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[Waste Management] - Selected Problems of Hazardous Waste Management, January 1970
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[Waste Management] - Selected Problems of Hazardous Waste Management, January 1970
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Ronald Reagan Presidential Library
Digital Library Collections
This is a PDF of a folder from our textual collections.
Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: [Waste Management] - Selected Problems
of Hazardous Waste Management, January 1970
Box: P38
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https://reaganlibrary.gov/archives/digital-library
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SELECTED PROBLEMS OF HAZARDOUS WASTE MANAGEMENT
IN CALIFORNIA
JANUARY 1970
REPORT OF THE HAZARDOUS WASTES WORKING GROUP
OF THE GOVERNOR'S TASK FORCE ON SOLID WASTE MANAGEMENT
STATE OF CALIFORNIA
RONALD REAGAN, GOVERNOR
GOVERNOR'S TASK FORCE ON SOLID WASTE MANAGEMENT
SACRAMENTO
CHAIRMAN
Frank R. Dansby
VICE CHAIRMAN
January 2, 1970
Dr. Howard Laitin
EXECUTIVE BOARD
Dr. Howard Laitin, Chairman
My dear Governor
Frank R. Dansby
Robert R. Darby
It is my privilege to submit SELECTED PROBLEMS OF
Robert L. Foreman
HAZARDOUS WASTE MANAGEMENT IN CALIFORNIA.
Dr. John M. Heslep
Donald H. Lee
General findings and recommendations concerning State
Carl C. Sexton
requirements and policies as well as specific responsi-
Dewey Vittori
bilities of a designated State agency are presented in
REPORT OF THE GOVERNOR'S TASK FORCE ON SOLID
TASK FORCE MEMBERS
WASTE MANAGEMENT. This volume presents in some
Z. Harry Astor
detail those Task Force recommendations dealing with
Ruth Benell
certain critical problem areas uncovered by the Task
Force.
Dr. Ralph A. Clave
John R. Danch
Edwin A. Estudillo
Respectfully,
Carl Fossette
Victor Gomer
Harley K. Gray
Ben J. Kazarian, Jr.
IRNanshy
Ronald M. Ketcham
Charles J. Lyons, Jr.
Frank R. Dansby
John P. Moscone
Chairman
James E. Ogden
Governor's Task Force on Solid Waste Management
William Ohanesian
J. E. Pilon
W. W. Steiner
Rudolph L. Vaccarezza
The Honorable Ronald Reagan
Robert Van Roekal
Governor of California
Sacramento, California 95814
TECHNICAL ADVISORS
Ralph H. Dudley
Dr. Solomon W. Golomb
Kenneth K. Hekimian
Bernard B. Levitt
Dr. Rolf R. Piekarz
Dr. Harold Steingold
Robert B. Wheelock
SELECTED PROBLEMS OF HAZARDOUS WASTE MANAGEMENT
IN CALIFORNIA
JANUARY 1970
REPORT OF THE HAZARDOUS WASTES WORKING GROUP
OF THE GOVERNOR'S TASK FORCE ON SOLID WASTE MANAGEMENT
HAZARDOUS WASTES WORKING GROUP
GOVERNOR'S TASK FORCE ON SOLID WASTE MANAGEMENT
Chairman
Howard Laitin, Ph. D., P.E.
Manager, Systems Analysis
Hughes Aircraft Company; and
Adjunct Professor of Industrial and
Systems Engineering
University of Southern California
Members
Technical Advisors
Ralph A. Clave, M.D., FACS
Ralph H. Dudley, M.S., P.E.
Assistant Clinical Professor of
Member, Technical Staff
Surgery - School of Medicine
Aerospace Corporation
University of Southern California
Solomon W. Golomb, Ph. D.
Harley K. Gray
Professor of Electrical
Water Quality Engineer
Engineering
Southern California Water Company
University of Southern California
James B. Ogden
Kenneth K. Hekimian, M.S., P.E.
Liquid Waste Consultant
Senior Systems Analyst
Aerojet-General Corporation
Rolf R. Piekarz, Ph. D.
Senior Economist
Institute for Defense Analyses
Harold Steingold, Ph.D., P.E.
Senior Research Engineer
RAND Corporation
ii
PREFACE
This report is concerned with those wastes which present a hazard
to human, animal, or plant life when not managed properly.
FINDINGS AND MAJOR RECOMMENDATIONS are listed in Section
I. In section II, GENERAL INTRODUCTION TO HAZARDOUS WASTES,
hazardous wastes are defined, chemical and biological contamination
are discussed and the responsibilities and method of approach of the
Working Group are described.
In each of the following sections a selected problem is discussed
and recommendations concerning the specific area are made:
Section III, CHEMICAL AND PETROLEUM INDUSTRY WASTES
Section IV, DRUGS, HYPODERMIC NEEDLES, MEDICAL
SUPPLIES, ETC.
Section V, RADIOACTIVE WASTES
Section VI, SEWAGE TREATMENT SLUDGE
Section VII, FEDERAL AND MILITARY
In the appendix selected data from Dr. Thrift D. Hanks, Solid
Waste/Disease Relationships and from Sanitary Engineering Research
Laboratory, Comprehensive Studies of Solid Waste Management -
Second Annual Report are adapted. These data identify solid waste
sources and indicate hazardous constituents. These data were used as
a framework for the screening, review and analysis of the Hazardous
Waste problem in California conducted by the Working Group.
iii
CONTENTS
I
FINDINGS AND MAJOR RECOMMENDATIONS
1
II
GENERAL INTRODUCTION TO HAZARDOUS WASTES
5
1. Background
5
2.
Responsibilities and Method of Approach
8
III
CHEMICAL AND PETROLEUM INDUSTRY WASTES
13
1.
Quantitative Estimates
13
2.
Problems
18
3. Recommendations
21
IV
DRUGS, HYPODERMIC NEEDLES, MEDICAL SUPPLIES,
ETC
23
1.
Background: The Drug Manufacturing Industry
23
2.
Background: The Local Problem
24
V
RADIOACTIVE WASTES
27
1. Background
27
2. Problems
28
3. Recommendations
29
VI
SEWAGE TREATMENT SLUDGE
31
1.
Background
31
2.
Problems
32
3.
Recommendations
34
>
VII
FEDERAL AND MILITARY
35
1. Background
35
2. Problems
35
3. Recommendations
36
APPENDIX: SOME HAZARDOUS SOLID WASTE SOURCES AND
CONSTITUENTS
37
vi
I.
FINDINGS AND MAJOR RECOMMENDATIONS
The effective Solid Waste Management Program which California
needs cannot be accomplished within the framework of existing legislation.
Therefore, the Working Group recommends consideration of its findings
and prompt passage of appropriate legislation to accomplish the general
recommendations listed in Table I-1.
To date, the following hazardous wastes have been examined by the
Working Group in detail: (1) Chemical and Petroleum Industry Wastes;
(2) Drugs, Hypodermic Needles, Medical Supplies, etc; (3) Radioactive
Wastes; (4) Sewage Treatment Sludge; (5) Federal and Military. We have
found that, for these special problem areas, it is unlikely that questionnaire
surveys and voluntary self-reporting can provide an adequate data base for
problem identification and definition and program development. Further,
since these special problems tend to be concentrated in specific localities,
standard projection and extrapolation techniques tend to understate the state-
wide picture in terms of potential damage to the environment and the popula-
tion. Therefore, in order to acquire the necessary data base and information
for adequate problem definition, and for the development of special standards,
the Working Group urges the implementation of the functional recommenda-
tions of Table I-2 by the designated State agency.
1
Table I-1. General Findings and Recommendations
DRUGS, HYPODERMIC NEEDLES,
CHEMICAL AND PETROLEUM
MEDICAL SUPPLIES, ETC.
CP 1
Develop a uniform system for the classi-
DM 1
Develop basic information on solid
fication or coding of waste chemicals
waste management practices within
as to type and degree of hazard.
the drug industry in California: (1) to
determine the number, location and
CP 2
Conduct a detailed field survey of the
size of drug industry production and
major chemical and petroleum waste
processing centers; (2) to determine
generators and a questionnaire survey
and evaluate present practices, needs,
of the smaller firms to develop infor-
and problem areas of industrial solid
mation on generation of hazardous
waste management within the industry;
wastes by location of point of genera-
(3) to provide data by type on quanti-
tion, amount of waste generated by
ties of solid waste generated by the
type and degree of hazard, company
various drug manufacturing firms,
ownership, specific identification of
information an solid waste generation
the official responsible for disposal,
points within the production processes,
and the current means and points of
other sources of solid wastes from the
disposal. The questionnaire survey
plants, storage practices, collection,
should be validated by on-site verifi-
disposal or treatment methods, and
cation of an appropriate sample and a
point of discharge.
further check with the haulers involved.
DM 2
Determine the nature and extent of the
CP 3
Develop special standards of design
problems associated with disposal of
and/or operation far collection, stor-
unused, used, or partially used con-
age, transport and/or disposal sites
tainers, bottles, hypodermic syringes,
receiving hazordous wastes and methods
hypodermic needles, drugs, medicines,
of audit and control to assure compliance
medical supplies and other similar
with the standards.
items, including bandages and dressings
in the State of California.
DM 3
Should this problem be reported as
"major" or "important" by any signifi-
cant number of jurisdictions in the
State, then enabling legislation should
be passed by the State Legislature to
require the designated State Agency
to establish standards and regulations
in respect to the collection of, trans-
portation for disposal, and disposal
of discarded drugs, drug containers,
syringes, and other contaminated or
single-use medical supplies as used by
physicians, hospitals, clinics, and
similar health care facilities.
