned to be completed during the 2005
construction season, but portions of the construction had to be delayed until the 2006 construction season
due to the onset of winter weather in 2005.
4.4.4.1 Bucktail Creek Construction
• Reconstruction of the Bucktail Creek channel through Upper Bucktail Sediment Dam removal area
• Construction of seepage collection structures for three contaminated seeps between the Upper
Bucktail Sediment Dam and the Lower Bucktail Pump Station
• Construction of a gravity drain line from the Upper Bucktail Sediment Dam area to the Lower
Bucktail Pump Station with connections to seep collection structures and groundwater pumping wells
• Construction of the lower Bucktail Pumping Station and associated piping to pump contaminated
waters to the upper Bucktail Pumping Station
• Modifications to the upper Bucktail Pump Station to handle increased flows
4.4.4.2 Blackbird Creek Construction
• The walls of the concrete channel conveying clean waters of Blackbird Creek were damaged by high
groundwater and winter freeze-thaw conditions in the area upgradient from the groundwater cutoff
wall and at the confluence of Blackbird Creek and Meadow Creek. Significant repair actions were
required to address this problem including: excavation of the soils adjacent to the channel; placement
of drain piping at the base of the channel walls; backfill adjacent to the channel with free-draining
talus rock materials; insulation of the channel and talus materials to reduce freezing potential in the
backfilled materials; installation of steel struts at the top of the channel; and instrumentation to detect
future movement of the channel walls during freeze-thaw conditions.
• It was discovered that an old concrete culvert beneath the fill materials adjacent to the WTP was
carrying water contaminated with high concentrations of cobalt and copper. A manhole over this
culvert was modified to collect the contaminated waters, and a pump and piping system was installed
to pump the waters to the WTP for treatment.
4.4.4.3 Overbank Deposits Along Panther Creek
• Overbank deposits were removed from two targeted areas at the Rufe Property along lower Panther
Creek. Excavated materials were hauled to the West Fork Tailings Impoundment for disposal.
The removal areas were backfilled with clean fill and reseeded.
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4.4.5 2007 Construction Summary
Minimal construction was performed during the 2007 construction season, mainly to complete and refine
construction elements begun in previous years. This construction included completion of the Blackbird
Creek channel wall modifications, as well as modifications to the pumping control system at the Lower
Bucktail Pumping Station to correct a problem with cavitation during pump startup.
4.4.6 2008 Construction Summary
There were no significant construction activities during the 2008 year.
4.4.7 2009 Construction Summary
The following sections describe the remedial action construction activities that were completed during the
2009 construction season. The removals conducted along Blackbird and Panther Creeks were in response
to the high flow events encountered during the spring of 2008.
4.4.7.1 Blackbird Creek Removals and Stabilization
• Tailings pipeline break materials and overbank removals, including bed load deposits located above
the water table and below the seasonal high water mark were targeted for removal between the
Blackbird Creek WTP and the former Panther Creek Inn, mostly from the south side along the
alignment of the old concrete tailings pipeline (Figure 4-1). Overbank and pipeline break materials
with arsenic concentrations greater than 500 mg/kg were removed, and concentrations between
300 and 500 mg/kg were either removed or stabilized. A total of about 42,700 cubic yards (cy) of
tailings, overbank, and bed load materials were removed (Golder, 201 lb). Backfill of removal areas
was conducted in selected areas.
• In areas where removal of materials with elevated arsenic concentrations was not feasible due to
stability and safety issues, materials were armored to protect against mobilization during high flow
events. This included:
• Riprap armoring along exposed banks that could not be removed
• Riprap armoring at bendway wires or hard points for protection and stability of bench materials
• Riprap armoring at the base of the slope to prevent erosion from Blackbird Creek
Limited in-channel stabilization construction was also conducted in 2009 for Blackbird Creek. The entire
in-channel stabilization effort is described in Section 4.4.8.1.
4.4.7.2 Panther Creek Overbank Removals
Overbank removals were conducted along Panther Creek at one public property and three private
properties including Deep Creek Campground, Cellan Property, Bevan Property, and Rufe Property.
Backfill of removal areas were conducted in accordance with the current work plan. The details of the
removal of each area are described below:
• Deep Creek Campground - 150 to 200 cy removed
• Cellan Property; pasture - 1,235 cy removed
• Bevan Property; pasture, low bar area, and campground - 2,570 cy removed
• Rufe Property; pasture and bar area - 1,330 cy removed
4.4.8 2010 Construction Summary
The following sections describe the remedial action construction activities completed during the 2010
construction season. Primary construction activities included addressing the recontamination of Blackbird
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and Panther Creeks from the spring high flow events of 2008 and 2009, including overbank removal and
in-channel stabilization.
4.4.8.1 Blackbird Creek Overbank Removals and In-channel Stabilization
Three main types of materials along Blackbird Creek were targeted for testing and removal; pipeline
break materials, overbank deposits, and streambed sediments. Removal activities were performed between
Blackbird Creek Stations 280+00 and 324+00, 231+50 to 241+50, 171+50 to 181(Figure 4-1). A total of
approximately 81,000 cy of pipeline break, overbank, and bedload material were removed and relocated
(Golder, 2011).
Although the in-channel stabilization of Blackbird Creek occurred in both 2009 and 2010 construction
seasons, the details for the entire stabilization effort will be described in this section. In-channel
stabilization for Blackbird Creek construction was segregated into eight distinct areas (Figure 4-1). A total
of 28,800 cy of bed load and overbank material was excavated and hauled to West Fork Tailings
Impoundment, and a total of 28,900 cy of riprap was used for armoring. The construction activities in
each stabilization area are described below.
Area 1 - Construction of 13 grade control structures plus bed load, and slope side removals with elevated
arsenic and/or high erosion potential into Blackbird Creek.
Area 2 - Construction of seven grade control structures.
Area 3 - Construction of 13 grade control structures and six bendway weirs for added stability to protect
the road from channel migration, removal of road side bank materials to widen the flood plain, and slope
side overbank removals and stabilization to abate erosion.
Area 4 - Construction of 19 grade control structures, 23 bendway weirs, and bedload and slope side
removals.
Area 5 - Construction of six grade control structures, four bendway weirs, and bank/channel armoring.
Area 6 - Construction of 10 grade control structures, 15 bendway weirs, and slopeside/roadside overbank
removals and riprap armoring.
Area 7 - Construction of eight grade control structures, eight bendway weirs, slope side overbank
removals, and roadside riprap armoring.
Area 8 - Construction of five grade control structures, five bendway weirs, slopeside/roadside overbank
removals, and placement of riprap armoring to stabilized the road bank.
4.4.8.2 Panther Creek Overbank Removals and Stabilization
A total of approximately 6,000 cy of overbank materials were removed from two private properties along
Panther Creek: (1) Silling Headgate and Irrigation Ditch and (2) Silling Lower Pasture Area.
4.4.8.3 Lower Bucktail Sediment Dam Decommissioning
During the fall of 2010, the Lower Bucktail Sediment Dam was decommissioned and the reestablishment
of Lower Bucktail Creek was implemented. Accumulated sediments (approximately 260 cy) in the
reservoir area and approximately 16,000 cy of stream material were excavated during the reestablishment
of the creek.
4.4.9 2011 Construction Summary
The following sections describe the remedial action construction activities completed during the 2011
construction season. Overbank removals were in response to sampling conducted in 2011.
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4.4.9.1 Blackbird Creek
To address clogging and accommodate additional flow; the cutoff wall drainage system was improved.
The following modifications were implemented:
• Installation of a new manhole (MH-3) and a new HDPE tightline between MH-3 and MH-4
• Installation of a new manhole (MH-4) and a new HDPE tightline between MH-4 and MH-1
• Installation of new 12-inch HDPE pipe inside a 24-inch grouted steel casing underneath the concrete
channel connection MH-2 and MH-1
• Installation of 12-inch tightline from MH-1 to the WTP influent room
• Installation of new 8-inch-diameter HDPE tightline pipe connecting the "Envirocon" pipe through the
new manhole located to the west of the truck shop
4.4.9.2 7100 East and 7410 Diversion Ditch Lining
To address observed leakage along the 7100 and 7410 diversion ditches, they were modified by
excavation of in place material and placement of clay, geotextile fabric, and riprap. A total of 2,012 lineal
feet of the 7100 East diversion ditch and 1,968 lineal feet of the 7410 diversion ditch were lined.
4.4.9.3 Mill Creek East Channel Transitioning
Leaks from the Mill Creek East channel transitions were identified as potentially contributing to the
observed increased flows in the Blackbird Creek channel. The channel transition was improved to reduce
leakage at the transition between natural channel and concrete channel utilizing clay lining and riprap
(Golder, 2012a).
4.4.9.4 Panther Creek Overbank Removal
Results from the 2011 overbank characterization sampling determined the areas targeted for the 2011
construction overbank removal. The Panther Creek overbank removal activity occurred in three areas on
the Carla Bevan property. A total of 324 cy of sediment were removed from Downstream Low Bar South
(DLBS) overbank, 1,026 cy of sediment removed from Downstream Low Bar West (DLBW) overbank,
and 168 cy of sediment removed from Upstream Low Bar East (ULBE) overbank areas of the Bevan
property. The overbank removals and backfill were conducted accordingly to the approved work plan.
4.4.10 2012 Construction Summary
The following sections describe the remedial construction activity for 2012. The activities included the
Blackbird Creek upper shop drainage improvements and Panther Creek overbank removals.
4.4.10.1 Blackbird Creek Warehouse Drainage Improvements
The Blackbird Creek warehouse drainage was modified to provide additional drainage capacity to the
waste rock cap sub-surface collection system, targeting the seepage area with construction of manholes
and trench drains (Golder, 2013a). The following improvements were implemented at the upper shop
drainage:
• Excavation, trenching, and removal of waste rock in preparation for manhole, tightline, and drain line
installations
• Installation of two new upper drainage manholes
• Installation of a new access manhole
• Installation of 8-inch HDPE pipe tightline from upper drainage manholes
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• Installation of multiple trenched trains to convey flow into the upper drainage manholes
• Backfill, compaction, and capping of trenching and manhole excavations
4.4.10.2 Panther Creek Overbank Removals
The overbank removals were completed at five properties along Panther Creek; Charles and Claire
Fernandez properties (Fernandez Low Bar 1 and 2), the Richard and Mary Sillings property (Sillings
Middle Pasture), the Deep Creek Campground, the Kenny Rogers property (Rogers Overbank Area), and
the Carla Bevan property (Bacon Ranch Low Bar). The volumes for excavation and backfill for each of
the properties are as follows:
• 738 cy removed and 854 cy backfilled at Fernandez Low Bar 1
• 1,141 cy removed and 814 cy backfilled at Fernandez Low Bar 2
• 504 cy removed and 461 cy backfilled at Sillings Middle Pasture
• 12 cy removed and 14 cy backfilled at Deep Creek Campground
• 35 cy removed and 35 cy backfilled at Roger Overbank Area
• 246 cy removed and 256 cy backfilled at Bacon Ranch Low Bar
4.4.11 Remedial Actions Not Yet Completed
One remedial action and a number of contingent actions identified in the ROD have not yet been
constructed. These actions are discussed in the following sections.
4.4.11.1 Bucktail Creek Diversion Pipeline
One of the elements of the remedial actions selected in the ROD for the Bucktail Creek drainage is a
pipeline to divert the waters of Bucktail Creek around the South Fork Big Deer Creek. This diversion
pipeline is included in the ROD because modeling conducted during the FS indicated that remedial
actions in upper Bucktail Creek would not be effective to meet water quality cleanup levels in South Fork
Big Deer Creek. The diversion pipeline would extend from the vicinity of the Lower Bucktail Sediment
Dam to Big Deer Creek downstream from the South Fork Big Deer Creek (Figure 3-2). By removing the
metals loads coming from Bucktail Creek, the ROD concluded that water quality cleanup levels would be
expected to be met in South Fork Big Deer Creek once the contaminated in-stream sediments in South
Fork Big Deer Creek are allowed to recover naturally.
EPA originally decided to schedule the construction of the bypass pipeline to occur in 2010, 3 years after
completion of the upper Bucktail Creek remedial actions to allow the effectiveness of the upper Bucktail
Creek remedial actions to be determined and to allow the residual materials along Bucktail Creek to begin
to recover naturally. The BMSG requested that monitoring continue through 2011 to better determine the
rate of natural recovery. A statistical evaluation based on the monitoring data through 2011 indicated that
South Fork Big Deer Creek may be able to meet water quality cleanup goals through natural recovery.
