PUBLIC HEALTH ASSESSMENT
BANGOR NAVAL SUBMARINE BASE
AND
BANGOR ORDNANCE DISPOSAL (USNAVY)
SILVERDALE, KITSAP COUNTY, WASHINGTON
Naval Submarine Base, Bangor (Bangor) is located on the Kitsap Peninsula along the east shore of Hood Canal in Kitsap County, Washington. Initial environmental investigations at the base began in 1978. By 1987, 22 hazardous waste sites had been identified that required further action. Site A (OU-1) was listed on the National Priorities List (NPL) in July 1987. Bangor was listed on the NPL in August 1990 and further investigation and cleanup of the remaining sites proceeded in accordance with the federal Superfund law. The sites have since been grouped into eight Operable Units to better organize the remedial effort. Operable Units 1- 7 have signed Records of Decision outlining current and future cleanup activities. Operable Unit-8 has had remedial activities ongoing since 1986 and a Record of Decision (ROD) outlining future cleanup is expected by the fall of 2000.
Groundwater Contamination in the Mountain View Road Area
No apparent public health hazard exists for residents in the Mountain View Road area exposed to contaminated groundwater through residential wells. Contaminants originated at the Public Works area of Bangor. In 1995, the Navy provided residences within the groundwater contamination zone connection to the Silverdale public water supply. Groundwater contaminants originating from the Public Works area have moved southeast off-base into the Mountain View Road area. In 1984, 1,3-dinitrobenzene was detected in a residential well in the Mountain View Road area. However, subsequent sampling and analysis of this well could not confirm this detection and no other wells tested positive for this contaminant. In August 1986, a gasoline recovery system was installed in the Public Works area to remove gasoline from groundwater that had leaked from an underground storage tank. No residential wells were sampled at this time.
In February 1994, volatile organic compounds (VOCs) and the herbicide bromacil were found in a newly installed but unused well. The base immediately provided bottled water to area residents and began groundwater investigations that would eventually define a VOC groundwater plume in the Mountain View Road area. The primary contaminants of concern in off-base groundwater are 1,2-dichloroethane (1,2-DCA) and benzene.
Hood Canal Shellfish Harvesting
No apparent public health hazard exists for base personnel or off-base shellfish harvesters from exposure to contaminants in fish and shellfish taken from Cattail Lake or Hood Canal beaches. Sampling and analysis of sediment, fish and shellfish along Hood Canal and Cattail Lake over the past 10 years has detected very little contamination. Low levels of polycyclic aromatic hydrocarbons (PAHs) were found in sediments along with trace levels of phthalates and ordnance compounds in shellfish from Hood Canal and trout from Cattail Lake.The beaches below the former landfill at Floral Point (Site B) are currently not open to shell fishing because of habitat and erosion concerns. Although sediment and shellfish sampling indicate that the landfill is not a contaminant source, further sampling of shellfish should be conducted prior to reopening of this beach. More shellfish sampling is scheduled for the Floral point area as part of the Record of Decision.
Past Exposure of Workers in Ordnance Disposal Areas
No apparent public health hazard exists for workers who may have been exposed to soil at the hazardous waste sites on base. On-base workers may have been exposed to contaminants in surface soil at various sites identified around the base. The primary contaminants of concern in soil at Bangor are ordnance compounds found at high levels in soil due to past demilitarization activities. These activities included disposal of ordnance via burning and detonation. Between 1950 and 1970, before worker safety was a serious consideration, workers may have been exposed to contaminants in soil through accidental ingestion, dermal contact and inhalation of dust. However, since 1970 the Occupational Safety and Health Administration (OSHA) has done much to improve working conditions to reduce or eliminate worker exposures to hazardous substances. Site A (OU-1) and Site D (OU-6) contained the highest levels of ordnance in surface soil including 2,4,6-trinitrotoluene (TNT), Royal Demolition Explosive (RDX), 2,4-dinitrotoluene (2,4-DNT) and 2,6-dinitrotoluene (2,6-DNT).