2
Table I-1. General Findings and Recommendations
(Continued)
RADIOACTIVE MATERIALS
FEDERAL AND MILITARY
RM 1
Survey current situation to determine:
FM 1
Survey Federal installations and activi-
the generators; quantity and radio-
ties for quantities and characteristics
active level of wastes produced; fre-
of wastes generated and provisions
quency and costs of collection; equip-
made for the collection, storage, and
ment used; and points of discharge ar
disposal of these wastes.
disposal.
FM 2
For each category of wastes where
RM 2
Conduct a field study and investigation
special procedures are required for
to assure that all radioactive wastes
storage, collection, transport, or
generated within the State enter the
disposal, prepare recommended stan-
formal collection and disposal system.
dards, regulations, operating pro-
cedures, or control procedures for
RM 3
Re-examine current standards, practices,
issue in the public press and for pos-
and monitoring and enforcement tech-
sible incorporation in Federal
niques to assure that they are adequate
legislation.
in meeting the current and future needs
of California.
FM 3
Seek legislation which will: require
the Federal Government to clean up
areas of Federally caused pollution or
SEWAGE TREATMENT SLUDGE
will authorize the State to do so and
recover the costs from the Federal
ST 1
Study the ecology of the Santa Monica
Government; and establish appropriate
Bay to assure that changes induced by
standards for Federal installations and
the reduction in nutriments reaching
activities which assure that the Federal
the coastal waters do not cause great
Government ceases to cause pollution.
damage to the ecological balance.
Consider solutions such as treatment
and insertion of sewer sludge from the
Hyperion plant into the shallow coastal
waters and other methods.
ST 2
Study contamination in the San
Francisco Bay area to determine the
relationship of the disposal of sewage
sludge in landfills and the identified
contamination. Establish standards
and regulations for collection, trans-
portation, and disposal of these sludges,
if study indicates such are applicable.
ST 3
Study ecology of all shallow coastal
waters off populated areas of California
to understand changes brought about
by various degrees and methods of
treatment and disposal of sludge and
associated problems.
3
Table I-2 Functional Recommendations
FINDINGS
RECOMMENDATIONS
The environment, including its quality aspects, is a dynamic system continually
The State should centrolize its Solid Waste Program Management responsibilities and
changing both in time and in space. A sound environmental quality program must
authority for planning and program activities in a single, existing State agency: The
be geared to this dynamism. All State policies and practices in the field should be
Stote Department of Public Health.
reviewed periodically and revised as appropriate. The State's Solid Waste Manage-
ment Program should consider all of the significant factors that affect environmental
quality. To do this, it will be necessary to substantially increase the magnitude
and scope of planning efforts which must be fully coordinated with planning for the
protection and development of natural resources. As the Stote's economy expands
and the quontity of wastes becomes larger, knowledge concerning environmental
quality must be expanded, ond a camprehensive approach involving all levels of
government, industry and agriculture is required.
Adequate basic data concerning quality and other matters are necessary prereq-
The designated State agency should be directed to institute and maintain on accurate
visites to the establishment af reasonable quality objectives and standards, ond for
inventory and apprapriate projections of solid waste generation. An appropriate
enforcement. Basic doto collection programs must be comprehensive and be
inventory would include information on: (1) the generation of wastes by location of
initioted for enough in advance of need to provide information cavering a wide
point of generation; (2) amount of waste generated by type and degree of hazard;
variety of conditions. Basic data callection must be a continuing program because
(3) identification of company ownership and specific identification of the official
of the dynamic nature of the system. The current bosic data programs of the federal,
responsible for disposal; (4) description of current meons of disposal and identifica-
state and local agencies are not odequate.
tion of the points of disposal or discharge.
A vested right cannot be acquired to generate or to dispose of waste into the
The designated State agency should be directed to develop special standards of
environment, or to continue to generate or dispase of wastes at any particular level
design and/or operation for collection, storage, transport and/or for disposal sites
of quality, once initioted. Periodic revision and upgrading of requirements will be
receiving hazardous wastes and to periodically review and update these stondards.
necessory to adapt to chonging conditions, and to occommodate new dischorges os
the State's economy expands and its population increoses. The interrelotianships
between woste generators and dischargers and the effects of their discharges must be
recagnized in the setting of requirements and in other quality control actions.
Current manitoring and surveillance progroms ore inadequate. Enforcement will be
The designated State agency should be directed to develop methods of audit and
a greater and more difficult problem in the future due to the much greater volume
control to assure on adequate level of compliance with the standards.
of waste thot will be generated, the greoter scope and variety of corrective octions
required, the mognitude of the costs involved, and the far more complicated inter-
relationships between the many kinds of waste discharges, and between the general
population and the dischargers.
In order to achieve odequate planning and to assure an adequote degree of enforce-
A permanent advisory boord composed of informed citizens in the areas of sanitary
ment of new environmental quality legislation, oll responsible porties involved in
engineering, ecology, economics, public heolth, municipal planning, land use,
the generation and production, collection, tronsfer, transport, and/or dispasal of
disposol system operation, etc., along with representatives from other affected public
hazardous wastes should be involved in the planning process. All waste dischorgers
and private cancerns should be appointed by the Governor to assist the designated
and others contributing to quality problems should share equitably in the costs of
Stote agency in formulating guidelines and/or standards.
achieving ond maintaining the requisite levels of quality. Ideolly, waste dis-
chargers should pay the social and economic casts of any residual effects of their
discharges, rather than having those costs passed on to others.
In oddition to identifying all waste generators and personnel of responsibility in the
As a minimum, licensing and inspection requirements should include the requirement
waste generation process, to assure the adequate ond open development of public
for complete disclosure of all parties at interest as individuals, partners, officers,
policy and fair, impartiol and odequate enforcement of stondords and regulations,
directors, or stackholders of more than 2 percent of any company, partnership,
it is necessary to identify all persons of responsibility within the entire solid waste
corporation, or business entity, engoged in the collection, transfer, transport or
management process.
disposal of waste material destined for introduction to the land or woter environment
of California.
Various wastes have been identified as possibly hazardous and os requiring further
The designated State agency should undertake a survey of points of discharge, and
information and possible development of special standards and controls (e.g.,
associated quontitotive and qualitative description of the dischorges, of hazardous
segregation or separate collection, special equipment, and special records). One
liquid wastes in order to evoluate the magnitude of the problem and as a basis for
such waste is mognesium fines. It has been reported that for lack of o legal disposal
the development of adequate standards and controls.
site at the present time, some producers have been "bootlegging" these highly
explosive materials into regular Class II landfills. This proctice has resulted in
numerous fires and explosions during the past 12 months. Liquid, chemicol and
oily wastes, injected into water courses in greater amounts than prescribed, con
become cumulatively hozardous. Ta dote, lock of adequate numbers of enforce-
ment personnel hos precluded Stote Water Quality Control Boards in industrially-
impacted areas from mointoining adequate inspection of producers' premises, ond
disposal practices. Acid and other mine drainage pollution has been suggested as
O possible areo of concern and is currently under investigation by the Working
Group.
4
II.
GENERAL INTRODUCTION
TO HAZARDOUS WASTES
1.
BACKGROUND
The Hazardous Wastes Working Group of the Governor's Task
Force on Solid Waste Management is concerned with those wastes which
present a hazard to human, animal, or plant life when not managed
properly. These toxic or hazardous wastes often require special handl-
ing and under most circumstances require disposal on a case-by-case
basis.
*
Hazardous wastes are of both chemical and biological origin. In-
cluded in the category of hazardous wastes are industrial chemicals and
sludges; residues of chemicals, paints, dyes, solvents, adhesives, oils,
plating and pickling liquors remaining on metal cuttings, sawdust, paper,
wood or cloth, or remaining in discarded containers; explosives and
flammable materials; fines and dusts from exotic materials; exotic liq-
uids, and acids and caustic liquids and solids; leachings from mineral
wastes; leachings from landfills, herbicides and herbicide containers;
pesticides, by-products of pesticide production, and pesticide containers;
pathological and infectious wastes, disposable syringes, pills, and drugs
from physicians' offices, clinics, hospitals and veterinary facilities;
radioactive materials, sewage treatment; and other similar materials.
*
See, for example, the Final Report of Study Panel to the California
State Water Resources Control Board (March 1969): "Consideration was
given to the problem of indiscriminate dumping by industrial [liquid]
waste haulers in the Los Angeles and San Francisco metropolitan areas.
Suggestions ranged from the regional board licensing of waste haulers to
requiring the establishment of local ordinances for such activities. The
regulation of waste haulers is a complicated subject involving local gov-
ernment, regulation of the waste dumps, and policing. It is recommended
that the State Water Resources Control Board, in conjunction with the
regional boards, develop and implement a program for regulation of
industrial waste haulers and make necessary legislative recommendations
to the next session of the Legislature".
5
a.
Chemical Contamination
The rapid acceleration of industrial technology has resulted in the
introduction of new and exotic materials into man's environment at an in-
creasingly rapid rate. According to Charles C. Johnson, Jr., Adminis-
trator of the Consumer Protection and Environmental Health Service of
the U.S. Department of Health, Education, and Welfare, every year more
than 500 new chemicals and chemical compounds are introduced into
industry along with countless operational innovations. Little or nothing
is known about the effects of many of these compounds, individually or in
combination. Thus, researchers such as Hanks, McGauhey and others
have pointed out the necessity for identifying and cataloging the industrial
processes and specific agents generated by these industrial processes
which may offer potential hazards in order to assure that the generation
of these potential hazards does not result in harmful effects to man, nor
to his environment.