Therefore, EPA decided to monitor for an additional 3 years (through 2014). Following this additional
monitoring, EPA will again evaluate the need for the bypass pipeline.
4.4.11.2 Status of Contingent Actions
The status of the contingent actions identified in the ROD is discussed below.
• Actions to reduce the hydraulic head upstream of the cutoff wall on upper Blackbird Creek—
Rather than reduce hydraulic head upstream of the cutoff wall, a new pumping well was constructed
downstream from the cutoff wall to intercept contaminated water that bypasses the cutoff wall. Water
from this well is pumped to the WTP for treatment. This contingent action is completed.
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• Increases to the water storage and/or treatment capacity—The BMSG prepared a report to
evaluate the need for additional water storage and/or treatment capacity (Golder, 2008a). This report
concluded that additional measurements were required during a year of greater-than-average
snowpack to provide definitive determinations concerning the need for additional storage and/or
treatment capacity. In 2011, the peak spring runoff occurred very late and very rapidly and the
existing treatment plant was not able to treat all of the runoff water. The BMSG constructed
temporary treatment facilities near the WTP and treated the excess water for about 23 days during the
peak runoff. The BMSG conducted a study to evaluate options for increasing storage and/or treatment
capacity (Golder 2011). Based on this study, EPA selected the option to increase the hydraulic
capacity of the existing WTP from 1,000 gpm to 1,200 gpm, and to construct new treatment facilities
capable of treating up to 1,300 gpm for a combined total treatment capacity of 2,500 gpm. These
upgrades and additions to the treatment system will be completed during 2013.
• Additional removal of overbank deposits along Blackbird Creek—As a result of the
re-contamination of overbank areas along Panther Creek from the high runoff events in Blackbird
Creek in 2003, 2008, and 2009, additional removals and stabilization were conducted along Blackbird
Creek in 2009 and 2010. The details of these additional removals and stabilization are included in
Section 4.4.8.1.
• Run-on/run-off controls for the cover on the West Fork Tailings Impoundment—Monitoring to
date does not indicate that there is significant erosion of the cover on the West Fork Tailings
Impoundment, therefore run-on/runoff controls do not appear to be required.
• Measures to reduce the water table beneath the West Fork Tailings Impoundment, if the water
table begins to rise to a level that threatens the stability of the dam—Monitoring indicates that the
water table within the West Fork Tailings Impoundment rose approximately 10 to 15 feet between
1995 and 2010, but has stabilized since 2010. Stability analyses indicate that the current level of the
water table could rise as much as an additional 30 feet before it would threaten the stability of the
dam. EPA will continue to monitor the water table.
• Additional collection and treatment of Bucktail Creek seeps, if they result in unacceptable
metals loading to Big Deer Creek—The remedial actions in upper Bucktail Creek (see Section 4.4.3
and 4.4.4) have resulted in collection of all identified contaminated springs and seeps along upper
Bucktail Creek. It is not likely that additional contaminated springs or seeps will be discovered in the
future; however, if any are discovered, they can be connected to the collection system in upper
Bucktail Creek.
• Removal of Bucktail Creek sediments and/or overbank materials, or installation of a passive (or
semi-passive) treatment system, if water quality goals in Big Deer Creek are not achieved—
Water quality goals are currently being met at the monitoring station downstream from the confluence
of South Fork Big Deer Creek and Big Deer Creek (BDSW-03); therefore, this contingent action is
not required.
• Alternatives to address metals discharges to South Fork Big Deer Creek from groundwater
and/or overbank materials if water quality goals in South Fork Big Deer Creek are not
achieved—As described in Section 4.4.11.1, EPA will evaluate monitoring data through 2014 to
determine if the water quality goals can be met in South Fork Big Deer Creek through natural
recovery. If EPA determines that the water quality goals cannot be met, the Bucktail Bypass Pipeline
will be constructed.
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• Additional removals along Panther Creek if monitoring following storm events indicates that
re-deposition at overbank areas exceed remediation goals—High flow events occurred during the
spring of 2003, 2008, and 2009 that caused unacceptable contamination in several of the overbank
areas along Blackbird and Panther Creeks. These areas were sampled, characterized, and the
re-contaminated soils were subsequently removed in 2004, 2009 through 2012. Additional measures
were taken along Blackbird Creek to reduce the amount of contaminated materials released by
Blackbird Creek during future large runoff events (construction of in-stream stabilization structures
described in Sections 4.4.7 through 4.4.10 above). If future high runoff events in Blackbird Creek
result in re-contamination of overbank areas along Panther Creek at concentrations above the cleanup
levels, additional removals will be conducted. In addition, the Sillings property owners have elected to
not have removals completed on their property until the Blackbird Creek stabilization structures
demonstrate their effectiveness. Finally, the former PCI soils are currently above residential cleanup
levels and above the long term camping cleanup levels. This area will need to be addressed with ICs.
• Monitoring to determine if the mixing zones are protective of cold water biota in Panther Creek
and Big Deer Creek—This monitoring has not yet been conducted. EPA anticipates that this
monitoring will be conducted in Panther Creek and Big Deer Creek during spring and fall of 2013.
• Alternatives to address metals loads to Big Deer Creek downstream from South Fork Big Deer
Creek if monitoring indicates that these loads result in exceedances of water quality cleanup
levels in Big Deer Creek—The potential sources of these dissolved copper loads have been studied
extensively by the BMSG, in consultation with EPA and the Natural Resource Trustees (see
Section 6.1.1.1.2 for additional information concerning these loads). The source of the copper loads
has not been definitively determined to be associated with the Blackbird Mine. EPA has decided to
monitor these loads to determine if there are changes in these loads or their characteristics over time,
and to determine if the water quality cleanup levels can be achieved without additional remedial
actions. If water quality cleanup levels cannot be achieved, and if additional investigations can be
identified that can more definitively determine the source(s) of the loads, additional investigations will
be conducted in the future.
4.5 Summary of Operations and Maintenance
The BMSG performs O&M and regular monitoring at the Site. The O&M is conducted in accordance
with a series of O&M plans that have now been consolidated into a sitewide O&M manual (Golder,
2007b). In addition to ongoing O&M, the BMSG conducts regular inspections of the various facilities as
required by the O&M manual. EPA, IDEQ, and USFS also conduct annual inspections of the
aboveground facilities and the underground mine facilities. Golder Associates, on behalf of the BMSG,
conducts dam safety inspections of the 7000 Dam, the 7100 Dam, and the West Fork Tailings
Impoundment every 5 years. In addition, the Idaho Department of Water Resources conducts dam safety
inspections, typically every other year.
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SECTION 5
Progress Since Last Five-Year Review
The first Five-Year Review was completed in 2008. Section 5.1 summarizes the findings of the 2008
Five-Year Review. Section 5.2 describes the actions taken since the 2008 Five-Year Review was
completed.
5.1 2008 Five-Year Review Summary of Findings
The 2008 Five-Year Review Report confirmed that the components of the remedy completed to date had
been constructed as outlined by the ROD. There was one component of the remedial action, a number of
contingent actions that had not been constructed, and two ICs that were not implemented from the ROD.
Water quality in most of the creeks exhibited vast improvement, mine groundwater concentrations
remained above MCLs, and in-stream sediments continue to exceed cleanup standards. However, the
protectiveness of the remedy at the Blackbird Mine Site was expected to be protective of human health
and the environment upon completion of the remaining remedial actions, contingent actions, and
implementation of ICs. The following actions were recommended in the 2008 Five-Year Review:
• Monitor dissolved copper load along Big Deer Creek to determine if water quality cleanup levels can
be met.
• Determine if Spring 2008 high flow event in Blackbird Creek contributed to additional contamination
deposited in overbanks along Panther Creek.
• IC implementation.
5.2 Actions Taken Since 2008 Five-Year Review
Table 5-1 summarizes the actions taken in response to the recommendations and follow-up actions
identified in the 2008 Five-Year Review.
TABLE 5-1
Actions Taken Since Last Five-Year Review
Blackbird Mine Site, Lemhi County, Idaho
Issues from Previous Review
Recommendations/
Follow-up Actions
Party
Responsible
Completion
Date
Outcome
There are dissolved copper loads
along Big Deer Creek; the
sources and significance of these
loads could not be determined
with certainty. These loads may
continue to cause exceedances
of the copper water quality
cleanup levels in portions of Big
Deer Creek.
Monitor the dissolved copper
loads along Big Deer Creek to
determine if the copper water
quality cleanup level can be
met in Big Deer Creek. If the
Big Deer Creek loads continue
to result in exceedances of
water quality cleanup level,
and if additional investigations
can be identified, they will be
conducted.
EPA
Ongoing
Continued monitoring of the
dissolved copper loads along
Big Deer Creek and continue
to access if Big Deer Creek
can meet cleanup levels.
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TABLE 5-1
Actions Taken Since Last Five-Year Review
Blackbird Mine Site, Lemhi County, Idaho
Issues from Previous Review
Recommendations/
Follow-up Actions
Party
Responsible
Completion
Date
Outcome
High flows in Blackbird Creek in
Spring 2008 caused erosion and
channel realignment along
Blackbird Creek, with
downstream deposition of
contaminated sediments along
the banks of Panther Creek.
Not all of the ICs at the Site have
been implemented. In addition,
USFS has not yet established
administrative procedures on
USFS properties at the mine site
and along Panther Creek.
Currently, no unacceptable uses
are occurring on the properties.
If these ICs are not established
and implemented, the
protectiveness of the remedy
may be impacted. Likewise, the
long-term effectiveness of the
soil management program will
require the cooperation and
diligence of both the BMSG and
the affected landowners to
assure no unacceptable
exposures occur.
Sample the materials
deposited in the overbank
areas along Panther Creek.
Depending on the results of
this sampling, removals of the
deposited materials may be
required. Further evaluation of
alternatives for additional
measures to reduce the
release of materials during
high flow events in Blackbird
Creek would need to be
implemented.
Continue to work toward
having the necessary ICs
implemented at the Cobalt
Townsite and the mine. If
ongoing negotiations and
discussions are not successful,
an enforcement action to seek
compliance with the UAO may
be necessary. Finally, consult
with USFS to seek modification
of the MOU to obtain
assurances that administrative
procedures are put in place on
properties under the control of
USFS to assure protectiveness.
BMSG
Ongoing
BMSG, EPA,
and USFS
Ongoing
Characterization and
removals of the overbank
deposits from high flows
events in Panther Creek.
Evaluated multiple
alternatives to address
recontamination releases.
Design and construction of
in-stream stabilization
structures for Blackbird
Creek. Continued
monitoring of effectiveness
of in-stream stabilization
structures
To date, PRP has refused to
implement all necessary ICs
at owned land.
The USFS is in the process of
establishing additional
administrative controls on
USFS properties to assure no
inconsistent uses occur on
USFS lands.
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SECTION 6
Five-Year Review Process
6.1 Administrative Components
The community on EPA's mailing list and the PRPs (the BMSG) were notified that EPA would be
conducting the Five-Year Review of the Blackbird Mine Site in 2013 in postcards dated February and
March, 2013 (Appendix A). The Five-Year Review was led by Fran Allans, Remedial Project Manager
for EPA, and included input from EPA's oversight contractor, and review by USFS and the State of
Idaho.
Components of the Five-Year Review included:
• Document review
• Data review
• Site inspection
• Community involvement
• Five-Year Review report development and review
6.2 Document Review
Existing documents relevant to the Five-Year Review were reviewed for this report. The type of
documents reviewed included: Early Action design and construction completion reports; the RI/FS; the
ROD and ESDs; Remedial Action construction completion reports; yearly monitoring reports; O&M
documents and reports; and the Environmental Impact Statement for the Idaho Cobalt Project. A complete
list of the documents reviewed is included in Section 12.
6.3 Data Review
Monitoring data as required by the Performance Monitoring Plan (Golder, 201 la) is summarized in an
annual report prepared by the BMSG. The 2012 data and historical trend data for surface water,
groundwater, and in-stream sediments was provided in the annual Monitoring Report (Golder, 2013b),
and is described below. The cleanup levels established in the ROD and updated by the submittal of two
ESDs are described in Section 4.2.2. Monitoring locations discussed in the following sections can be
reviewed on Figure 6-1.