Cleanup has either been completed or is ongoing at sites which contained contaminants in soil above levels of potential health concern. Those workers using personal protective equipment or who were not frequently involved in demilitarization activities at Sites A and D would have had significantly less exposure.
Olympic View/Old Bangor, Vinalnd and On-base Supply Wells
Residential and public supply wells in Vinland do not appear to be at risk from groundwater contaminants at Site A. Site A is located on the northern border of the base adjacent to the community of Vinland. A groundwater plume consisting mainly of RDX exists in both perched and shallow groundwater. Groundwater in the shallow aquifer near Site A is estimated to move primarily to the west discharging to Cattail Lake. Ongoing remediation and monitoring of groundwater will help ensure that drinking water wells in the Vinland area are protected.
Ordnance compounds originating from Site F (OU-2) have migrated in shallow groundwater about 3,500 feet to the northwest. Public and private supply wells in the communities of Olympic View and Old Bangor are located in both the shallow and sea-level aquifers approximately one mile northwest (downgradient) of the Site F plume. Bangor supply wells are located in the sea-level aquifer about two miles north of this plume. Contaminants in groundwater from Site-F are apparently restricted to the shallow aquifer.
Bangor supply well SO6 is currently not in use. If this well is ever re-activated for use as a drinking water supply, it should be sampled for ordnance compounds in addition to any other required sampling. The current groundwater extraction and treatment system at Site F should prevent further migration of contaminants in the shallow aquifer. Continued sampling of monitoring wells at the leading edge of the Site F plume will ensure that any further migration towards off-base drinking water supplies is detected before exposures can occur.
TABLE 1. Exposure evaluation conclusions for Naval Submarine Base, Bangor
| Exposure Location |
Source | Exposed Population |
Exposure Media |
Exposure Time Frame |
Conclusion Category |
| Mountain View Road | Operable Unit - 8 | Residents | Drinking Water | Past | No Apparent Public Health Hazard |
| Current | No Public Health Hazard | ||||
| Future | No Public Health Hazard | ||||
| Hood Canal Cattail Lake |
Operable Unit-1 (Site A) | Shellfish consumers | Shellfish | Past | No Apparent Public Health Hazard |
| Current | No Apparent Public Health Hazard | ||||
| Future | No Apparent Public Health Hazard | ||||
| On-Base Hazardous Waste Sites | All operable units | Workers | Soil | Past | No Apparent Public Health Hazard |
| Current | No Apparent Public Health Hazard | ||||
| Future | No Apparent Public Health Hazard | ||||
| Base Supply Wells | Operable Units - 2 and 4 (Sites D and F) |
Base personnel | Groundwater | Future | No Public Health Hazard |
| Vinland Public Supply Wells |
Operable Unit - 1 (Site A) |
Vinland Residents | Groundwater | Future | No Public Health Hazard |
| Olympic View/ Old Bangor Public Supply Wells |
Operable Unit - 2 (Site F) |
Olympic View Residents | Groundwater | Future | No Public Health Hazard |
A. Site Description and History
Naval Submarine Base, Bangor (Bangor) is located on the Kitsap Peninsula along the east shore of Hood Canal in Kitsap County, Washington (Figure 1). The base occupies approximately 7,000 acres two miles west of Poulsbo and eight miles north of Bremerton, Washington. The facility was formerly used to store and ship ordnance (explosive materials) from the mid-1940s to the early 1970s when it was known as the U.S. Naval Ammunition Depot. In February 1977, Bangor was officially commissioned as the west coast home port for the Trident Submarine Launched Missile System.1
Due to the many years of ordnance handling that occurred prior to its current use, several areas on the base are now contaminated with chemicals associated with disposal of ordnance and general maintenance of the facility. These contaminants have impacted soil and groundwater on base as well as groundwater off base.