*
Surveillance, evaluation and planning must be continuous. First,
there is the standard problem of preventing deleterious concentrations of
uncommon constituents and toxic compounds at authorized disposal
activities and controlling the unauthorized disposal of toxic or hazardous
industrial wastes. Second, there is the ever present possibility that a
changing industrial process or a new chemical substance could cause
long lasting damage to the environment within a relatively short time
period, unless the problems were identified and neutralized promptly.
To initiate corrective action before a problem becomes acute and forces
are set in motion which may well be irreversible except over long time
periods, potential problems must be anticipated, the necessary informa-
tion and data must be obtained, and plans must be formulated in advance.
Additional research is required in order to develop the necessary infor-
mation. For example, there is a need to study: factors influencing
leaching, movements of compounds through soil, chemical reactions of
materials during soil migration, ultimate fate and nature of materials,
determination of tolerable levels for those hazardous materials which
may escape into the environment, safe limits of lifetime exposures to
toxic materials, nature of injuries if excessive amounts are absorbed,
means for detecting subclinical effects, and therapeutic measures.
*
Classification distinctions such as "liquid waste" and "solid waste"
are not meaningful. The problem is pollution - no matter what the source.
Once the pollutant is in the environment, it may never be known whether
the original source was originally classified as a "liquid" or a "solid"
waste. For example, the Report of the Committee on Public Works,
United States Senate, 7 August 1969 (p. 20) contains an account of a spill
of a hazardous substance. On July 9, 1969, about 450, 000 gallons of
acid-leaching material was released into the San Francisco River; 50, 000
dead fish were counted in the first 4 miles of the river within 10 hours of
the discharge. The Supervisors of Los Angeles County have also recog-
nized this as a joint problem in their Motion on Liquid Waste, dated
September 23, 1969.
6
Two types of chemicals are of special concern: carcinogens and
pesticides. Most proofs of carcinogenesis in humans are limited to OC-
cupational exposures but there is probably a general population exposure
of unknown magnitude. Various reports substantiate this assumption in
one way or another and give emphasis to the urgent need for comprehen-
sive chemical, experimental, and epidemiologic studies to determine
actual hazards.
Pesticides may find their way into solid wastes by four principal
routes: production wastes, containers containing pesticides, food wastes,
and by direct application to wastes to control pests. Once in the wastes,
they are subjected to leaching as are other compounds. Although there
is little or no medical evidence that adverse effects have occurred, there
is an immediate need for attention to the problem of buildup of persistent
pesticides in the total environment. The Secretary of the Interior has
been quoted as stating, "Not until we have a systematic monitoring
scheme, designed to tell us how much of what is where, will we be able to
detect incipient problems early enough to prevent damage. 11 Possible
chemical changes in pesticide residues are of interest, and there is a
definite requirement for better analytical methods and schemes for de-
tection and identification.
Studies are needed on the nature of trace element chemical pollu-
tants and their physiological significance in terms of disease and
nutritional problems.
b.
Biological Contamination
Of primary concern (in regard to free biological agents of disease)
is whether or not the method of disposal, or the products of treatment
which are to be used in agriculture or other industries, permit survival
and transmission of disease organisms to humans, plants, or animals.
An important concern at disposal sites is the possibility that organ-
isms may migrate through the soil, as a result of leaching and movement
of ground water, and pollute water supplies. As early as 1927, E. coli.
was known to remain viable for 31 months in experimentally polluted
ground water. * Later studies provided data concerning movement of
bacteria through soils and factors affecting it. A few investigations have
indicated that detergents affect movement of bacteria through soil; how-
ever this problem is one which should receive additional attention in
research.
Fecal or Escherichia coli constitute about 90 percent of the coli-
forms discharged in fecal matter.
7
Sludge from various types and comprehensiveness of sewage treat-
ment presents a solid waste problem of considerable magnitude. Sludge
may be used in agriculure after a process such as composting. * When
sludge is used as a soil conditioner, viable organisms may be carried to
water supplies by surface runoff; the pathogens may offer an occupational
exposure to agriculture or sanitation workers, or may contaminate food-
stuffs. Because of these potential problems, additional information is
needed on pathogen survival and methods for assuring their destruction,
removal of pathogens by various treatment processes, and better methods
for detection and enumeration of pathogens.
Consideration should be given to certain marine aspects of disposal
of sludges. In using ocean disposal methods, it is important to dilute the
wastes and dispose of them so that they neither adversely affect the
ecology adjacent to the outfall, nor return to shore. On the other hand,
sewage treatment sludge could conceivably be used to supply nutriments
to the shallow coastal waters which have had their ecology changed due
to man-induced deprivation of such nutriments. ** Little is known of the
benefits and costs of such processes. Research to gain an understanding
of the action of waves, currents, tides, and winds in the dispersion proc-
ess is thus important.
Since the contribution of solid wastes to potential disease transmis-
sion is not well defined, research is needed to develop models of the
urbanization phenomenon (which include the ecologic aspects of zoonosis
and wastes) for use in investigations of potential epidemic hazards.
2.
RESPONSIBILITIES AND METHODS OF APPROACH
The Hazardous Wastes Working Group was charged with responsi-
bility for developing a quantitative and qualitative understanding of the
problems related to the handling and disposal of hazardous waste
*
Fair and Geyer (Water Supply and Waste Water Disposal, p. 767)
caution that such "utilization of sewage sludges is circumscribed by the
hygienic hazards involved. Pathogenic bacteria, viruses, protozoa (cysts),
and worms (eggs) can survive sewage treatment and be included in the
sludge. There, they will persist for long times and cannot be fully de-
stroyed by digestion or air-drying. Although the numbers of surviving
organisms decrease appreciably in the normal course of events, only
heat-dried sludge can be considered fully safe. 11
**
The damming of almost all California streams leading to the coast,
the paving and subsequent sweeping of streets, coupled with the disposal
of sewage treatment sludge either on land or deep at sea (as is done in
Santa Monica Bay, at the edge of an underwater cavern, below the ther-
mal incline) deprives the shallow coastal waters of their normal supply
of nutriments.
8
materials and with evaluating: (a) the adequacy of the methods utilized
to handle and dispose of the material; and (b) the degree of hazardous-
ness to the public and the environment from these wastes. In evaluating
these wastes, the Working Group was to consider the following:
1) What can be done to minimize the quantities of these
wastes being produced?
2)
To what extent should these wastes be incorporated
with other domestic and commercial wastes and what
would be the effect on existing solid waste systems?
3) What special precautions, regulations, or standards
are needed to properly handle and dispose of these
wastes?
4) Who should have the responsibility for the proper
management, control, handling and enforcement of
regulations regarding these wastes?
The Working Group, in selecting which aspects of the general prob-
lem area to explore in-depth, attempted to focus on problems which are
unevaluated as environmental hazards. To accomplish this, many dis-
cussions were held and a variety of reports and articles were reviewed.
Two reports were utilized to provide the Working Group with its classi-
fication framework: (1) Thrift G. Hanks, Solid Waste/Disease Relation-
ships; and (2) Sanitary Engineering Research Laboratory (SERL),
University of California Berkeley, Comprehensive Studies of Solid Wastes
Management - Second Annual Report. The Working Group followed, in
general, the objective and procedures outlined by SERL. Thus, a de-
scription of the SERL objectives and procedures [as modified by the
Working Group] is relevant.
The principal objective was a systematic screening of data on the
types and composition of solid wastes and on the processes of handling
and disposal for the purpose of:
1) Identifying those fractions which might have environ-
mental and public health implications.
2) Evaluating the public health significance and environ-
mental fate of the various fractions in relation to
wastes processing and disposal.
3) Identifying those constituents of the solid waste stream
which merit intensive study.
4) Suggesting means of keeping those components shown to
constitute a significant hazard from entering the environ-
ment in such a manner as to cause damage to human,
animal, or plant life.
9
Procedures were as follows: A series of tables was prepared by a
survey technique involving five major steps as well as the exercise of
value judgments of both qualitative and quantitative factors. These steps
were sequential in nature and included:
1) Classifying of wastes as to source (e.g., domestic,
industrial, etc.
2) Identifying of the individual components of each class
(e.g., wood, iron, plastics, etc.)
3) Listing of the chemical nature of each component (e.g.,
cellulose, lignin, etc.).
4) Listing the chemical nature of any breakdown products
to which each component might be converted in each of
the several disposal processes (i.e., incineration,
landfill, composting).
5) Assessing the environmental and public health signifi-
cance of the components and their breakdown products.
In making the evaluation necessary to Step 5), three criteria were
utilized as a basis for value judgments: (a) magnitude of the component
in the waste stream, (b) likelihood of a given component entering the
environment, and (c) the effects of any given component if released to
the environment.
In applying these criteria, it is recognized that magnitude is a
relative term in the context of environmental significance. Trace amounts
of one class of substance might have a profound effect on public health
were it released to the environment, whereas large amounts of other
types might be present before they constitute a threat to the public health.
An example of the former is cadmium. Ingestion of a milligram or two
per kilogram of body weight is sufficient to have dire effects on an indi-
vidual. On the other hand, an appreciable amount of iron is needed to
constitute a hazard. In either case, however, the significance of any
substance in any amount in solid wastes is dependent upon it being re-
leased to the environment under circumstances which might injure man,
either directly or through depletion of his crops or animal resources.