6.3.1 Surface Water Quality Data
The ROD requires that surface water cleanup levels be met in three area streams impacted by the
Blackbird Mine. These include Panther Creek downstream from Blackbird Creek, Big Deer Creek
downstream from South Fork Big Deer Creek, and South Fork Big Deer Creek downstream from Bucktail
Creek. The COCs in surface waters for the identified streams are arsenic, cobalt, and copper. The arsenic
standard of 0.050 mg/L in Blackbird Creek and 0.014 mg/L in the remaining creeks continues to be met
consistently since the last Five-Year Review. Hence, the monitoring focus has been on copper and cobalt.
The surface water cleanup level for dissolved copper is the Idaho Water Quality Standard (IWQS) and is
based on hardness. At the typical hardness values seen in these streams, the IWQS cleanup level for
dissolved copper varies from about 0.0035 mg/L to about 0.010 mg/L. There is no Idaho Water Quality
Standard for cobalt; therefore EPA established a risk-based value of 0.038 mg/L in the ROD as the
dissolved cobalt water quality cleanup level. Subsequent to the issuance of the ROD, the BMSG
conducted a site-specific cobalt toxicity study. Based on the results of this toxicity study, EPA issued an
ESD to the ROD (EPA, 2007) that revised the surface water cobalt cleanup level from 0.038 mg/L to
0.086 mg/L. Non-numeric cleanup goals for Blackbird and Bucktail Creek are to improve water and
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sediment quality such that cleanup levels can be met in the downstream creeks that have numeric water
quality cleanup levels.
The UAO SOW established a rigorous sampling methodology for determining whether surface water
cleanup levels are being met in area streams. The SOW required that this sampling begin as determined
by EPA following completion of the remedial actions. The rigorous sampling methodology requires four
96-hour sampling events per year at each monitoring station. Three sampling events are conducted in the
spring, and one sampling event is conducted during the fall. During each sampling event, 12 samples are
collected and each station, then the 12 samples are analyzed statistically to determine if an exceedance of
the water quality cleanup levels has occurred. The UAO SOW also established a statistical methodology
for determining when the water quality cleanup levels are met in each stream. This methodology
essentially requires that there be no unacceptable exceedances of the cleanup levels at any water quality
sampling station for a 5-year period.
To evaluate changes in concentrations and potential metal loading along the drainages, synoptic surface
water sampling are conducted on the Blackbird, Panther Creek, Bucktail, and South Fork and Big Deer
Creek drainages in the springs of each year.
In addition to the 96-hour sampling events and synoptic sampling, weekly surface water sampling is
conducted for 2.5 months in the spring at Blackbird, Panther, and Big Deer Creeks. This data is primarily
used to determine when significant increasing copper trends were occurring, compared to 96-hour
sampling events.
In 2012, automated samplers at PASW-09 and BDSW-09 were installed to collect acute criteria
monitoring of copper during high water storm events. The sampling is automatically triggered by the
USGS gauging station BBSW-02. No significant storm event occurred to trigger the automated sampling.
Water quality data from 2008 to 2012 for surface waters and overall concentration trends are summarized
below.
6.3.1.1 Panther Creek 96-Hour and Weekly Sampling Results
Water quality concentrations are measured at four stations along Panther Creek from above Blackbird
Creek to below Big Deer Creek (Stations PASW-11, 09, 05, and 04X) during the four 96-hour sampling
events each year. As shown in Table 6-1, concentrations observed in Panther Creek exceeded the chronic
criteria for copper at least at one station for 2008, 2009, 2010, and 2011 and peak concentrations ranged
from 0.007 to 0.020 mg/L. In 2012, the highest concentration of dissolved copper was 0.0031 mg/L at
PASW-09. The water quality cleanup levels for dissolved copper were achieved at all Panther Creek
stations during all 96-hour sampling events for 2012. The historical concentrations of dissolved copper at
the measured stations PASW-09 and PASW-04X are shown in Figures 6-2 and 6-3, respectively. Cobalt
concentrations have remained below the cleanup level of 0.086 mg/L for the last 5 years at all sampling
stations.
In 2012, the weekly sampling data and USGS station flow measurements collected for the Weekly
Sampling Event (April 1 through June 15) suggests that the peak concentrations occurred a few days
before the first 96-hour sampling event. In general, the weekly sampling has shown that the 96-hour
sampling events have occurred within 2 weeks or less of the peak concentrations for the past 5 years.
6.3.1.2 Big Deer Creek 96-Hour and Weekly Sampling Results
Water quality concentrations are measured at five stations along South Fork Big Deer Creek and Big Deer
Creek (SFSW-01, SFSW-04, BDSW-01, BDSW-03, and BDSW-04) during the four 96-hour sampling
event. Consistently, SFSW-01 has been the sampling station with the highest observed concentration of
copper, exceeding the chronic criteria for the last 5 years (Table 6-1). Exceedance of copper has also
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occurred at other sampling stations during the last 5 sampling event years. Concentrations of copper at
SFSW-01 ranged from 0.01 to 0.025 mg/L during the last 5 years. Historic concentration trends at two
Big Deer Creek Stations (1 and 3) show a significant decreasing trend from 1995 to 2006. Concentrations
from 1995 to present are shown on Figures 6-4 and 6-5 for Stations BDSW-03 and BDSW-01,
respectively. A statistical evaluation of all available data for South Fork Big Deer Creek stations through
2011 indicated that concentrations in the creek could potentially meet cleanup goals by natural recovery.
The peak concentration of copper at SFSW-01 in 2008 was 0.025 mg/L and 0.016 mg/L in 2012.
Similar to Panther Creek, weekly sampling data and observations of flow measurements suggest that the
peak concentrations occurred before the first 96-hour sampling event. At the Big Deer Creek monitoring
location (BDSW-03), the peak copper concentration occurred on or before April 4, which was the start of
the 96-hour sampling event. Concentrations appeared to decrease from peak and begin to increase during
the first round. Hence, concentrations generally decreased during all rounds of the 96-hour sampling
event. Weekly sampling events from previous sampling event years have indicated that the 96-hour
sampling events have occurred within weeks of the peak concentrations.
TABLE 6-1
96-Hour Peak Concentration Sampling Results From 2008 to 2012 at Panther Creek and Big Deer Creek
Blackbird Mine Site, Lemhi County, Idaho
Panther Creek Station
Location
Panther Creek Station
Location
Big Deer Creek Station
Location
Big Deer Creek Station
Location
Year
Copper (mg/L)
Cobalt (mg/L)
Copper (mg/L)
Cobalt (mg/L)
2008
PASW -09
PASW-09
SFSW-01
SFSW-01
0.014
0.049
0.025
0.032
CC: 0.0035
CC: 0.0069
2009
PASW-09
PASW-09
BDSW-03
BDSW-03
0.020
0.059
0.010
0.010
CC: 0.0052
CC: 0.0036
2010
PASW-05
PASW-09
SFSW-01
SFSW-01
0.007
0.064
0.025
0.029
CC: 0.0035
CC0.0084
2011
PASW-05
PASW-09
SFSW-01
SFSW-01 and SFSW-02
0.017
0.04
0.015
0.018
CC : 0.0035
CC: 0.009
2012
PASW-09
PASW-09
SFSW-01
SFSW-01
0.0031
0.044
0.016
0.027
CC: 0.0035
CC: 0.0142
Notes:
Cobalt cleanup level is 0.086 mg/L for all stations.
CC = Chronic Criteria
6.3.1.3 Blackbird Creek and Panther Creek Synoptic Sampling
The dissolved copper loading increased with each downstream station during the sampling event, with the
exception between BBSW-03 and BBSW-02, which is a change from previous synoptic sampling results.
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This increase is likely due to flow measurement error on the USGS station at BBSW-02. Cobalt loads
located between BBSW-03 and BBSW-02 are attributed to the West Fork Tailings Impoundment.
However, these stations have seen a decrease from previous years due to the lower flows and
concentrations.
6.3.1.4 Bucktail Creek, South Fork Big Deer Creek, and Blackbird Synoptic Sampling
The spring synoptic sampling event results displayed dissolved copper load increasing between all
stations. The dissolved cobalt also increased across the stations with the exception of SFSW-01 and
BDSW-03. The highest loading increases occurred between BDSW-03 and BDSW-01 for both copper
and cobalt, which is a change in the historical loading trend. Typical highest loading for cobalt and copper
occur upstream between BTSW-01.6 and BTSW-01.
Three separate fall synoptic sampling events occurred in 2012 (July, September, and October).
The September event was executed as a full synoptic event, while the other two events were considered
mini-synoptic events.
Dissolved copper and cobalt increased during the July mini-event. The largest loading was observed
between BTSW-01 and SFSW-02. The full September synoptic event was consistent with previous years,
displaying a dissolved copper loading increasing across all stations with the largest occurring between
BTSW-01 and SFSW-02. Consistent with previous October synoptic sampling events, dissolved copper
loading increased across all stations, with the largest increase between BTSW-01 and SFSW-02.
The largest increase in dissolved cobalt loading occurred between BTSW-01 and SFSW-02, which is also
consistent with previous October synoptic sampling events.
6.3.2 Groundwater Quality Data
Groundwater quality is measured in 11 wells within the Blackbird Creek drainage. Five wells are located
near the WTP. In addition to the WTP wells, sampling continued at some West Fork Impoundment
monitoring wells since 2009. The COCs in groundwater at the Site include arsenic, cobalt, and copper.
The following wells are sampled during the annual WTP sampling event: BBMW-03 A, BBMW-05A,
BBMW-06A, BBMW-07A, and BBMW -08A (Figure 6-6). The measured concentrations of arsenic in
these wells ranged from 0.005 mg/L (BBMW-08A) to 0.0285 mg/L (BBMW-06A). Overall containment
trends from 2004 to present suggest that the concentrations have been relatively stable or variable since
2004. Concentrations of cobalt ranged from 0.406 mg/L (BBMW-03 A) to 8.51 mg/L (BBMW-05A).
Concentrations of cobalt appear to be decreasing in BBMW-03 A and BBMW-07A, while all other
locations appear relatively stable or variable since 2004. Copper concentrations ranged from 0.002 mg/L
(BBMW-07A) to 14.4 mg/L at BBMW-08A. Copper concentration trends in these wells consist of
declining (BBMW-06A and BBMW-03 A), increasing (BBMW-05A and BBMW-08A), and variable
(BBMW-07A).
The following wells are sampled during the annual West Fork Impoundment sampling event:
WFMW-01D, WFMW-01S, WFMW-09, WFMW-13S, WFMW-1109, and WFMW-1101 (Figure 6-7).
Piezometric data suggests that a gradual water increase has been occurring since 2000. Concentrations of
arsenic in the West Fork wells in 2012 ranged from 0.005 mg/L (multiple wells) to 0.140 mg/L at
WFMW-01S. Arsenic concentrations have remained relatively stable at WFMW-13S, but have shown an
increase in the other wells within the monitoring network. Concentrations of cobalt ranged from
non-detection at WFMW-13S to 3.090 mg/L at WFMW-01S. Cobalt concentrations exhibit a declining
trend at wells WFMW-1S, WFMW-1D, WFMW-09, and WFMW-13S. Cobalt concentrations in
WFMW-1109 and WFMW-1101 are variable, but little data are available to assess a trend. Concentrations
of copper in the wells remain low ranging from 0.001 mg/L to 0.041 mg/L, and trends remain relatively
stable.
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The most recent sampling of a groundwater well at the former PCI property occurred in 2009 to observe
the groundwater concentrations in the shallow alluvial aquifer along Panther Creek. The results of the
sampling event indicted that groundwater exceeds the cobalt standard with a concentration of 0.325 mg/L.
The cobalt groundwater contamination extends beyond the Blackbird Creek drainage waste management
area. Additional groundwater well sampling at the former PCI is not currently scheduled at this time.
To assess the possible current groundwater concentrations near Bucktail Creek, monitoring well
BTMW-03B was sampled in 2012. BTMW-03B is located above the Upper Bucktail road crossing and is
upgradient of the collection systems that feed the Lower Bucktail Pump Station. Prior to sampling in
2012, BTMW-03B was sampled during the RI in 2000. The dissolved arsenic concentration in
BTMW-03B was a non-detection, dissolved copper was 19.8 mg/L, and dissolved cobalt was 6.83 mg/L
in 2000. Sample results for the 2012 sampling of BTMW-03B is as follows: dissolved arsenic was a
non-detection, dissolved copper was 0.055 mg/L, and dissolved cobalt was 0.042 mg/L. Although cobalt
exceeded the cleanup level for cobalt in groundwater (0.023 mg/L), this well exhibits a significant
decrease in concentrations from 2000.
6.3.3 Sediment Data
In-stream sediment data for 2012 for Panther Creek, Big Deer Creek, Blackbird Creek, and South Fork
Big Deer Creek are summarized below. In addition to the Performance Monitoring Plan sediment
sampling requirements, sediment sampling occurred in the in-stream stabilization areas for Blackbird
Creek (see Section 4.4.8.1) to assess the stabilization effectiveness and the effect of the West Fork
Tailings Impoundment. Finally, floe samples were collected from the toe ditch of the West Fork
embankment. The in-stream sediment cleanup levels are summarized in Section 4.2.1.
6.3.3.1 Panther Creek 2012 Sampling
Sediment data were collected from seven sampling stations along Panther Creek downstream from the
mouth of Blackbird Creek. The arsenic concentrations ranged from 4 to 71 mg/kg (cleanup level of
35 mg/kg). Cobalt concentrations ranged from 5 to 91 mg/kg (cleanup level of 80 mg/kg). Copper
concentrations ranged from 6 to 128 mg/kg (cleanup level of 149 mg/kg). Overall, the sampling locations
have been seeing a decreasing trend during the last four annual sampling events.
6.3.3.2 Big Deer Creek 2012 Sampling
Sediment data were collected from two stations located downstream of the mouth of South Fork Big Deer
Creek. The arsenic concentrations downstream from South Fork Big Deer Creek were non-detection and
4 mg/kg (cleanup level of 35 mg/kg). Cobalt concentrations were 1 and 25 mg/kg (cleanup level of
80 mg/kg). Copper concentrations were 2 and 116 mg/kg (cleanup level of 149 mg/kg). Concentrations at
these sampling stations have remained relatively stable during the last four sampling events.
6.3.3.3 South Fork Big Deer Creek 2012 Sampling
Sediment data were collected from three stations located downstream of the mouth of Bucktail Creek.
The arsenic concentration downstream from Bucktail Creek ranged from 9 to 30 mg/kg (cleanup level of
35 mg/kg). Cobalt concentrations ranged from 5 to 102 mg/kg (cleanup level of 436 mg/kg). Copper
concentrations ranged from 8 to 1,040 mg/kg (cleanup level of 637 mg/kg). Arsenic and cobalt
concentrations have seen a decreasing trend over the last four sampling events, while copper has remained
relatively stable.
6.3.3.4 Blackbird Creek 2012 and In-stream Stabilization Sampling
Sediment data were collected from four stations downstream of the mouth of Meadow Creek. Cleanup
levels for Blackbird Creek consist of a narrative as explained in Section 4.2.2. The arsenic concentrations
in Blackbird Creek ranged from 8 to 343 mg/kg. Cobalt concentrations ranged from 10 to 303 mg/kg.
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Copper concentrations ranged from 78 to 836 mg/kg. Blackbird creek sampling stations have seen a
decreasing trend in arsenic and relatively stable cobalt and copper trends.
Total arsenic and cobalt concentrations in Blackbird sediments upstream and downstream of the West
Fork Tailings Impoundment were tracked to evaluate trends for in-stream stabilization performance and
evaluate the effect of the tailings in sediment quality. Two in-stream fine-grained sediment samples were
collected at each of the eight in-stream stabilization areas (Figure 4-1). In addition, a baseline pebble
count/grain size distribution sampling occurred where characterization of finer-grained sediments
occurred at multiple depths (0 to 6 inches and 6 to 12 inches) at each stabilization area.
Concentrations observed from the in-stream sediment sampling were generally lower than those samples
collected upstream of the West Fork Impoundment. In comparison to 2011 sampling data, the 2012 mean
for arsenic, cobalt, iron, total sulfur, sulfide sulfur, and sulfate sulfur concentrations increased. However,
the difference between 2012 and 2011 means were within the standard deviation. Floe samples collected
at the toe ditch of the West Fork embankment exhibit elevated concentrations of arsenic (1,145 mg/kg),
iron (223,000 mg/kg), total sulfate (1.72 mg/kg), sulfate (1.66 mg/kg), and sulfide (0.51 mg/kg) compared
to those samples collected upstream and downstream from West Fork. However, the concentration of
cobalt was lower at 68 mg/kg. With the exception of cobalt, concentrations at the toe ditch were slightly
lower 2012 than 2011.
Baseline pebble count fine-grained sediment samples were similar to the in-stream sediment sampling.
Concentrations up-stream ranged from 390 to 889 mg/kg and 155 to 390 mg/kg for arsenic and cobalt in-
stream sediments, respectively. Downstream arsenic concentrations for in-stream sediments ranged from
405 to 946 mg/kg, and cobalt ranged from 86 to 972 mg/kg. Fresh deposit sample results for arsenic were
similar across the stabilization areas (with the exception of Area 3, with a concentration of 398 mg/kg),
ranging from 578 to 780 mg/kg. Cobalt concentrations were variable ranging from 166 to 369 mg/kg.
Furthermore, concentrations at surface (0 to 6 inches) were similar to those collected at depth
(6 to 12 inches).
6.3.3.5 Overbank Deposits
To characterize the current concentrations of the overbank deposits along Blackbird Creek and Panther
Creek from previous high flow events, sampling was conducted in 2012. Previous characterization to
Blackbird and Panther Creeks from initial contamination and follow-on high flow events prompted the
overbank removals that are described in Sections 3.4.2.3 and 4.4. The 2012 sampling event was limited to
confluence of Blackbird Creek and Panther Creek and areas downstream of Panther Creek.
6.3.3.6 Panther Creek
During the 2012 sampling event, the former Panther Creek Inn along Blackbird Creek, former Panther
Creek Inn along Panther Creek, and Upper Cobalt Townsite overbank sampling areas were sampled.
Sample concentrations were used for 95 upper confidence limit (UCL) calculations for comparison to
cleanup criteria.
The purpose of these sampling locations was to (1) characterize current conditions along Blackbird Creek
below the Panther Creek Road bridge and in overbank areas along Panther Creek in the former Panther
Creek Inn campground and (2) resample Upper Cobalt Townsite to confirm 95 percent UCL calculation
(Golder, 2013c). The former Panther Creek Inn is above the residential cleanup levels for a potential
residential future use scenario. EPA is in the processes of evaluating the data to determine if it is above
recreational and camping cleanup levels. The arsenic and cobalt UCLs for the Upper Cobalt Townsite
were below cleanup levels.
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6.3.3.7 2008 Forest Service Overbank Area Sample Reanalysis
To obtain cobalt concentrations from samples that were collected in 2008 and only analyzed with XRF for
arsenic, the BSMG submitted the samples from four Panther Creek areas located on USFS property to a
certified laboratory. All 95 percent UCL calculations of the laboratory data were under the arsenic and
cobalt cleanup levels.
6.4 Site Inspection
EPA conducts regular site inspections at the Blackbird Mine Site to inspect remedial action construction
activities and to review the ongoing O&M at the Site. These inspections are typically conducted in the
autumn of each year, and the most recent inspection was conducted in September 2012. EPA also
regularly reviews the annual monitoring reports for the Site. Because of these regular inspections and
reviews, EPA considered the site inspection conducted in September 2012 to be sufficient for the
purposes of the Five-Year Review.
6.5 Community Involvement
As discussed in Section 6.1, EPA provided an announcement to the community to encourage involvement
during the Five-Year Review processes. EPA received no communications from the community.
The community near the Blackbird Mine is a sparsely inhabited rural area with few year-round residents.
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SECTION 7
Technical Assessment
Section 7 presents a technical assessment of the remedy performance as implemented at the Site.
As outlined in EPA's Comprehensive Five-Year Review Guidance (EPA, 2001), this assessment is
structured to answer the following three questions:
• Is the remedy functioning as intended?
• Are the exposure assumptions, toxicity data, cleanup levels, and RAOs used at the time of the remedy
selection still valid?
• Has any other information come to light that could affect the remedy's protectiveness?
These questions are addressed in the following sections.
7.1 Question A: Is the Remedy Functioning as Intended?
No, the remedy is not yet performing as intended because not all of the necessary ICs, not all remedial
actions, and necessary contingent remedial actions have been implemented. In addition, concentrations of
COCs in surface waters and sediments remain above cleanup levels in certain streams. It is anticipated
that the remedy will function as intended for all elements upon completion of all remedial actions,
completion of relevant contingent actions, evaluation and optimization (if determined to be necessary) of
in-stream stabilization along Blackbird Creek, implementation of all ICs, and following natural recovery
of sediments. The discussion of remedy function is separated into discussions of water quality,
groundwater, in-stream sediments, and overbank deposits.
7.1.1 Water Quality
There have been significant improvements to water quality in the creeks downstream of the Site since
initiation of cleanup actions. The improvements vary among the creeks for which water quality cleanup
levels have been established in the ROD. The specifics are discussed in the following sections (also see
Section 6.3.1 for additional information on water quality and for the UAO SOW methodologies for
determining when water quality cleanup levels have been met). Water quality data focus on copper and
cobalt because the data indicate that the arsenic standard is met consistently in all area streams. The data
are provided for 2012 because this is the most recent year for which validated data are available.
In addition, overall concentration trends are discussed.
7.1.1.1 Panther Creek
In Panther Creek, water quality has improved substantially, with peak dissolved copper concentrations
downstream from Blackbird Creek decreasing from 0.218 mg/L in 1995 to 0.003 mg/L in 2012. This
represents a 99 percent reduction in peak concentrations. Peak dissolved cobalt concentrations at this
location have been reduced from 0.273 mg/L in 1995 to 0.044 mg/L in 2012, an 84 percent reduction.
In 2012, Panther Creek surface water concentrations for cobalt and copper are below the cleanup levels,
meeting water quality standards during all 96-hour sampling events. The overall concentration trend of
dissolved copper at the measured stations along Panther Creek have remained stable or slightly decreasing
(Figures 6-2 and 6-3). Cobalt concentrations have remained stable and well below the cleanup level.
7.1.1.2 Big Deer Creek and South Fork Big Deer Creek
In Big Deer Creek, water quality also has improved substantially. At the first station just downstream
from the mouth of South Fork Big Deer Creek (Station BDSW-03A), peak copper concentrations have
been reduced from 0.342 mg/L in 1995 to 0.004 mg/L in 2012. This represents close to two orders of
magnitude in reduction of concentrations. Peak cobalt concentrations have been reduced at this location
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from 0.110 mg/L in 1995 to 0.0039 mg/L in 2012, a 96 percent reduction. However, multiple station
locations during the 2012 sampling events exhibited copper concentrations that exceeded the cleanup
criteria in Big Deer Creek and South Fork Big Deer Creek, specifically BDSW-01, which is located at the
confluence of the Big Deer Creek and Panther Creek. Studies to determine the source of downstream
exceedances have determined that observed elevated concentrations of copper cannot be definitively
attributed to Blackbird Mine Site. BDSW-01 has consistently exceeded cleanup criteria during the last
five annual sampling events. All cobalt concentrations during the last five sampling events were below the
water quality cleanup level.
EPA originally decided to schedule the construction of the bypass pipeline to occur in 2010, 3 years after
completion of the upper Bucktail Creek remedial actions to allow the effectiveness of the upper Bucktail
Creek remedial actions to be determined and to allow the residual materials along Bucktail Creek to begin
to recover naturally. The BMSG requested that monitoring continue through 2011 to better determine the
rate of natural recovery. A statistical evaluation based on the monitoring data through 2011 indicated that
South Fork Big Deer Creek may be able to meet water quality cleanup goals through natural recovery.
EPA therefore decided to monitor for an additional 3 years (through 2014). Following this additional
monitoring, EPA will again evaluate the need for the bypass pipeline.