Inasmuch as both original substances and their breakdown products may
be involved and the long-term significance of dangerous materials se-
questered in the ground are speculative, a considerable degree of sub-
jective reasoning enters into an evaluation of the likelihood that any
material will enter the environment even if it is present in the waste
stream in significant amounts. Obviously, an insoluble material has a
far less chance of entering the environment than one that is highly soluble.
In assessing whether a particular waste product is to be considered
as "hazardous, 11 the following criterion is used: If a material adversely
10
affects human health, or has significant adverse effects on plant or
animal life if released to the environment at any stage in solid waste
management, then it is considered hazardous.
In some cases materials which occur in solid wastes have already
been demonstrated as toxic. Thus, elements such as cadmium, lead,
beryllium, and other metals, although normally present only in trace
amounts, should be thoroughly followed from their entrance into the
wastes stream until and including the time of their final disposal. The
same should be done of other materials which, in their pristine state
may be innocuous enough, but when subjected to certain treatment proc-
esses form toxic substances. Plastics containing chlorine are a case in
point. When incinerated, such plastics are converted to volatile chlorine
products highly toxic in nature.
Table II-1 lists various major industries by Standard Industrial
Classification, describes the waste generating processes for each indus-
try, and lists the hazardous wastes to be expected. The Appendix contains
more detailed materials on sources of hazardous wastes, hazardous con-
stituents of these wastes, means of treatment or disposal, and environ-
mental fate of hazardous wastes in relation to disposal means.
11
Table II-1 Sources and Tvpes of Hazardous Industrial Wastes
Standard Industrial Classification
Group Code
Group Classification
Waste Generating Processes
Expected Hazardous Wastes
19
Ordinance and Accessories
Manufacturing ond assembling
Metal filings, plastics,
chemical residues
24
Lumber and Wood Products
Sawmills, mill work plants,
Metal filings, plastics,
wooden container manufac-
glues, sealers, paints,
ture, and manufacturing of
solvents
miscellaneous wood products
25
Furniture, Wood
Manufacture of household
Those listed under Code 24
and office furniture, porti-
tions, office and store
fixtures, and mattresses
25
Fumiture, Metal
Manufacture of household
Metal filings, plastics,
and office furniture, lockers,
resins, adhesives
bedsprings, ond frames
26
Paper and Allied Products
Poper manufacture, conver-
Chemicals, paper coatings
sion of paper and paper-
and fillers, inks, glues
board, manufacture of
paperboard boxes and
containers
27
Printing and Publishing
Newspaper publishing,
Metal filings, chemicals,
printing, lithography,
inks
engraving and bookbinding
28
Chemicals and Related
Manufacture and preporation
Organic and inorganic
of inorganic chemicals
chemicals, metal filings,
(ranges from drugs and soups
plastics, oils, paints,
to paints and varnishes, and
solvents, pigments
explosives)
31
Leather and Leather Products
Leather tanning and finishing;
Dyes, oils, processing and
manufacture of leather
curing compounds
34
Fabricated Metal Products
Manufocture of metol cans,
Metal filings, slag, scale,
hand tools, general hard-
coatings, solvents, lubri-
ware, non-electric heating
cants, pickling liquors
apparatus, plumbing fixtures,
fabricated structural products,
wire, farm machinery and
equipment, coating and
engraving of metal
35
Machinery (except electrical)
Manufacture of equipment for
Slag, metol scrap and
construction, mining, eleva-
filings, plastics, resins,
tors, moving stairways, con-
paints, solvents, petroleum
veyors, industrial trucks,
trailers, stackers, machine
tools, etc.
37
Transportation Equipment
Manufocture of motor vehicles,
Metal scrap and filings,
truck and bus bodies, motor
fiber, plastics, paints,
vehicle parts and accessories,
solvents, petroleum products
aircraft and parts ond boat
building and repairing motor-
cycles and bicycles and
parts, etc.
39
Miscellaneous Manufacturing
Manufacture of jewelry,
Metal filings, plastics,
silverware, plated ware,
resins, adhesives, paints,
toys, amusement, sporting
and solvents
and athletic goods, costume
novelties, buttons, brooms,
brushes, signs, and adver-
tising displays
12
III.
CHEMICAL AND PETROLEUM
INDUSTRY WASTES
1. BACKGROUND
a. Total
The State Department of Public Health, in their Interim Report,
Status of Solid Waste Management in California (1968), estimated that
463, 000 tons of chemical and petroleum industry wastes (126, 800 and
336, 800 tons, respectively) were produced in California in 1967. The
major portion of these wastes (82.5 percent) were produced in Los
Angeles and Contra Costa Counties. An additional 15 counties produced
only between 200 and 13,600 tons (See Figure III-1 and Table III-1 and 2).
b. Chemical Wastes
Recent questionnaire surveys of chemical industry wastes, taken
during the past 3 years by three different groups, show a variation in
the waste generation factor of almost two-to-one, as shown in Table III-3.
In 1966-67, the Manufacturing Chemists Association (MCA) conducted a
survey of their membership which indicated that 120, 000 tons of solid
wastes were produced by their members in California during 1966* The
MCA represents only those companies that manufacture chemicals,
essentially SIC Code 281, Industrial Chemicals, and SIC Code 287, Agri-
cultural Chemicals. The MCA obtained information from 84 chemical
plants employing 12,594 persons in California. These data indicated an
approximate waste production rate of 9.5 tons per employee/year.
In 1967, with the cooperation and assistance of the Chemical Indus-
tries Council of Northern California, the State Department of Public Health
*Manufacturing Chemists Association, "Environmental Management in
the Chemical Manufacturing Industry - a 1967 Survey of the Members
of the Manufacturing Chemists Association."
13
DEL
NORTE
SISKIYOU
MODOC
ANNUAL TONNAGE PRODUCED BY COUNTY
GREATER THAN 150,000 TONS
HUMBOLDT
TRINITY
SHASTA
LASSEN
TEHAMA
1000 TO 15,000 TONS (a)
PLUMAS
MENDOCINO
GLENN
BUTTE
SIERRA
YUBA
LESS THAN 1000 TONS
COLUSA
NEVADA
LAKE
UTTER
PLACER
(a) NO COUNTY PRODUCES BETWEEN 15,000
AND 150,000 TONS
SONOMA
YOLO
EL DORADO
NAPA
SACRA-
AMADOR
ALPINE
MENTO
SOLANO
CALAVERAS
MARIN
CONTRA
SAN
TUOLUMNE
COSTA
JOAQUIN
MONO
ALAMEDA SAN MATEO
MARIPOSA
STANISLAUS
SANTA
CLARA
MERCED
SANTA CRUZ
8
MADERA
SAN
FRESNO
BENITO
INYO
TULARE
MONTEREY
KINGS
SAN LUIS
OBISPO
KERN
SAN BERNARDINO
SANTA BARBARA
VENTURA
LOS ANGELES
ORANGE
RIVERSIDE
SAN DIEGO
IMPERIAL
Figure III-1. Distribution of Chemical and Petroleum Industry
Wastes, 1967*
*California Department of Public Health.
14
Table III-1. Chemical and Petroleum Industry Wastes
in California 1967* (in tons)
Area
Los Angeles
Contra Costa
Restof
Total for
Type of Waste
County
County
State
California
a
a
126,800
d
Chemical
25,000
Petroleum
a
127,100ᶜ
a
336,800 d
Total
230,000 b
152,100 b
1,200 b
463,600d
Symbols:
a Not reported
b From Table III-7, page III-29 of State Report.
C 121,800 tons of waste from petroleum refining;
5300 tons, other.
d From Table III-6, page III-27 of State Report.
Table III-2. Chemical and Petroleum Waste Generation
Factors - California State Department of
Public Health 1968
SIC Code
Industry
Tons/Employee/Year
Series 28
Chemical
0.5
(minus 281, 285)
281
Industrial Inorganic
10.0
and Organic Chemicals
285
Paint Manufacturing
2.25
Series 29
Petroleum
10.0
(minus 2911)
2911
Petroleum Refining
23.5
*Source: Status of Solid Waste Management in California (1968)
15
Table III-3. Recent Surveys of Chemical Industry Wastes
in California
Manufacturing
California State
Governor's
*
Bureau of Solid
Chemists Association
Department of
Task Force on
Waste Management -
(MCA)
Public Health
Solid Waste
National Survey
Year
1966 - 7
1967 8
1969
1969 70
Number of
8
29
84
firms surveyed
(Northern
(Southern
*
(statewide)
in California
California only)
California only)
Total waste
found in
120,000
24,000
80,000
*
survey (in tons)
Total number
of employees
12,594
2,350
4,929
*
in survey
Waste generation
factor** tons/
9.5
10.1
16.1
*
employee/year
Total chemical
industry wastes
in California
120,000
126,800
200,000
*
(in tons), based
on each survey
*Data not yet available.
**This figure is included to show relative comparisons but is not particularly meaningful, since different segments
of the chemical industry develop widely differing quantities of waste. Thus, specific multipliers must be
developed, as appropriate, for various segments of the chemical industry.
16
conducted a questionnaire survey of chemical solid waste production and
disposal in the San Francisco Bay Area. An industrial waste survey
form developed by the Department was mailed by the Council to their
membership. The returned forms from eight firms in Contra Costa
County (representing more than 25 percent of the total statewide employ-
ment in SIC Code 281, Industrial Inorganic and Organic Chemicals) were
used in developing the waste factor of 10 tons per employee/year for SIC
Code 281. These eight firms employed approximately 2350 persons and
during 1967 produced approximately 24,000 tons of solid and semi-solid
wastes. These wastes consisted of slurries, sludges, dusts, containers
and other packaging materials, dunnage, and normal rubbish. Approxi-
mately 23 percent of the wastes were disposed of by onsite landfilling,
and 77 percent were either picked up by private refuse collectors or
industrial waste haulers.
The waste production factor of 2.25 tons per employee per year
was used by the State for paint manufacturing firms (SIC Code 285) and
the factor of 0.5 ton per employee for the remaining employment in
SIC Code 28. It was considered reasonable that these plants would not
have as large a waste factor as the large basic chemical processing
plants; however, as the Department has pointed out, these two factors
need further evaluation. An estimate of total statewide production of
126, 800 tons of chemical wastes for 1967 was determined by applying
the above factors to statewide employment data. Approximately
100, tons were produced by the plants engaged in manufacturing
industrial chemicals (SIC 281) and the remaining 26, 800 tons were pro-
duced by the other plants listed under the classification, Chemical and
Allied Products (SIC 28).
The Governor's Task Force on Solid Waste Management, in
cooperation with the Chemical Industrial Council (CIC) of Southern
California, recently conducted a survey similar to that just mentioned.
In order to derive results compatible with those obtained by the Depart-
ment, the Hazardous Wastes Working Group used survey forms and
related instructions identical to those used by the State. In this case,
however, completed questionnaires were returned to an official of the
CIC who assisted the Working Group in data reduction and analysis.
Of 40 firms approached 29 completed their questionnaires. These firms
represent 4929 employees and generate approximately 80,000 tons of
solid and semi-solid wastes per year for an approximate waste produc-
tion rate of 16.1 tons per employee/year.
The Federal Government, specifically the Bureau of Solid Waste
Management, has undertaken nationwide study of chemical industry solid
wastes. * However, the Task Force has been informed that, although a
*National Industrial Solid Waste Management Study - the Chemical
Industry; Contract No. CPE 69-5; Awarded to Traveler's Research,
Inc., Hartford, Connecticut; June 1969 to 1970, PHS Publication
No. 1897, Supplement, p.12.
17
questionnaire survey will be mailed to chemical firms in California,
there are no plans to conduct detailed field surveys of these firms in
the State. Representatives of the State should monitor the California
phase of this effort to ascertain that all data acquired and techniques
developed will be made available to the pertinent State agency. This
questionnaire survey may serve as a benchmark for the more compre-
hensive State agency on-site surveys recommended below.
C. Petroleum Wastes
A survey of the four major petroleum refineries in Contra Costa
County was conducted jointly by the Western Oil and Gas Association
(WOGA) and the California Department of Public Health. A survey
form was completed by each firm, and the data tabulated by WOGA. The
115, 655 tons produced by these refineries represented 95 percent of the
petroleum refining wastes produced in Contra Costa County and 37 per-
cent of that produced in the State. Based on these data, a waste produc-
tion factor (23.5 tons per employee per year) was developed for SIC
Code 2911 (Petroleum Refining). Inasmuch as industries that are related
to petroleum refining are similar to the chemical industry, a similar
factor of 10 tons per employee per year was applied to these employment
data. These factors were used in determining the statewide total of
336, 800 tons of wastes produced from petroleum refining and related
industries.
The data on solid waste production, characteristics, and method
of disposal for the four major refineries in Contra Costa County are
shown in Table III-4. As shown, 46 percent of the waste is disposed of
in a landfill on-site and 54 percent is disposed of via private industrial
waste haulers and offsite landfills.
To date, the California Department of Public Health has not
obtained equivalent data for Southern California. The Hazardous Wastes
Working Group of the Governor's Task Force has established lines of
communication with WOGA in Los Angeles, and is in the process of con-
ducting a joint survey. These findings will be presented in a supple-
mentary memo.
2. PROBLEMS
Because of their toxic nature special public health problems are
associated with the handling and disposal of many chemical and petroleum
wastes. A report to the U.S. Public Health Service* presents a dis-
cussion of disease associated with chemical wastes. It is reported that
hazardous chemical wastes can adversely affect the public health in a
number of ways depending on the method of disposal, the nature of the
end product, its concentration, and the effective dose in the population.
*T.G. Hanks, "Solid Waste/Disease Relationships, IT PHS No. 999-UIH-6,
1967.
18
Table III-4 Petroleum Refining Solid Waste Production and Disposal
Contra Costa County - 1967*
Place of Disposal
Characteristics
Type of Waste
Tonnage Produced
(Percentage)
Organic
Inorganic
Toxic
Onsite
Offsite
Solids
Cat. cracking
catalyst
8,530
X
23
77
Other catalysts,
clay, ond
desiccant
8,260
X
85
15
Coke and carbon
fires
80
X
100
0
Miscellaneous solids
such as fly ash
2,500
X
12
88
Rubbish from
4
plant cleanup
6,700
X
X
8
92
Semi-solids
Sludges --
tank cleaning,
water treatment,
etc.
54,300
X
X
13
87
Silt
35,000
X
100
0
TEL waste
270
X
X
100
0
Acid tars
15
X
X
0
100
Total
115,655
46%
54%
*Data provided by Western Oil and Gas Association
19
Human beings can be subjected to the toxic action of chemical wastes by
direct contact, inhalation of dust, drinking or contact with contaminated
water, eating contaminated foods, and contact with or breathing the
fumes from open burning or incineration.
An example of the type of problem which can occur is one that was
investigated during 1966 by the California Department of Public Health.
In this case the reclamation, transportation, and disposal of chemical
sludge containing tetraethyl lead caused illness to workers. In another
incident, large quantities of chemical wastes were being disposed at a
public disposal site, and although the tractor operator was required to
mix the chemical wastes with other refuse, neither the site operator nor
the industrial waste hauler knew much about the wastes other than its
source was a large chemical company. A third example is the open
dumping of toxic chemical wastes at a disposal site adjacent to San
Francisco Bay.
It is mandatory to determine, accurately, the quantities and
characteristics of chemical and petroleum industry wastes generated
in California. The results from the MCA and Department surveys were
in very good agreement. Both, however, resulted in substantially lower
waste generation factors than that obtained by the Working Group.
Whether the previous two surveys reflected information supplied by the
haulers for these firms is unknown. It is also unknown whether the
results of the questionnaires were verified by on-site inspections. Some
individual comparisons with waste haulers were made by the Working
Group. These were in good agreement with the Working Group's survey
results: that the estimates of the quantities of these wastes reported, as
carried by the waste haulers, exceeded by a factor of almost two, the
quantities of these same wastes reported as generated by the application
of the Department's standard generation factors.
In general, the use of questionnaires, as the sole basis for data
gathering, can lead to underestimating. Detailed field surveys are
required, throughout the State, by the Department of Public Health
representatives in order to obtain an accurate estimate of chemicals
and petroleum industry wastes. Both industries have shown a great
willingness to cooperate with the Working Group. They recognize that
the economic collection and disposal of their solid and semi-solid
wastes will be a requirement for their continued growth. But, they
also realize that stringent air, water and soil pollution standards on
their wastes will probably have an inhibiting influence on their continued
growth. For these reasons, major portions of the chemical industry,
in Southern California at least, are considering relocation to sparsely
populated areas, and an exodus has begun to San Bernardino and River-
side Counties.
Probably many additional sources of contamination should receive
attention. For example, the U.S. Department of the Interior reports
that used and uncollected motor oil presents a serious domestic problem.
According to the Department, some 350 million gallons of used motor
20
oil must be disposed of annually by more than 210, 000 gasoline filling
stations in this country. Since changes in labeling requirements and in
the tax laws have put more than half the re-refiners of used motor oil
out of business, the petroleum industry has no means for collecting the
used oil, and the oil often finds its way into city sewers, simply because
it is the easiest way to dispose of the material. In 1968 at hearings on
some 20 bills dealing with the various pollution threats to this nation,
Rep. George H. Fallon (D. - Md.) also pointed out this aspect of the oil
pollution threat and the need for the control of used and uncollected
motor oil.
3. RECOMMENDATIONS
It is recommended that:
a. A uniform system for the classification or coding of waste
chemicals as to type and degree of hazard should be
developed.
b. A detailed field survey of the major chemical and petroleum
waste generators and a questionnaire survey of the smaller
chemical and petroleum waste generators should be under-
taken to develop information on generation of hazardous
wastes by location of point of generation, amount of waste
generated by type and degree of hazard, company ownership,
specific identification of the official responsible for disposal,
and the current means and points of disposal or discharge.
The questionnaire survey should be validated by on-site veri-
fication of an appropriate sample and a further check with the
haulers involved.
C. Special standards of design and/or operation for collection,
storage, transport and/or disposal sites receiving hazardous
wastes should be developed along with methods of audit and
control to assure compliance with the standards.
21
on
IV.
DRUGS, HYPODERMIC NEEDLES,
MEDICAL SUPPLIES, etc.