7.1.1.3 Blackbird Creek and Bucktail Creek
Monitoring in Blackbird Creek in 2012 indicated that there had been no exceedances of the surface water
cleanup level for arsenic (0.010 mg/L). With the exception of arsenic in Blackbird Creek, the ROD does
not require numeric surface water cleanup levels to be met in Blackbird Creek and Bucktail Creek,
because use attainability analyses performed by the State of Idaho have determined that certain uses and
water quality criteria cannot be attained on these creeks (see Section 5.3.1.4). The ROD includes non-
numeric cleanup goals for Blackbird Creek and Bucktail Creek, which are to improve water and sediment
quality such that cleanup levels can be met in the downstream creeks that have numeric water quality
cleanup levels. In addition, the remedial goal for Blackbird Creek is to support aquatic life at levels
similar to nearby reference streams, although not necessarily to support salmonids or metals-sensitive
macroinvertebrate taxa, the creek is moving toward this goal. Panther Creek met the water quality cleanup
levels in 2012; therefore, the non-numeric goal for water quality was met in Blackbird Creek and the
remedy is functioning as intended. The water quality cleanup levels were not met at all stations in South
Fork Big Deer Creek and Big Deer Creek in 2012; therefore the non-numeric goal for water quality has
not yet been met in Bucktail Creek, and the remedy is not yet functioning as intended.
7.1.2 Groundwater
As noted in Section 6.3.2, monitoring wells at the mine indicate that groundwater at the mine does not
consistently meet MCLs or risk-based levels for arsenic, cobalt, and copper. The groundwater at the mine
is not currently used for drinking water. ICs that run with the land and are enforceable against future
landowners or users have been determined to be needed to protect against use as a drinking water source
(see Section 7.1.6). Once the ICs are implemented, the remedy with regard to groundwater should
function as intended.
The 2009 sampling event at the former PCI groundwater well indicated that groundwater is contaminated
with cobalt above the revised, risk-based cleanup level. In order to assess the full nature and extent of
groundwater contamination, further characterization will be needed. An IC that runs with the land and is
enforceable against future landowners or users has been determined to be needed at the former PCI
property to protect against use as a drinking water source (see Section 7.1.6).
The 2012 sampling results at the monitoring well upgradient of the collection systems (BTMW-03B)
indicated that the groundwater near Bucktail Creek has possibly improved (only one sample collected in
12 years) and that the remedy is performing as intended. Furthermore, the sampling results suggest that
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surface water concentrations are not an expression of groundwater contamination. Concentrations in
BTMW-03B show a 99 percent reduction in dissolved copper and dissolved cobalt since 2000. However,
the recent sampling event exceeded the current cobalt standard of 0.023 mg/L with a concentration
0.042 mg/L.
7.1.3 In-stream Sediments
As noted in Section 6.3.3, data on in-stream sediments in Panther Creek, South Fork Big Deer Creek, and
Big Deer Creek vary considerably, with certain of the stations meeting the sediment cleanup levels for
some of the parameters (arsenic, cobalt, and copper), with the exception of Big Deer Creek that met
cleanup levels at both sampling stations in 2012. Sediment concentration trends of creeks upstream from
Panther Creek (Blackbird Creek, Bucktail Creek, Big Deer Creek, South Fork Big Deer Creek) have
relatively stable trends during the last five sampling events. Concentrations during the last five sampling
events at Panther Creek station has shown decreasing trend. However, the in-stream sediment cleanup
levels have not yet been achieved consistently downstream from the mine. Once the sediments are cleaned
up through natural recovery, it is anticipated that the remedy will function as intended.
The non-numeric narrative cleanup goals for sediments in Blackbird Creek and Bucktail Creek have not
yet been met either, because the cleanup goals have not yet been met in the downstream creeks. Once the
sediments are cleaned up in the downstream creeks through natural recovery, the remedy in Blackbird
Creek and Bucktail Creek will function as intended.
7.1.4 Overbank Deposits
All overbank deposits along Blackbird Creek and Panther Creek that posed an unacceptable human health
risk due to arsenic contamination from the Blackbird Mine Site were cleaned up to the soil cleanup levels
as part of the Early Actions or Remedial Actions. However, high flow events have contributed to
recontamination of the overbank deposits along in Blackbird Creek and Panther Creek. In response to
these high flow events, overbank characterization, removal of contaminated overbank deposits, and
construction of in-stream stabilization features were implemented (see Section 4.4.8). Two annual reviews
(2011 and 2012) of performance of the in-stream stabilization in Blackbird Creek indicates that the
structures are performing as intended and will potentially abate possible future high flow recontamination
of Panther Creek overbanks. When the remaining areas that exceed the cleanup level (see Section 6.3.4)
undergo soil removal, along with continued performance and optimization reviews of in-stream
stabilization features, then the remedy should function as intended. Based on the request of the property
owner, one of the remaining areas is not planned to undergo removals of contaminated overbank deposits
until the recent installation of the stabilization structures in Blackbird Creek demonstrate effectiveness to
abate further overbank recontamination in Panther Creek. EPA is in the process of determining whether
removal of contaminated overbank deposits is necessary at the former PCI property to address the
recreational and camping risk scenarios and the possible need for the implementation of ICs.
7.1.5 Operation and Maintenance
The BMSG performs O&M at the Site. The O&M is conducted in accordance with a sitewide O&M
Manual (Golder, 2007b). In addition to ongoing O&M, the BMSG conducts regular inspections of the
various facilities as required by the O&M manual. EPA, IDEQ, and USFS also conduct annual
inspections of the aboveground facilities and the underground mine facilities. The O&M and inspection
procedures are adequate to maintain the protectiveness of the remedy.
Costs for O&M since 2008 are summarized in Table 7-1. These costs were obtained from the BMSG.
In general, recent O&M costs have been constant in 2008 and 2009. The 2011 and 2012 water treatment
costs were higher than past years due to the installation and operation of supplemental treatment systems
and construction of the sludge drying beds. The costs for dams, ditches, and roads were much higher in
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2011 due to costs for removal of the lower sediment pond in Bucktail Creek, improvements to the
Meadow Creek cap collection system and lining of two of the clean water diversion ditches in the
Meadow Creek basin. Elevated monitoring costs for 2011 and 2012 were primarily due to the additional
synoptic sampling events in Bucktail Creek and Big Deer Creek and installation of the USGS monitoring
stations in Blackbird Creek and Panther Creek.
TABLE 7-1
Operations, Maintenance, and Monitoring Costs for the Blackbird Mine Site Remedy
Blackbird Mine Site, Lemhi County, Idaho
Description
2008
2009
2010
2011
2012
Yearly Average
for 2008-2012
WTP, Pumping, Non-civil Site
Maintenance
$605,176
$683,482
$632,823
$748,504
$917,212
$717,439
Civil Engineering Structures and
Improvements
$417,655
$383,473
$417,689
$1,186,276
$513,198
$583,658
Underground Mine
$89,325
$37,983
$768,156
$787,278
$549,359
$446,420
Monitoring and Reporting
$471,924
$479,215
$438,239
$493,819
$535,732
$483,786
Total O&M Cost
$1,584,080
$1,584,153
$2,256,907
$3,215,877
$2,515,501
$2,231,304
Source: Blackbird Mine Site Group
7.1.6 Implementation of Institutional Controls
As described in Section 4, the 2003 ROD as changed by the 2012 ESD, required ICs in the Blackbird and
Bucktail Creek drainages to protect the remedy, preclude uses that would result in unacceptable risks
(such as residential use), and maintenance of access controls (fencing and gates) to limit unauthorized use.
Along Panther Creek, the ROD provided that soil management ICs are needed at some of the properties
where overbank deposits were removed as part of Early Actions or Remedial Actions to preclude
unacceptable future exposure if underlying soils with elevated arsenic concentrations are brought to the
surface (as a result of erosion, digging, or construction activities). The 2012 ESD now includes cobalt
cleanup levels that need to be maintained. The private properties that require ICs for underlying soils are:
former Panther Creek Inn, Cobalt Townsite, Noranda Pasture, Riprap Bar, Sillings, Fernandez, Deep
Creek Campground, and Bevan. The properties under USFS control that require ICs are the Riprap Bar
and Deep Creek Campground.
Consistent with the ROD, the 2003 UAO requires that any UAO Respondent that owns or controls any
property within the site must provide access, and they shall implement the ICs, including providing long-
term, permanent, enforceable easements or comparable instruments that run with the land and are binding
upon future landowners (see Paragraph 70 of Amendment 1 of the UAO). The UAO also requires that the
Respondents refrain from using the site, or such other property, in a manner that would interfere with or
adversely affect the implementation, integrity, or protectiveness of the remedy. Specific restrictions
include, but are not limited to, the following:
1. Prohibit the use of contaminated groundwater for drinking water purposes in the Blackbird Creek
Drainage Basin and the Bucktail Creek Drainage Basin
2. Prohibit residential use and intensive recreational use (e.g., camping in excess of 14 days) of property
located in the Blackbird Creek Drainage Basin and the Bucktail Creek Drainage Basin containing
arsenic in excess of 100 mg/kg
3. Restrict construction and related activities that may impact the integrity of the remedy and/or the
attainment and maintenance of Performance Standards
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Additionally, the UAO also requires that Respondents use best efforts to obtain access and ICs on
property not under their ownership and control and that the ICs need to be long-term, permanent,
enforceable easements or comparable instruments that run with the land and are binding upon future
landowners. Additionally, SOW Sections 2.1.1.8, 2.1.2.5, and 2.1.3.5 provided for the specific purposes
and objectives for ICs in each of the drainage basins, which were also set forth in the 2003 ROD (see
Section 4.3).
ICs for the downstream privately owned properties have been put into place, where appropriate. An Idaho
Uniform Environmental Covenant was recorded on the Rogers Property on December 10, 2007, which
effectuates restrictions consistent with the ROD and SOW. Prior to recording of the covenant, a title
search was conducted and confirmed that there were no prior recorded interests that could potentially
eliminate or undermine the long-term effectiveness of the covenant. The O&M Manual requires that the
BMSG monitor the landowner's compliance with the covenant.
On the other properties with contaminated soil in the subsurface, the UAO provided that a county
ordinance containing soil management requirements be submitted to the Lemhi County Commissioners.
Unfortunately, on January 14, 2008, the County Commissioners rejected adopting the ordinance.
On May 5, 2008, EPA approved a work plan under which the BMSG will implement a soil management
program and provide a disposal repository to the landowners if they excavate soil that cannot be placed
back in the excavation location (BMSG, 2008). Under the work plan, the BMSG is required to:
• Conduct quarterly monitoring of properties where contamination has been left at depth to determine if
underground construction is planned. If underground construction is planned, the BMSG will provide
information about the requirements to avoid recontamination during construction.
• Provide transportation of contaminated soils to the repository if all contaminated soils cannot be
replaced in excavations, and provide clean replacement soils to the landowner if necessary.
• Provide testing of excavated soils as needed and testing of adjacent soils after construction to assure
that recontamination has not occurred.
• Provide annual notice to the landowners about the potential presence and location of contaminated
subsurface soils, specific information on notification, handling, transport, and disposal practices, and
offers of technical assistance from the BMSG.
EPA will oversee and enforce the BMSG's obligations under the UAO and soils management work plan
and address private property owners' compliance with procedures and directions for managing
contaminated subsurface soils along Panther Creek. The soils management plan is currently meeting
project RAOs.
The Rogers property has a Uniform Environmental Covenants Act (UECA) covenant, and two property
owners have recorded a deed notice on their property. Discussions to date with certain other downstream
landowners indicate a reluctance to record a deed notice or covenant on the title of their property. Given
that there is a soils management plan in place and we have reviewed that it is being implemented and has
been effective in avoiding unacceptable exposure to subsurface soils, we believe the ICs in place for
downstream property owners are sufficient.
To date, no ICs have been implemented for the mine site or the Cobalt Townsite which is owned by the
Blackbird Mine Company Limited Partnership. Negotiations and development of an easement to USFS
for the Cobalt Townsite have been ongoing for a significant amount of time. Likewise, discussions and
negotiations for placement of an Idaho Uniform Environmental Covenant on the mine have not yet
resulted in a recorded covenant. The Noranda Mining and Eastland Management (a subsidiary of Rio
Tinto) jointly own the former PCI property, which does not currently have an IC in place. Future
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residential use of groundwater and exposure to contaminated soils above future residential use levels
poses a human health risk, warranting an IC put into place. The UAO prohibits Respondents from
conducting activities inconsistent with the ROD and monitoring and inspections demonstrate that no
unacceptable uses or exposures are occurring on those properties. The UAO requirements can be enforced
against the current landowners if unacceptable uses or exposures were to occur.