1. BACKGROUND: THE DRUG MANUFACTURING INDUSTRY
The drug industry has been growing steadily for many years, but
its growth was greatly accelerated during the Second World War by the
enormous demands of the Armed Forces for life saving products manu-
factured by the drug industry. Acceleration of this industry continued
during the following years. Each day many new products are being
discovered and manufactured. The complexity of the problem is
increased by the wide variation of products such as dry powdered
extracts, liquid galenicals, volatile oils, dried herbs, etc. Because of
the unknown nature of the wastes from the production of these products
and their potential for water and air pollution, the Working Group deems
it important to gather quantitative and qualitative information on all
aspects of this industry's solid wastes.
The Federal Government, through the Bureau of Solid Waste
Management, has issued a contract "to study and evaluate the solid waste
management practices of the drug industry, SIC 283, 11* This SIC code
includes establishments primarily engaged in manufacturing, fabricating
or processing of biological or medicinal chemicals and pharmaceutical
products, and also establishments primarily engaged in the grading,
grinding, and milling of botanicals. The Task Force has been informed
that, although a questionnaire survey will be mailed to drug firms in
California, there are no plans to conduct detailed field surveys of these
firms in the State. Representatives of the State should monitor the Cali-
fornia phase of this effort to ascertain that all data acquired and tech-
niques developed will be made available to the pertinent State agency.
This questionnaire survey may serve as a benchmark for the more
comprehensive State agency on-site surveys recommended below.
National Industrial Solid Waste Management Study - The Drug Industry;
Contract No. CPE 69-7; Awarded to Litton Systems, Inc., Minneapolis,
Minnesota; May 1969 to July 1970, PHS Publication No. 1897,
Supplement, p.7.
23
2. BACKGROUND: THE LOCAL PROBLEM
In September 1963, the California Congress of Parents and
Teachers voiced concern with the problem of discarded syringes and
other contaminated medical supplies coming into the hands of children
and youths due to the inadequate disposal practices of hospitals, clinics
and physicians offices. In June 1968, the Community Health Services
Chairman of the Congress of Parents and Teachers reported that the
Congress still found it appropriate to be concerned with this problem
due to their continued receipt of numerous complaints of such incidences.
On September 12, 1966, the City Council of Hawthorne, California
unanimously adopted Ordinance 869 which regulated the disposal of
unused, used, or partially used containers, bottles, hypodermic syringes,
hypodermic needles, drugs, medicines, medical supplies and other simi-
lar items including bandages and dressings. According to local reports,
this ordinance resulted from frequent reported instances of children
playing with such wastes and of adults scavenging for both medical use
and drug abuse purposes.
From 1966 to 1969 several articles appeared in the press through-
out the State of California reporting similar incidences. Also, agencies
such as the State Department of Vocational Standards, the Los Angeles
Police Department, and the Sheriff's Office of Fresno, California,
reported such incidents on the basis of their own direct investigations,
as well as on the basis of parent's complaints to these agencies.
In April 1968, the Los Angeles Supervisors ordered this problem
reviewed by the Los Angeles County Health Department and the Chief
Administrative Officer in cooperation with the Los Angeles Medical
Association. As a result of this review, the Los Angeles County Board
of Supervisors, on May 21, 1968, adopted an order supporting State
legislation on the disposal of drugs, hypodermic needles, etc.
During early 1968, a legislative request was made for answers
to the following questions:
Is there demonstrable need for providing State regulations
regarding disposal of medical items? What problems have
developed -- i.e., children having access to dangerous
drugs, etc?
Could regulation of receptacles be handled better and more
easily through county health ordinances? Do some county
health departments presently regulate the disposal of
medical items?
In partial response to these questions, a brief survey was
conducted with the Chiefs or the Narcotics Detail Heads of 34 police
24
departments in the State of California. The following answers were
obtained to the question of whether this problem existed in their
jurisdiction:
Yes
18
Yes, but limited
3
No
12
Problem given to Sheriff's Office
1
Of the 18 "yes" answers, eight cities described this problem as "major"
or "important. 11
During the 1968 regular session of the legislature, Assembly
Bill No. 1643 was introduced to require the State Department of Public
Health to adopt regulations and standards with respect to the collection
of, transportation for disposal, and disposal of discarded drugs, drug
containers, syringes and other contaminated medical supplies as used
by physicians, hospitals, clinics, etc. The bill stated that: (a) these
regulations shall not apply to the disposal of drugs, containers, or
devices acquired by retail consumers for their own use; and (b) these
regulations shall have no force or effect until the board of supervisors
of a county, by resolution, determines that such regulations are neces-
sary for the public health and safety of the people of such county. The
county may provide other resolutions to regulate the licensing of fran-
chise holders to engage in the business of collecting such drugs, con-
tainers, and devices; to inspect all facilities for the collection and
disposal of such items; and to regulate, the location, maintenance,
operation, and security of disposal sites.
The State Department of Public Health, in commenting on this bill,
advised that this bill would require staff augmentation at a cost of
between $15, 000 to $20,000 for the 1968-69 fiscal year for a study of
the magnitude of the problem and for the adoption of regulations, and
that there would be no increased State cost thereafter.
The bill received unanimous "do pass¹¹ recommendations by both
the Public Health, and Ways and Means Committees of the Assembly but
did not pass the Appropriation Committee. In commenting, the legis-
lative analyst stated:
"Currently the department has 35 technical positions
involved in food and drug activities, including the
drafting of regulations. We have been unable to
determine the basis upon which the need for
additional money to carry out the requirements of
this bill is predicated."
25
In order to determine whether the problem, as reported, is
sufficiently severe so as to require legislation, the Hazardous Wastes
Working Group held extended discussions with some of their professional
colleagues. These conversations indicated that there is a basic under-
lying concern with the entire problem of drug disposal on the part of the
medical profession and a willingness on the part of the profession to
assist in developing and applying solutions. Hence, the members of the
Hazardous Wastes Working Group will be glad to assist in conducting
a detailed survey of the current practices and concerns of the medical
and related professions in regard to drug, medical supply and associated
disposal problems.
3. RECOMMENDATIONS
It is recommended that:
a. The designated State agency should conduct a survey to
develop basic information on solid waste management
practices within the drug industry in California to:
(1) determine the number, location and size of drug industry
production and processing centers in California; (2) deter-
mine and evaluate the present practices, the needs, and the
problem areas of industrial solid waste management within
the industry; and (3) provide data by type on the quantities
of solid waste generated by the various drug manufacturing
firms, and information on the solid waste generation points
within the production processes, other sources of solid
wastes from the plants, storage practices, collection, dis-
posal or treatment methods, and point of discharge or disposal.
b. The designated State agency or another appropriate agency
should conduct a survey to determine the nature and extent
of the problems associated with the disposal of unused, used,
or partially used containers, bottles, hypodermic syringes,
hypodermic needles, drugs, medicines, medical supplies
and other similar items, including bandages and dressings,
in the State of California.
C. Should this problem be reported as "major" or "important"
by any significant number of jurisdictions in the State,
enabling-legislation should be passed by the State Legislature
which will require the designated State agency to establish
standards and regulations in respect to the collection of,
transportation for disposal, and disposal of discarded drugs,
drug containers, syringes, and other contaminated or single-
use medical supplies as used by physicians, hospitals, clinics,
and similar health care facilities.
26
V.
RADIOACTIVE WASTES
1. BACKGROUND
Radioactive materials comprise all the isotopes, the nuclei of
which undergo spontaneous disintegration. It is well known that extensive
care and precautions must be observed in the use of such materials. The
same care and precautions must also be exercised in on-site storage,
handling, transportation, and final disposal of radioactive materials when
they become waste. Even after it is buried or sunk, radioactive waste
remains "alive;" in some cases this condition exists for thousands of
years.
Regulations for the handling, transportation and disposal of radio-
active wastes are specific and strict. They require, in general, that all
the radioactive waste materials must be handled, transported and dis-
posed of in such a manner, and in such a location, as will result in no
significant radioactive contamination of the environment.
As little as 10 years ago, this category of waste would have had
little impact on the State of California. However, with the exponential
rise in the use of radioactive materials by power generation facilities,
research laboratories, hospitals, industry, etc., a critical review of
this category is necessary. For example, there are two power reactors
currently operating in the State of California: Humboldt Bay [70 mega-
watt] and San Onofry [450 megawatt]. Two more power reactors are
under construction: Sacramento Municipal Utility District [850 mega-
watt] and Diablo Canyon [1060 megawatt]. Six sites have been acquired
to cover expansion for the next 20 years.
There is only one hauler operating in the State of California capa-
ble of handling high and intermediate level radioactive wastes. This
hauler, Nuclear Engineering Company, Inc. of Walnut Creek, California,
also handles low level radioactive and other exotic wastes. Hutchinson
and Sons of San Pedro, California, handles Southern California low level
wastes only.
27
2. PROBLEMS
Many of the users of radioactive materials are known to the
Department of Public Health, State of California. However, some of
those users who had obtained radioactive materials prior to the enact-
ment of legislation have not registered with the Department. * There
may be still other users who obtained their radioactive materials in an
illegal manner. The State Department of Public Health enforcement
agency, or participating local Health Departments, audit the users of
radioactive materials every 6 months, once a year, or every 2 years
depending on the damage potential of the user. This is not of sufficient
frequency to accurately assess the quantity, radioactive strength, etc,
of the generated wastes.
The disposal of radioactive waste in California is handled under
the options listed in Table V-1.