The final Environmental Impact Statement for the Idaho Cobalt Project was issued by USFS on June 12,
2008. The final Environmental Impact Statement and Blackbird Mine ROD include requirements for
modifications to the Plan of Operations for the Idaho Cobalt Project that will require approval by EPA
and USFS Remedial Project Managers on road designs, or any excavation or construction that could
disturb the historical mine wastes or remedial infrastructure.
The Forest Service is in the process of establishing additional administrative ICs for lands administered
by the USFS (i.e., Deep Creek Campground, Rip Rap Bar and USFS land at the Mine Site).
In 2009, the owner of the Idaho Cobalt Project obtained a right-of-way by condemnation on existing roads
across the Blackbird Mine Site to access their mineral claims and to use and make such modifications and
erect such structures on the roads as it determines necessary to use and enjoy their right-of-way. The
right-of-way is a significant property right that is not subject to the ROD and use restrictions required by
the ROD, because no IC running with the land was recorded on the mine site title prior to the
condemnation action—thus demonstrating the need for controls that run with the land. In 2011, the owner
of the right-of-way entered into a Administrative Settlement Agreement and Order on Consent with EPA
and agreed to allow EPA to oversee work it conducts on the roads.
7.1.7 Monitoring Activities
Monitoring activities are extensive at this Site and are conducted regularly for water quality, WTP
effluent, monitoring wells, in-stream sediments, fish, and benthic organisms. As needed, monitoring is
also conducted at the overbank areas along Panther Creek (see Section 6.3.4). Monitoring is conducted in
accordance with the Performance Monitoring Plan for the site (Golder, 2006b). The monitoring is
adequate to determine the protectiveness and effectiveness of the remedy.
7.1.8 Opportunities for Optimization
The BMSG has implemented the following measures since the last Five Year Review to
optimize the Blackbird Mine remedy and/or to improve the operation and maintenance of
the remedial actions:
• Lining of clean water diversion ditches—there are two major clean water diversion ditches in the
Blackbird Creek drainage that were leaking and not diverting as much clean water as anticipated
around contaminated areas. These ditches were re-constructed and lined with clay to reduce the
leakage and improve the diversion of clean water around the contaminated areas.
• Removal of contaminated materials and construction of stabilization structures along Blackbird
Creek—significant quantities of contaminated sediments along Blackbird Creek were removed and a
series of stabilization structures and bendway weirs were constructed in eight areas along Blackbird
Creek. These measures removed much of the source of contaminants from Blackbird Creek and
reduced erosion potential for the remaining contaminants along Blackbird Creek that were
re-contaminating previously cleaned up overbank areas along Panther Creek during high flow events.
• Construction of sludge drying beds—the location for disposal of sludges from the Water Treatment
Plant was nearing capacity. The BMSG constructed a series of sludge drying beds for disposal of the
sludges until more permanent sludge disposal options could be implemented.
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• Improvements to the groundwater collection system beneath the Meadow/Blackbird Creek cap—the
drainage system for the collection of groundwater that is transported beneath the cap for treatment at
the Water Treatment Plant has suffered plugging problems in the past several years. The BMSG
reconstructed much of the collection system upstream from the groundwater cutoff wall to improve
the drainage and reduce the plugging.
• Upgrading of the Water Treatment Plant—high flows in 2012 overwhelmed the hydraulic capacity of
the existing WTP. The BMSG upgraded the hydraulic capacity of the existing plant from 1,000 gpm
to 1,200 gpm, and is in the process of adding facilities for an additional 1,300 gpm of treatment
capacity to increase the total treatment capacity to 2,500 gpm.
7.1.9 Early Indicators of Potential Remedy Problems
Nothing was identified during the preparation of this Five-Year Review that would be an early indicator
of potential remedy problems.
7.2 Question B: Are the Exposure Assumptions, Toxicity
Data, Cleanup Levels, and Remedial Action Objectives
Still Valid?
Yes, the exposure assumptions and RAOs are still valid. However, there have been changes to the cleanup
levels and toxicity data (Section 7.2.4). The cleanup levels established in the ROD have been updated by
in May 2012 ESD. The ESD documents two significant changes of the cleanup levels selected in the 2003
ROD:
• Established cleanup levels for cobalt in overbank deposits for Blackbird Creek and Panther Creeks, as
well as residential groundwater, and lowered the cleanup level for mine site groundwater from
1.53 mg/L to 0.009 mg/L (Table 4-2)
• Revised recreational-use scenario for certain USFS lands along Panther Creek raising the arsenic
cleanup level from 590 mg/kg to 1,180 mg/kg and the cobalt cleanup level from 390 mg/kg to
780 mg/kg
7.2.1 Changes in Applicable or Relevant and Appropriate Requirements
During the review of the ARARs established in the ROD, the surface water federal Ambient Water
Quality Criteria (AWQC) cleanup level of 0.014 mg/L for Blackbird Creek, Panther Creek, South Fork
Big Deer Creek, and Big Deer Creek was identified as not currently applicable or relevant and
appropriate. Panther Creek, South Fork Big Deer Creek, Big Deer Creek, and Blackbird Creek are
currently designated by the State of Idaho as a secondary contact recreation use areas. The numeric
criteria for arsenic in waters designated for recreation use areas is 0.010 mg/L.
7.2.2 Changes in Exposure Pathways or Land Use
The former Panther Creek Inn was previously designated as a current residential use. However, due to the
closure of the Panther Creek Inn and the purchase of the property by Noranda Mining and Eastland
Management (a subsidiary of Intalco), the anticipated future use is future residential use and recreational.
No other current and/or anticipated future land and water uses at or near the Blackbird Mine Site have
changed since the ROD.
7.2.3 New Contaminants or Contaminant Sources
No new contaminants have been identified at the Blackbird Mine Site.
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7.2.4 Changes in Toxicity or Contaminant Characteristics
In August 2008, EPA published revised toxicity values for cobalt. Revised risk calculations based on the
revised toxicity values indicated that some overbank deposits and groundwater at the site have cobalt
concentrations that exceed the hazard quotient (HQ) of 1 for non-cancer risks for ingestion of
groundwater under worker and residential use scenarios as well as ingestion of soils under the recreation
use and residential use scenarios. Table 4-2 describes the new cobalt cleanup levels due to the revised
toxicity values.
Furthermore, risk calculations based on incidental ingestion and dermal contact of surface water with
cobalt in Panther and Blackbird creeks based on the recreational exposure scenarios used in the Site-Wide
Human Health Risk Assessment for the Blackbird Mine Site and updated toxicity values concluded that
there were no unacceptable risks shown.
A review of human health risk assessment documents since 2008 indicated that the newer guidance
released is not directly relevant to the Blackbird risk calculations or remedial action goals. The Regional
Screening Levels (RSLs) published by EPA twice a year have not changed for arsenic and cobalt since the
new cobalt values in 2008.
7.2.5 Changes in Remedial Action Objectives
EPA has reviewed the RAOs listed in Section 4.2.1. There have been no changes to the RAOs, and the
RAOs remain valid.
7.3 Question C: Has Other Information Come to Light that
Could Call into Question the Protectiveness of the
Remedy?
No other information has come to light that could call into question the protectiveness of the remedy.
7.4 Technical Assessment Summary
The remedy is not yet performing as intended because implementation of the selected remedial actions
and necessary contingent remedial actions have not been completed, and not all of the necessary ICs have
been implemented. In addition, concentrations of COCs in surface waters and sediments remain above
cleanup levels in certain streams. In general, the exposure assumptions, cleanup levels, and RAOs used at
the time of the remedy selection are still valid. A revised toxicity value for cobalt was established leading
to the conclusion that concentrations exceed HQ of 1 for non-cancer risks for groundwater and soils.
Implementation of contingent actions in Blackbird Creek including the construction of in-stream
stabilization and additional soil characterization and removal in Blackbird Creek and Panther Creek
provide support for the remedy to function as intended. Continued monitoring and optimization (if
determined to be necessary) of the in-stream stabilization will be necessary to abate any future high flow
events recontaminating overbank soils downstream. Furthermore, if the stabilization structures are
ineffective in mitigating future recontamination of overbank areas in Panther Creek, then future removal
actions of overbank deposits would likely be necessary.
It is anticipated that the remedy will function as intended for all elements upon completion of all remedial
actions, completion of relevant contingent actions, evaluation and optimization of in-stream stabilization
along Blackbird Creek, implementation of all ICs, and following natural recovery of sediments.
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SECTION 8
Issues Raised During Five-Year Review
Table 8-1 presents the issues identified in this Five-Year Review.
TABLE 8-1
Issues Potentially Affecting the Remedy's Current or Future Protectiveness
Blackbird Mine Site, Lemhi County, Idaho
Issue
Affects Current
Protectiveness?
(Yes/No)
Affects Future
Protectiveness?
(Yes/No)
(1) Concentrations of COCs in sediments remain above current cleanup levels at certain
times and places in area creeks downstream from the mine.
No
Yes
(2) Concentrations of COCs in certain overbank area soils exceed cleanup levels.
Yes
Yes
(3) Surface water cleanup levels are not currently met in South Fork Big Deer Creek.
Yes
Yes
(4) Surface water cleanup levels are not currently met in the lower reaches of Big Deer
Creek
No
Yes
(5) ICs have not been implemented at the Cobalt Townsite, former Panther Creek Inn
area, and the Blackbird Mine.
No
Yes
(6) The full nature and extent of cobalt contamination in the Panther Creek shallow
alluvium aquifer has not been fully defined.
No
Yes
(7) Bucktail Creek groundwater concentration of cobalt exceeds cleanup level. Nature
and extent of groundwater contamination in Bucktail Creek and South Fork Big Deer
Creek drainage have not been characterized.
No
Yes
(8) The effectiveness of the Blackbird Creek stabilization structures is unknown.
No
Yes
(9) The significance of floe as a recontamination source is unknown.
No
Yes
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SECTION 9
Recommendations and Follow-up Actions
Table 9-1 lists the recommended follow-up actions related to the issues identified in Section 8.
TABLE 9-1
Recommendations/Follow-up Actions Regarding Issues Potentially Affecting the Remedy's Current or Future
Protectiveness
Blackbird Mine Site, Lemhi County, Idaho
Follow-up Actions
Affect
Protectiveness?
Recommendations/Follow-up
Actions
Responsible
Party
Oversight
Agency
(Yes/No)
Issue
Date
Current Future
(1) Concentrations of COCs in
sediments remain above current
cleanup levels at certain times and
places in area creeks downstream
from the mine.
Continue to implement the
sediment monitoring program to
determine if further action is
warranted.
BMSG
EPA
8/25/2018
No Yes
(2) Concentrations of COCs in
certain overbank area soils exceed
cleanup levels.
Implement remedial actions.
Conduct removal of soils at Sillings
pastures/overbank areas.
BMSG
EPA
12/31/2014
Yes Yes
(3) Surface water cleanup levels
are not currently met in South
Fork Big Deer Creek.
Monitor in South Fork Big Deer
Creek through 2014 to determine if
the diversion pipeline is warranted.
BMSG
EPA
12/31/2014
Yes Yes
(4) Surface water cleanup levels
are not currently met in the lower
reaches of Big Deer Creek
Continue monitoring in Big Deer
Creek, and identify if any additional
actions are necessary if water
quality goals are not achieved and
exceedances are due to the
Blackbird Mine.
BMSG
EPA
8/25/2018
No Yes
(5) ICs have not been
implemented at the Cobalt
Townsite, former Panther Creek
Inn area, and the Blackbird Mine.
Continue efforts with BMSG and
Department of Justice to
implement ICs
BMSG
EPA
12/31/2013
No Yes
(6) The full nature and extent of
cobalt contamination in the
Panther Creek shallow alluvium
aquifer has not been fully defined.
Conduct a study to characterize the
nature and extent of
contamination.
BMSG
EPA
12/31/2013
No Yes
(7) Bucktail Creek groundwater
concentration of cobalt exceeds
cleanup level. Nature and extent
of groundwater contamination in
Bucktail Creek and South Fork Big
Deer Creek drainage have not
been characterized.
Conduct a study to characterize the
nature and extent of
contamination.
USFS
EPA
12/31/2013
No Yes
(8) The effectiveness of the
Blackbird Creek stabilization
structures is unknown.
Continue to monitor the
effectiveness of stabilization
structures, and conduct future
contingent action removals along
Panther Creek in overbank areas if
they become recontaminated at
concentrations above cleanup
levels.
BMSG
EPA
8/25/2018
No Yes
ES041013223530BOI
9-1
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(9) The significance of floe as a Continue to monitor arsenic BMSG EPA 8/25/2018 No Yes
recontamination source is concentrations in oxyhydroxide floe
unknown. deposits in Blackbird Creek
9-2
ES041013223530BOI
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SECTION 10
Protectiveness Statement
The remedy at the Blackbird Mine Site is expected to be protective of human health and the environment
upon completion of all remaining remedial actions, completion of any relevant contingent actions,
evaluation and optimization of in-stream stabilization and any potential additional measures along
Blackbird Creek, and implementation of all ICs. In the interim, remedial activities completed to date have
adequately addressed all exposure pathways that could result in unacceptable risks in those areas.
ES041013223530BOI
10-1
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-------
SECTION 11
Next Review
Hazardous substances, pollutants, or contaminants above levels that allow for unrestricted use and
unlimited exposure remain at the site. Therefore, another Five-Year Review is required. The next
Five-Year Review will be conducted no later than August 2018, but may be conducted earlier at EPA's
discretion.
ES041013223530BOI
11-1
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SECTION 12
Documents Cited and Reviewed
Blackbird Mine Site Group (BMSG). 2008. Final Work Plan, Management of Subsurface Soils, Panther
Creek Private Properties. Prepared by the Blackbird Mine Site Group. April 15.
CH2M HILL. 1998. Human Health Risk Assessment for the Panther Creek Inn Area of the Blackbird
Mine Site. Prepared for the U.S. Environmental Protection Agency, Region 10. September.
CH2M HILL. 1999. Human Health Risk Assessment for the Panther Creek Overbank Deposit Areas of
the Blackbird Mine Site. Prepared for the U.S. Environmental Protection Agency, Region 10. August.
CH2M HILL. 2001. Aquatic Ecological Risk Assessment, Blackbird Mine Site. Prepared for the
U.S. Environmental Protection Agency, Region 10. July 17.
CH2M HILL. 2002. Final Site-Wide Baseline Human Health Risk Assessment for the Blackbird Mine
Site. Prepared for the U.S. Environmental Protection Agency, Region 10. March 13.
Ecometrix. 2008. Draft Biomonitoring Study, Panther Creek Watershed, September 2007. Prepared for
the BMSG. April.
Golder Associates Inc. (Golder). 1995. Analysis of Early Action Alternatives. Prepared for the BMSG.
April 19.
Golder Associates Inc. (Golder). 2000. Terrestrial Ecological Risk Assessment. Prepared for the BMSG.
September, 1.
Golder Associates Inc. (Golder). 2001a. Final Blackbird Mine Site Remedial Investigation. Prepared for
the BMSG. November 30.
Golder Associates Inc. (Golder). 2001b. Addendum to the Blackbird Mine Site Remedial Investigation.
prepared for the BMSG. December 28.
Golder Associates Inc. (Golder). 2003. Draft Technical Memorandum, Spring 2003 Water Quality Results
for Lower Big Deer Creek. Prepared for the BMSG by Golder Associates, Inc. August 29.
Golder Associates Inc. (Golder). 2004a. Draft Technical Memorandum, Assessment of Lower Big Deer
Creek Metals Loading. Prepared for the BMSG by Golder Associates, Inc. February 6.
Golder Associates Inc. (Golder). 2004b. Technical Memorandum, Spring 2004 Weekly Big Deer Creek
Monitoring. Prepared for the BMSG by Golder Associates, Inc. September 10.
Golder Associates Inc. (Golder). 2005. Report on 2004 Assessment of Lower Big Deer Creek Metals
Loading. Prepared for the BMSG by Golder Associates, Inc. April 4.
Golder Associates Inc. (Golder). 2006a. Report on Assessment of Lower Big Deer Creek Metals Loading.
Prepared for the BMSG by Golder Associates, Inc. January 13.
Golder Associates Inc. (Golder). 2006b. Performance Monitoring Plan, Blackbird Mine Site. Prepared for
the BMSG by Golder Associates, Inc. March 17.
Golder Associates Inc. (Golder). 2007a. Final Report on Lower Big Deer Creek 2006 Field
Investigations. Prepared for the BMSG by Golder Associates, Inc. March 23.
Golder Associates Inc. (Golder). 2007b. Draft for EPA Review, Blackbird Mine Site Operation and
Maintenance Manual. Prepared for the BMSG by Golder Associates, Inc. November 13.
ES041013223530BOI
12-1
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Golder Associates Inc. (Golder). 2008a. Blackbird Mine Site Storage/Treatment Assessment. Prepared for
the BMSG by Golder Associates, Inc. June 19.
Golder Associates Inc. (Golder). 2008b. Draft Report for EPA Review, Blackbird Mine Site 2007
Monitoring Report. Prepared for the BMSG by Golder Associates, Inc. January 31.
Golder Associates Inc. (Golder). 2008c. Final Addendum, West Fork Tailings Impoundment Stability
Analyses. Prepared for the BMSG by Golder Associates, Inc. March 3.
Golder Associates Inc. (Golder). 2009. 2009 Post-Removal Characterization and Construction
Completion Reports. Prepared for the BMSG by Golder Associates, Inc. April.
Golder Associates Inc. (Golder). 201 la. Performance Monitoring Plan, 2011 Revision, Blackbird Mine
Site, Lemhi County, Idaho. Prepared for the BMSG by Golder Associates, Inc.
Golder Associates Inc. (Golder). 201 lb. 2009 Post-Removal Characterization and Construction
Completion Report. Prepared for the BMSG by Golder Associates, Inc. April 29.
Golder Associates Inc. (Golder). 2012a. 2011 Post-Construction Completion Report. Draft for EPA
Review. Prepared for the BMSG by Golder Associates, Inc. April 6.
Golder Associates Inc. (Golder). 2012b. 2010 Post-Construction Completion Report. Prepared for the
BMSG by Golder Associates Inc. May 4.
Golder Associates Inc. (Golder). 2012c. Blackbird Mine Site 2011 Monitoring Report, Lemhi County,
Idaho. Draft for EPA Review. Prepared for the BMSG by Golder Associates Inc. February 14.
Golder Associates Inc. (Golder). 2012d. Data Summary Report for the 2011 Characterization of Panther
Creek and Blackbird Creek Overbank Areas. Draft for EPA Review. Prepared for the BMSG by Golder
Associates Inc. March 13.
Golder Associates Inc. (Golder). 2012e. Data Summary Report for the 2011 Characterization of Panther
Creek and Blackbird Creek Overbank Areas. Draft for EPA Review. Prepared for the BMSG by Golder
Associates Inc. March 13.
Golder Associates Inc. (Golder). 2012f. Summary ofBucktail Creek, South Fork Big Deer Creek and
Upper Big Deer Creek Water Quality through 2009. Prepared for the BMSG by Golder Associates Inc.
Project No. 943-1595-009.3034. January 11.
Golder Associates Inc. (Golder). 2013a. 2012 Post-Construction Completion Report. Draft for EPA
Review. Prepared for the BMSG by Golder Associates Inc. March 19.
Golder Associates Inc. (Golder). 2013b. Blackbird Mine Site 2012 Monitoring Report, Lemhi County,
Idaho. Draft for EPA Review. Prepared for the BMSG by Golder Associates Inc. February 14.
Golder Associates Inc. (Golder). 2013 c. Data Summary Report for the 2012 Characterization of Panther
Creek and Blackbird Creek Overbank Areas. Draft for EPA Review. Prepared for the BMSG by Golder
Associates Inc. March 28.
Golder Associates Inc. (Golder). 2013d. Blackbird Creek In-stream Stabilization Preliminary
Performance Review - 2012 Summary. Draft for EPA Review. Prepared for the BMSG by Golder
Associates Inc. March 22.
Idaho Department of Environmental Quality (IDEQ). 1997. Use Attainability Analysis, Blackbird Creek.
Prepared by Christopher Mebane for Idaho Division of Environment Quality and EPA. September.
12-2
ES041013223530BOI
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Idaho Department of Environmental Quality (IDEQ). 2002. Use Attainability Analysis, Bucktail Creek.
Prepared by Christopher Mebane for Idaho Department of Environment Quality. February.
Knight Piesold. 1994. West Fork Tailing Facility Diversion, Final Construction and Quality Assurance
Certification Report. Prepared for Noranda Mining, Inc. by Knight Piesold and Company. February 10.
Mebane. 1994. Preliminary Natural Resources Survey: Blackbird Mine. Lemhi County, Idaho. National
Oceanic and Atmospheric Administration, Office of Resource Conservation and Assessment, Seattle,
WA. October 23.
U.S. Environmental Protection Agency (EPA). 2001. EPA's Comprehensive Five-Year Review Guidance.
OSWER Directive 9355.7-03B-P. June.
U.S. Environmental Protection Agency (EPA). 2003. Blackbird Mine Superfund Site Record of Decision.
Prepared by Office of Environmental Cleanup, EPA Region 10. February.
U.S. Environmental Protection Agency (EPA). 2007. Explanation of Significant Differences -
Explanation of Significant Differences for the Record of Decision for the Blackbird Mine Lemhi County,
Idaho.
U.S. Environmental Protection Agency (EPA). 2012. Explanation of Significant Differences -
Explanation of Significant Differences for the Record of Decision for the Blackbird Mine Lemhi County,
Idaho.
U.S. Department of Agriculture Forest Service (USFS). 2008. Final Environmental Impact Statement,
Idaho Cobalt Project. Prepared by the U.S. Department of Agriculture, Forest Service. June 12.
ES041013223530BOI
12-3
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Figures
ES041013223530BOI
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Appendix A
Public Notices
ES041013223530BOI
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FIGURE 3-1
Regional Overview Map
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
SOURCE: ERT 1982
ES041513033443PHX Figure3-l_01 AS (04/2013)
-------
BUCKTAIL
/—DIVERSION
/ PIPELINE
abandoned
USPS CAB'N
LOWER BUCKTAIL
CREEK SEDIMENT
BLACKTAIL PIT REPOSITORY
WATER TREATMENT PLANT
7100 DAM
Cobalt
¦ST FORK SEDIMENT POND
PANTHER CREEK
SEDIMENT PONDS
NTHER CREEK INN
ID CABIN
ES041513033443PHX Figure 3-2_03 AS (05/2013)
FIGURE 3-2
Blackbird Mine Waste
Management Area
Blackbird Mine Site 2013 Five Year Review
Lemhi County¦ Idaho
CH2MHILL.
LEGEND
Boundary of Waste
Management Area
END OF
JION AREA NO. 8
4000
LOWER BUCKTAIL PUMPBACK
STATION
7 /
7000 DAM —
DRAINAGE DIVIDE
8000
-------
KEY MAP
c
£
Ut
c
W
1
Montana
~
r
Oregon
us
c
"htevad
Idaho
a | Utah
o
&
Sevan Property
G<-
Gant Cr.
Former Panther Creek Inn
Napias
Creek Area
C. Fernandez
Property
Sprin8Cr.
Cobalt Townsite
and Noranda
Pasture
" Riprap Bar
N
Not to Scale
ES041513033443PHX Figure 3-3_01 AS (04/2013)
FIGURE 3-3
Properties Cleaned Up
Along Panther Creek
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
HG DEER CKr
PDES OUTFALL
NPDES
LOWER SEDIMENT DAM
BlilCKTAIi
CAPTURE
fATER
WAfE^
SUPPU
SEPTIC
FIELD
VENT SHAFT
CONSTRUCTEI
(WETLAND
MANAGEMENT
POND T
BMSGPHASE II
PUMPBACK
STATIONS
INFfLTRATI'
FIELD/
GROUNDWATER
^PtfMPBACK
EXPLOSIVE:
MAGAZINE
5yiNE MINE
WORKINGS
LISTING <
'OWERLINl
LEGEND
PROPOSED
POWERLINE
EXISTING
POWERLINE
PIPELINE
PRIMARY RD.
SECONDARY RD.
TERTIARY RD.