Table V-1. Options for Radioactive Wastes in California
Applicable
Paragraph
Origin
Transportation
Disposal
of Regulations
Sewer system
Ocean
30287
Stack, pipe, or
Air or water
30269
similar conduit
Generation
None
Burial in soil
30288
From
any
Truck
Burial in
Group 4
Source
AEC-approved
landfill at
Beatty,
Nevada, or at
Richland,
Washington
*See Groups 1 and 2 of the California Radiation Control Regulations,
Title 17, Chapter 5, Subchapter 4 "Public Health" of the California
Administrative Code, 1968.
28
The ultimate disposal of high, intermediate and some low level
radioactive waste is currently accomplished at either Beatty, Nevada,
or Richland, Washington, both of which are operated by Nuclear Engi-
neering Company, Inc. The low level wastes that are not transported
out of the State are disposed of by burial, injection to air or water, or
dumped into a sewer system. There have been abuses of the sewer
system method observed by radiation-detector devices located in sewage
treatment plants. However, the violators have not been apprehended
because of the difficulty of identifying the source, It is probable that
abuses of other disposal methods have also occurred without detection.
There exists neither a comprehensive listing of all the users of
radioactive material and their quantitative and radioactive levels gen-
erated in the State of California, nor a comprehensive monitoring, sur-
veillance and enforcement system for the management of storage col-
lection, haul, and disposal. As an example, data maintained by the
site operator accumulates 73 percent of waste received at the Nevada
burial, facility under the single general heading of "Licensee. 11
3. RECOMMENDATIONS
It is recommended that:
a.
The designated State agency should conduct a survey to
determine current practices including: (1) generators of
radioactive wastes; (2) the quantity and radioactive level
of wastes produced; (3) the frequency and costs of collection;
(4) equipment used; and (5) points of discharge or disposal.
b. The designated State agency should conduct a field study and
investigation to assure that all radioactive wastes that are
generated within the State enter the formal collection and
disposal system.
C. The designated State agency should conduct a formal
re-examination of their current standards and practices as
well as monitoring and enforcement techniques to assure that
they are adequate in meeting the current and future needs of
California.
29
e
&
VI.
SEWAGE TREATMENT SLUDGE
1. BACKGROUND
In most sewage treatment processes, the liquid and solid portions
of the sewage are separated, and the associated gases captured. The
liquid, forming the effluent from the treatment plant is usually disposed
of by dilution or, very infrequently, on land. The solids which form
sludge or scum, are usually disposed on land and less frequently by
dilution. The captured gases, unlike the liquid and solid portions of
sewage, provide a useful by-product which is ordinarily partially
recycled, with the remainder sold for power generation purposes.
The disposal of sewage solids, not the water in sewage, is the
most difficult problem faced by waste water treatment plants today.
Whereas, the technology for treating the liquid portion of waste water
has progressed to the point where direct human reuse is entirely
feasible, no such methods have evolved for the ever increasing volume
of the solid portions of liquid-borne wastes. * Many of the major prob-
lems of waste water treatment such as odors, dust, and health hazards
are associated with sludge disposal. Sludge disposal creates the most
difficult portion of the disposal problem because the polluting potentia-
lities, per unit of weight, are greater than those of the liquid effluent
from the treatment process that produced the sludge.
Three ultimate areas of sludge disposal exist: the atmosphere,
the land, and the ocean.
Cost of sludge disposal is usually a sizable portion of the total
cost of waste water treatment. Sludge disposal costs alone range from
*Testimony before the Los Angeles County Grand Jury. Appendix "D",
Sale of Sewage Solids, 1967.
31
2 to 3 dollars per ton of dry solids, upwards to several hundred dollars
per ton, depending upon the disposal method and the size of the opera-
tion, the type and properties of the sewage, and the quality of the pro-
cessed effluent and sludge. The benefits and costs associated with the
Los Angeles City approach, implemented at the Hyperion treatment plant,
however, are not yet fully understood. Of course, the physical proper-
ties of the effluent and sludges are known and the costs of approximately
$3.50/ton can be audited; the real problem in evaluation comes with the
attempt to quantify the effect of interaction with the environment.
2. PROBLEMS
The problems of waste disposal to the marine environment in
California are intensified by the year-round recreational and other
beneficial uses of the saline receiving waters. While in colder climates,
many beneficial uses are limited by short seasons or restricted by
rugged topography, in California the waters are utilized extensively
throughout the year.
The specific problems in California which are associated with
sewage treatment sludges arise from a broad spectrum of sources. At
one end of the spectrum, pollution control of sewage treatment sludge
is "too good. 11 The damming of almost all the streams and rivers lead-
ing to the coast, the paving and sweeping of the streets, coupled with the
disposal of sludges either on land or in the ocean (e.g., Santa Monica
Bay where sludge is inserted at the edge of an underwater cavern) at a
depth where it will not be transported to the shallow coastal waters
deprive these waters of their natural nutrients. This lack of nutrients
has significantly modified the coastal ecology. Little is known about the
extent of these changes, but it is postulated that the lack of nutriments
possibly could be overcome by depositing the sludge from the Hyperion
above the "thermal incline" which would enable the sludge to reach the
shallow coastal waters. This problem requires additional research
before it, and any possible solutions, can be assessed knowledgeably.
At the other end of the spectrum of sludge pollution problems, the
San Francisco Bay - Delta Area Study* indicated that observations, at
several of the more objectionable fills located on land adjacent to bodies
of water, showed that water draining from these sites had high popula-
tions of fecal coliform and fecal streptococci.
More than 125 California communities dispose of their sewage
effluent, after varying degrees of treatment, through submarine outfalls.
The location of major outfalls is shown on Figure VI-1. With the spread
of suburban areas, the development of metropolitan districts, and the
extension of trunk sewers farther inland, the magnitude of marine waste
disposal in California is expected to increase markedly in the next few
decades.
""Solid Wastes and Water Quality, 11 California Department of Public
Health, 1968.
32
CRESCENT CITY
ARCATA
EUREKA
SAN FRANCISCO
NO. SAN MATEO CO. S.D.
BEAST BAY M.U.D.
SHARP PARK
HALF MOON BAY
SANTA CRUZ
CAPITOLA CO. S.D.
PACIFIC GROVE
WATSONVILLE
SEASIDE S.D.
MONTEREY
MORRO BAY - CAYUCOS S.D.
PISMO BEACH
SANTA BARBARA BILTMORE
CARPINTERIA S.D.
SANTA BARBARA
PORT HUENEME S.D.
LOS ANGELES CITY
LOS ANGELES CO. S.D.
VENTURA
SUNSET BEACH
OXNARD
SAN CLEMETE
ORANGE COUNTY S.D.
OCEANSIDE
AVALON
CARLSBAD
LAGUNA BEACH
SAN DEIGO
SO. LAGUNA S.D:
DOHENY BEACH ST. PK
JOINT INTERNATIONAL
CHULA VISTA
CORONADO
Figure VI-1. Major Submarine Outfalls in California*
* Ocean Engineering, III, compiled and edited by Richard D. Terry,
North American Aviation, Inc., El Segundo, California, 1966.
33
3. RECOMMENDATIONS
It is recommended that:
a.
The designated State agency should study the problem of the
changes in the coastal ecology of Santa Monica Bay to assure
that the changes induced by the reduction in nutriments
reaching the coastal waters do not cause great damage to the
ecological balance. Consideration should be given to the solu-
tion to the problem of insufficient nutriments in Santa Monica
Bay by (1) the treatment and insertion of sewer sludge from
the Hyperion Plant into the shallow coastal waters and/or
(2) other methods.
b. The designated State agency should study the problem of
contamination in the San Francisco Bay Area to determine the
relationship of the disposal of sewage sludge in landfills and
by other means in that area and reported contamination condi-
tions in the Bay Area. The agency should establish standards
and regulations with respect to the collection of transportation
for, and disposal of sewage sludges, should study indicate that
harmful effects are being generated by present sewage sludge
disposal practices.
C. The designated State agency should study the ecology of all the
shallow coastal waters off the populated areas of California to
obtain an understanding of ecological changes brought about
by the various degrees and methods of treatment and disposal
of sewage sludge and resulting problems.
34
VII.
FEDERAL AND MILITARY
1. BACKGROUND
Federal activities in California are important sources of
environmental pollution. For example, it is estimated that 250 million
gallons of shipboard and sanitary sewage are discharged into the San
Francisco Bay - Delta Area each year from vessels using the 12 deep
water ports, numerous port and docking facilities, and 250 small craft
harbors. It has also been estimated that the 60 assigned military
vessels operating in the Bay-Delta waters contribute approximately
90 percent of the annual wastes discharged from all vessels. Senator
Murphy has requested that the Secretary of the Navy take steps to
remedy the increasing level of pollution the San Francisco Bay-Delta
Area. The Senator has also stated that as a member of the Senate
Armed Services Committee, he stands ready to urge the Committee
and the Congress to help the Department of the Navy in its efforts to
stop the pollution.
2. PROBLEMS
The generation, handling, and disposal of special chemicals, toxic
gases, explosives and other hazardous wastes by Federal activities is
of continuing concern. The Working Group made inquiry to the Secre-
tary of the Army concerning shipment and disposal of chemical agents.
General James Hebbler, in responding, reported that there have been
no Department of the Army stocks of toxic chemical agents and/or
munitions disposed of within the State of California or within the waters
off the California Coast during the past 3 years. There have been small
laboratory samples shipped to selected military installations during the
past 3 years. However, shipments of commercially-procured poisonous
material for installation use, such as chlorine for water purification,
insecticides and pesticides, are continuing to be made.
35
Field visits by members and staff aides of the Working Group to
several Army installations indicate that large quantities of vehicle
lubricants and oils, solvents, paints, and other similar hazardous waste
materials are generated. These do not appear to be subject to special
handling or control. To date we have been unable to gather sufficient
definitive information to access the situation, nor can we develop an
adequate estimate of its impact on the environment.
3. RECOMMENDATIONS
It is recommended that:
a. The designated State agency, in cooperation with members
of California's Congressional representation, should conduct
a detailed survey of the Federal installations and activities
in California to determine the quantities and charcteristics
of the wastes that are generated and the provisions that are
made for the collection, storage, and disposal of these
wastes.
b. For each classification or category of wastes where in the
opinion of the designated State agency special procedures
appear to be required for storage, collection, transport,
or disposal, the agency should prepare recommended stan-
dards, regulations, operating procedures, or control pro-
cedures for issue in the public press and for possible
incorporation in Federal legislation,
C. The State of California should request the support of
California's Congressional representation in preparing legis-
lation which will: (1) require the Federal Government to
clean up areas of Federally caused pollution or will authorize
the State to do so and permit the State to recover the costs
from the Federal Government, and (2) establish appropriate
regulations and standards for Federal installations and
activities which assure that the Federal Government
ceases to cause pollution.
36
APPENDIX
SOME HAZARDOUS SOLID WASTE SOURCES
AND CONSTITUENTS
MUNICIPAL REFUSE*
Means of Treatment
Source
Waste
Composition
or Disposal
Households, hotels,
Special wastes
Hazardous solids and liquids,
Incineration, landfill,
hospitals, institutions,
explosives, pathologic wastes,
burial, salvage
stores, industry
radiaactive wastes
Sewage treatment
Sewage treatment
Solids from coarse screening
Incineration, land-
plants, lagoons,
residue
and grit chambers, sludge
fill, camposting,
septic tanks
fertilizing
INDUSTRIAL WASTES
Means of Treatment
Source
Waste
Characteristics
Composition
or Dispasal
Textile mill
Textiles, i.e.,
Highly alkaline,
H2SO,, NaOH, oni-
Neutralization, pre-
products
cotton, wool, and
colored, high BOD
line chlorine
cipitation, trickling
silk
and temperature,
Starch," malt, tin and
filtration, aeration,
high suspended
iron salts, dyes
recovery
solids
bleach, fibers,
minerals
Cooking
Same as textile
Far camplete list
fibers, desizing
mill products
of chemicals used
of fobrics
in textile industry,
see reference
Rayon, other
Acidic, alkaline,
Sulfides and poly-
Reclamation, neu-
man-made mote-
inorganic
sulfides, colloidal
tralization trickling
rials, i.e., Acri-
sulfur, NaOH,
filtration, logoon-
lon, Dynel, Orlan,
H2SO4, ZnSO₄,
ing
Nylon, etc.
HCI, NaHSO₄,
H₂S, CaSO₄;
acrylonitrile, phe-
nol, HNO3i ammo-
nia, adiponitrile,
hexomethylene-
diamine, sodium
carbonate, alcohols,
ketones
Explosives
TNT, colored, acid
H₂SO₄, HNO3,
Dilution, neutral-
Washing TNT and
adorous, and can-
NO2SO3, picric
ization, lagooning,
guncotton for
tains organic acids
acid, TNT
flotation, precipi-
purification,
and alcohol from
isomers, capper,
tation, aeration,
washing and
powder ond cotton,
zinc, nitrogen,
chlorination
pickling of
metals, acid, oils
toluene
cartridges
and soops
Phosphote and
Washing, screen-
Clays, slimes,
Phasphorus,
Settling,
phosphorus
ing, floting
tallows, law
silico
clarification
rack, condenser
pH, high sus-
fluoride
(mechanical),
bleed-off
pended solids
lagoaning
Fertilizers
Nitrogen, phos-
phorus, potassium,
sulfuric acid,
traces of other
chemicals
**Adapted from:
1. Thrift G. Hanks, M. D., Solid Waste/Disease Relatianships, Aerajet General Carporation, 1967.
2. Sanitary Engineering Research Laboratory, College of Engineering and School of Public Health, University of
Californio Berkeley, Comprehensive Studies of Solid Wastes Management Second Annual Report, 1969.
37
INDUSTRIAL WASTES (Continued)
Means of Treatment
Source
Waste
Characteristics
Composition
or Disposal
Coke by-products
Slag from ovens,
Suspended solids,
Ammonia, benzene,
Discharged to
ammonia still
volatile suspended
H₂SO₄, phenol
sewers, dumped,
woste, spent acids
solids, organic and
incineration
and phenols
NH3-N, phenol,
cyanide, acids,
alkalis
Industrial, not
Inorganic indus-
Metals and com-
Na, K, Ca, chlo-
otherwise iden-
trial waste or
pounds thereof
rides, sulfates,
tified
stabilization
bicarbonates,
nitrates, phos-
phates, fluarides,
borates,
chromates, etc.
Metallic fumes
Pb, Va, As, Be
and dusts
and compounds
thereof
Industrial
Mineral fines
Chromates,
Underground
wastes
heavy metals
aquifers
Treating
See "Distillation"
See "Distillation";
Reclamation,
also lead, copper,
settling, filtration,
calcium
evaporation,
neutralization
Recovery
See "Distillation";
See "Distillation";
See "Treating"
also organic esters
also iron
Leather and
Tanneries
Organic and inor-
Chromium, sulfuric
Sedimentation,
leather products
ganic, high BOD-
acid, nitrogen,
lagooning
lime sludge, hair,
CaCO₃, D₂O₅,
fleshing, tan liquor,
K₂O, Fe
bleach liquar,
salt, blood, dirt,
chrome
Energy
Fly-osh
Hollow spheres of
Silicates,
Sold for use in
producing
fused or partially
iron oxide,
concrete,
industry
fused silicate glass
silica
landfills, etc.
or as small solid
Pulverized coal-
spheres of fused
fired plants; stoker-
silicates, iron
fired, cyclone-
oxides or silica,
fired plants; and
unburned carbon
wet-bottom
and mineral
pulverized coal-
fired plants
Electrical
Ash
Dust
Silicates and
industry
aluminates of
Fe, Cu, Mg with
small percentages
of Na, K
Metal finishing
Pickling and
Toxic, waste
Cu and Cu
Sewage
industry
washing
waters
alloys
liquors
Acid wastes
Harmful to
Cu, Ni, Zn, Cr,
Sewage
aquatic life,
Fe
salts of metals
38
INDUSTRIAL WASTES (Continued)
Means of Treatment
Source
Waste
Characteristics
Composition
or Disposal
Rubber and
Rubber
High BOD, odor,
Sulfuric acid, tri-
Aeration, chlorina-
miscellaneous
high suspended
chlorethylene,
tion, sulfonation,
plastic products
solids, variable pH,
xylene, amyl
biological
high chlorides
alcohol, aniline
treatment
benzene, chromium
formaldehyde
Aircraft
Cd and Cr+
Traces of
Cd and Cr+
Leaching pits
manufacturing
metals
industry
Waste
Well-digested
Blackish, amor-
Mg, Ca, Zn,
Anaerobic decom-
treatment
sludge
phous, nonplastic
Cr, Sn, Mn, Fe,
position of organic
plants
material
Cu, Pb
waste solids
Petroleum
Spent
Liquid wastes with
Clays, H₂SO₄,
Streams
industry
chemical
oil, acid and alka-
H3PO4
line solutions,
inorganic salts,
organic acids and
phenols, etc.
Drilling
Oil, brine,
Sodium, calcium,
Separation,
chemicals
magnesium,
evaporation,
chlorine, SO₄,
lagooning
bromine
Storage
Muds, salt, oils,
Separation,
natural gas
evaporation,
lagooning
Distillation
Acid sludges,
Insoluble organic
Na₂CO₃, (NH₄)₂S,
Settling, filtrotion,
miscellaneous
and inorganic salts,
Na25, sulfates, acid
reclamation,
oils
sulfur compounds,
sulfates, H₂S,
evaporation
sulfonic and nap-
NaOH, NH4OH,
thenic acids, insol-
Ca(OH)₂,
uble mercaptides,
(NH₄)₂50₄,
oil-water emulsions,
NH4CT, phenols
soaps, waxy emul-
sions, oxides of metal,
phenolic compounds
Laboratory
Metallic ions,
Landfill or dump
wastes
phenolics, cyanides,
oils, synthetic
fibers, pharmaceu-
ticals, rubber
chemicals
Industrial wastes
Toxic metals
Pb, Be
Insecticides
Washing and
High organic matter,
Carbon, hydrogen,
See Chemical
purification of
toxic, acidic Chlor-
chlorine, carbon
plants (general)
products
inated hydrocarbons:
disulfide, carbon
toxaphene, benzene,
tetrachloride
hexachloride, DDT,
aldrin, endrin,
dieldrin, lindane
chlordane, meth-
oxychlor, heptachlor
Organic phosphorus compounds: parathion, Malathion, phosdrin,
Phosphorus, oxygen, carbon, hydrogen,
tetraethyl, pyrophosphate
carbon disulfide, carbon tetrachloride
Other organic compounds
Carbonates, dinitrophenols, organic sulfur
compounds, organic mercurials, rotenone,
pyrethrum, nicotine, strychnine
Inorganic substances
Copper sulfate, arsenate of lead, compounds
of chlorine and fluorine, zinc phosphide,
thallium sulfate, sodium fluoracetate
39