WETLAND/WATER FEATURE
ROADLESS AREA PRIVATE PROPERTY
FORMATION CAPITAL
CLAIM BOUNDARY
WQ-24 (BDSW-03)
~ SURFACE WATER
MONITORING POINT
SCALE
FEET
APPROXIMATE
Source: Formation Capital Corporation
ES041513033443PHX Figure 3-4_01 AS (04/2013)
FIGURE 3-4
Idaho Cobalt Project Overview Map
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
BLACKBIRD MINE SITE
WATER TREATMENT PLANT
WEST FORK
TAILINGS
IMPOUNDMENT
SCALE IN FEET
SOURCE: Golder Associates (2011b)
FIGURE 4-1
Blackbird Creek Stations
and Stabilization Areas
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
ES041513033443PHX Figure4-l_01 AS (04/2013)
-------
PASW-01 (NOT SHOWN
-1 MILE UPSTREAM OF MOUTH)
TO SALMON RIVER
PASW-04X '
PASW-04
BDSW-0'
PASW-05
BDSW-03
SFSW-011
'SFSW-02
BTSW-01
SFSW-
PASW-07
PATENT CLAIM BOUNDARY
BLACKTAIL PIT REPOSITORY
WATER TREATMENT PLANT
MCSWk)1
BBSW-08
VHGSW-01
M BBSW-07
BBSW-04
BBSW-05,
BBSW-07A
BBSW-06,
PASW-08
Cobalt
PASW-09 (USGS 13306371
BBSW-03A
WFIDSW-01
VJWFSW-01
'^tWFTTSW-01
WEST FORK TAILINGS IMPOUNDMENT
wfsw-o:
!W-02(USGS 13306336)
BBSW-01A
PASW-
PASW-11
-W)~
LEGEND
BBSW-01
FIGURE 6-1
Blackbird Mine Surface Water
Monitoring Locations
Blackbird Mine Site 2013 Five Year Review
Lemhi County\ Idaho
CH2MHILL.
SOURCE: Golder Associates (2013b)
SURFACE WATER SAMPLE
MONITORING LOCATION
0
SCALE
6000
FEET
ES041513033443PHX Figure 6-l_01 AS (04/2013)
-------
0.06
0.05
0.04
IWQS - Idaho Water Quality Standards
CCC - Criteria Continuous Concentration (chronic criteria)
CMC - Criteria Maximum Concentration (acute criteria)
O)
E
° 0.03
'
CB
CD
O
O
O
0.02
0.01
0.00
/ /,/ / / / / / ,/ / / / / / /V / // / /V / / / / ,/ /
LEGEND
IWQS CMC
• Cu Cone
—— IWQS CCC
SOURCE: Golder Associates (2013b)
ES041513033443PHX Figure 6-2_01 AS (04/2013)
FIGURE 6-2
Dissolved Copper Concentrations Vs.
IWQS at PASW-09,1999 Through 2012
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
1.0000
0.1000
IWQS - Idaho Water Quality Standards
CCC - Criteria Continuous Concentration (chronic criteria)
CMC - Criteria Maximum Concentration (acute criteria)
O)
E
o
"•4—>
CB
0.0100
§ 0.0010
o
o
0.0001
• ••• • ••••• * \\ *• • # • mm fi
* • • mm m m • •• mm m • • w
m m • • ¦
0.0000
^ ^ ^ ^
^ ^ ^ ^ ,
-------
1.0000
IWQS - Idaho Water Quality Standards
CCC - Criteria Continuous Concentration (chronic criteria)
CMC - Criteria Maximum Concentration (acute criteria)
0.1000
O)
E
^ O)
o
~ "0.0100
CO 05
0)
O
c
o
O
O)
o
0.0010
a°>fe cP>fe <# df? c# c^5 ^ s^5 ^ ^ c$? ^
Date
LEGEND
¦ IWQS CMC
Cu Cone
¦ IWQS CCC
SOURCE: Golder Associates (2013b)
ES041513033443PHX Figure 6-4_01 AS (04/2013)
FIGURE 6-4
Dissolved Copper Concentrations Vs.
IWQS at BDSW-03,1995 Through 2012
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
1.000
IWQS - Idaho Water Quality Standards
CCC - Criteria Continuous Concentration (chronic criteria)
CMC - Criteria Maximum Concentration (acute criteria)
0.100 -
O)
E
^ CD
O
.2 o
I •*>
cc
O)
c o
CD —
O
g 0.010
0.001
job
1 ^ ^ ^ ^ ^ ^ ^ ^ ^ ^ -sS3 ^ ^ ^ ^ ^
Date
LEGEND
—¦ IWQS CMC
• Cu Cone
IWQS CCC
SOURCE: Golder Associates (2013b)
ES041513033443PHX Figure 6-5_01 AS (04/2013)
FIGURE 6-5
Dissolved Copper Concentrations Vs.
IWQS at BDSW-01,1995 Through 2012
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
1257500
rFPWAtt-
TRUCK
SHOP
POMP BACK
SpeHI
BBMW-05A
OLD MILL
FOUNDATION
BBPW
JOPANE
TIGHTLINE DRAIN
BBMW-06A
BBMW-03A
BBMW-07A
WATER
TREATMENT
PLANT
IOUTED
ELECTRICAL
YARD
1BMW-03B AND C
CONCRETE
CHANNEL
4"sEOUNDAfr(
DRAIN
SLUDGE POND
HGS\A/-07A
POND
BBSW-07
ES041513033443PHX Figure 6-6_01 AS (04/2013)
SOURCE: Golder Associates (2013b)
MW-01 A,
LEGEND
GROUNDWATER MONITORING
WELL LOCATIONS (APPROXIMATE)
GROUNDWATER EXTRACTION
WELL LOCATIONS
SURFACE WATER SAMPLING
LOCATIONS (APPROXIMATE)
POWER POLE
NOTE: HGSW-03 IS LOCATED ABOVE THE PORTAL IN THE
HAWKEYE GULCH NORTH OF HGSW02.
0
SCALE
FIGURE 6-6
Monitoring Well Sampling Locations in
Upper Blackbird Creek
Blackbird Mine Site 2013 Five Year Review
Lemhi County, Idaho
CH2MHILL.
-------
toUtLETl
ICHUTE
IgGTjSL
-WFINDITCH-01
WFSW-02-
Ct. 1 ^
IWEST FORK
.SEDIMENT PONDM
-f$M'BOW-1
tAIbpw-z
WFMW-1S & ID-
BOWS]
X/ \
rBpw-i/% ^ apw^_wfsw-oi
I APW-3—-A- / (CULVERT OUTLET^
WFTTSW-01'
WFMW-2—
„ -Ipwfmw-1 111 pi I
WFMW-6—^
¦S3~P>- WFMW-3
GT-1O/WFMW-9—\
GT-17/WFMW-4-
^-SWFMW-9T!
;^\/VFMW-16A
GT-100
wH' \ Ui
^|GT-26A«FMV3
WFMW-161
GJ-6AA/FMW-11=?<
WFMW-15T
¦HH
APPROXIMATE DOWNSTREAM
FOOTPRINT OF ORIGINAL DAM,
(BASED ON KNIGHT PIESOLD
1994a AND 1994b)
WFMW-12—s
WFMW-15C-
AWFSW-03
¦$¦ WFMW-13S & 13D
^¦WFMW-1109
HBB^T '
IWFMW-181
LEGEND
^ GEOTECHNICAL MONITORING WELLS
£ SURFACE WATER SAMPLING LOCATIONS
GROUNDWATER MONITORING WELL
U/G
SOURCE: Golder Associates (2013b)
GEOTECHNICAL BORING CONVERTED
TO MONITORING WELL
2011 AND 2012 BORE HOLE AND MONITORING WELL
LOCATIONS
UNDERGROUND CULVERT
REFERENCES
1. CONTOUR ARE BASED ON LIDAR DATA COLLECTED
BY AEROMETRICS 2012-08-05
2. SURVEY CONTROL PROVIDED BY WADE SURVEY
3. AERIAL IMAGERY WAS GATHERED IN
CONJUNCTION WITH THE LIDAR AND IS DATED
2012-08-05.
NOTES
1. Horizontal Datum: State Plane Coordinate System Idaho
Central Zone, NAD83/91, US Feet
2. Vertical Datum: North American Vertical Datum 1988
(NAVD88)
OVERALL SITE VIEW
FIGURE 6-7
Monitoring Well Sampling Locations at
West Fork Tailings Impoundment
Blackbird Mine Site 2013 Five Year Review
Lemhi County\ Idaho
CH2MHILL.
ES041513033443PHX Figure 6-7_01 AS (04/2013)
-------
vvEPA
Wanted for the
U ited States
En ironmental Protec ion
Agency
Region 10
Superfund Site Cleanup in Idaho
February 2013
The U. S. Environmental Protection Agency is
preparing the second Five-Year Review of the Blackbird
Mine Superfund Site cleanup in Lemhi County, Idaho,
approximately 13 miles south of the Salmon River and
21 miles west of Salmon, Idaho, within the Salmon-
Challis National Forest.
Gold, cobalt and copper mining resulted In about 12
acres of open pit, 14 miles of underground workings,
4.8 million tons of waste rock In multiple piles, and two
million tons of tailings located within the West Fork
Tailings Impoundment.
The EPA has been cleaning up this site since 1993 and
has formally updated the cleanup plan several times
to address the needs of the site. The EPA continues to
oversee the ongoing monitoring at the site.
This review examines whether the soil, surface water
and groundwater cleanup at this site continues to
protect people and the environment.
The initial cleanup included:
• Collecting and treating contaminated waters.
• Stabilizing and/or relocating waste rock piles.
• Stabilizing the West Fork Tailings Impoundment.
• Removing contaminated sediments and soils
along the banks of Blackbird Creek and
Panther Creek.
• Constructing stabilization structures along
Blackbird Creek.
You can find more information about this site at:
¦^0 http://go.usa.gov/Yz3F
You Can Get Involved!
The EPA welcomes your participation. If you have
information that may help us or would like to be
contacted for an interview, contact Fran Allans, EPA
Site Manager, at ^ allans.fran#epa.gov or
9 208-378-5775.
TDD or TTY users may call the Federal Relay Service at 1-800-877-8339 and give the operator Fran Allans' phone number.
&EPA
U ited States
En ironmental Protec ion
Agency
Region 10
February 2013
The U.S. Environmental Protection Agency is
preparing the second Five-Year Review of the Blackbird
Mine Superfund Site cleanup in Lemhi County, Idaho,
approximately 13 miles south of the Salmon River and
21 miles west of Salmon, Idaho, within the Salmon-
Challis National Forest.
Gold, cobalt and copper mining resulted in about 12
acres of open pit, 14 miles of underground workings,
4.8 million tons of waste rock in multiple piles, and two
million tons of tailings located within the West Fork
Tailings Impoundment.
The EPA has been cleaning up this site since 1993 and
has formally updated the cleanup plan several times
to address the needs of the site. The EPA continues to
oversee the ongoing monitoring at the site.
This review examines whether the soil, surface water
and groundwater cleanup at this site continues to
protect people and the environment.
The initial cleanup included:
• Collecting and treating contaminated waters.
• Stabilizing and/or relocating waste rock piles.
• Stabilizing the West Fork Tailings Impoundment.
• Removing contaminated sediments and soils
along the banks of Blackbird Creek and
Panther Creek.
• Constructing stabilization structures along
Blackbird Creek.
You can find more information about this site at:
¦^0 http://go.usa.gov/Yz3F
Yom Can Get Involved!
The EPA welcomes your participation. If you have
information that may help us or would like to be
contacted for an interview, contact Fran Allans, EPA
Site Manager, at ^ allans.fran#epa.gov or
S 208-378-5775.
TDD or TTY users may call the Federal Relay Service at 1-800-877-8339 and give the operator Fran Allans' phone number.
-------
JFfc PdH U ited States
r** m : En ironmental Protec ion
Vii/ III Mm. Agency
Region 10
1200 Sixth Avenue, Suite 900, ETPA-081
Seattle, Washington 98101-3140
February 2013
Your Input Wanted
for Blackbird Mine
Superfund Site
Cleanup in Idaho
£% U ited States
wwuIm | En ironmental Protec ion
¦*•4^-'' -I tJ mAgency
Region 10
1200 Sixth Avenue, Suite 900, ETPA-081
Seattle, Washington 98101-3140
February 2013
Your Input Wanted
for Blackbird Mine
Superfund Site
Cleanup in Idaho
------- |