Initial site investigations at the base began in 1978 as part of the Navy's Assessment and Control of Installation Pollutants (ACIP) program. By 1986, all site investigations were being conducted under U.S. Environmental Protection Agency (EPA) guidelines mandated by the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA), also known as Superfund.2 In July 1987, EPA listed the Bangor Ordnance Disposal site (CERCLIS NO. WA7170027265), also known as Site A, on the National Priorities List (NPL). Following this listing, 22 additional sites were identified for investigation of hazardous substances in the environment. In January 1990, the base entered into an agreement with the Environmental Protection Agency (EPA) and the Washington State Department of Ecology (Ecology) to conduct further investigation and cleanup of these sites. The entire base was listed on the NPL in August 1990 as the Bangor Naval Submarine Base (CERCLIS NO. WA5170027291).3
Sites were divided into eight operable units to better organize investigation and any necessary cleanup (Figure 2). A Record of Decision (ROD) has been issued for Operable Units 1 - 7 outlining appropriate cleanup actions that have been completed or are currently underway. A draft-final Remedial Investigation/Feasibility Study (RI/FS) for Operable Unit - 8 (OU-8) was released in November 1998 outlining several long-term options for cleanup.4 A ROD is expected for OU-8 by the fall of 2000.
Each operable unit is discussed below with respect to the history of use, contaminants detected, and potential for exposure. Appendix A is a comprehensive list of all sites along with associated contaminants and remedial status. The following section lists and discusses the completed and potential pathways of exposure to contaminants of concern originating from these sites.
Operable Unit 1 (OU-1)
Operable Unit 1 consists entirely of Site A and is located on 12 acres in the northwest corner of the base bordering the Vinland residential community to the north and west. From 1962 through 1986, this area was used to burn and explode ordnance resulting in contamination of soil, surface water and groundwater. Metal casings from the ordnance were disposed of in two places adjacent to the burn area. In addition, a surface water runoff diversion was built in 1983 that discharged storm water from the burn area to another portion of Site A.1
The most prevalent contaminants found at Site A are 2,4,6-trinitrotoluene (TNT), 2,4-dinitrotoluene (2,4-DNT), hexahydro-1,3,5-trinitro-1,3,5-triazine (RDX - Royal Demolition Explosive) and lead. Most of this contamination is in soil and groundwater although minimal contamination of surface water, sediment, plants and fish has been detected.1 The site was listed on the NPL in 1987 and a final RI/FS was released in August 1991. Since December 1994, contaminated soil at the site has undergone remediation by composting and passive leaching. Contaminated soil at Site A currently meets cleanup levels and closure of the leaching system is underway. In May 1997, a groundwater pump and treat system began operation to remove contaminants from shallow groundwater. This groundwater treatment system extracts contaminated groundwater, passes it through a carbon filter before discharging the filtered water to a nearby drain field.5,6
Exposure of on-base workers to soil at Site A could have occurred during and after demilitarization activities. Remedial activities carried out by the base have effectively eliminated exposure to contaminants in soil at Site A. Past exposure of on-base workers to contaminants in soil at on-base hazardous waste sites is evaluated under completed exposure Pathway 3 (see page 24).
Operable Unit 2 (OU-2)
Operable Unit 2 consists entirely of Site F and is located approximately 1.5 miles east of Hood Canal and 500 feet west of the junction of Trident Boulevard and Trigger Avenue in the south central portion of the base. From 1960 through 1970, the area was used as a wastewater lagoon that received effluent contaminated with RDX, TNT, 2,4-DNT and 2,6-dinitrotoluene (2,6-DNT) that originated from nearby ordnance demilitarization activities. This effluent was commonly known as "pink water"due to the characteristic color associated with these contaminants. The wastewater discharged to the unlined lagoon was removed by evaporation, infiltration into shallow groundwater and surface runoff via an overflow channel. Wastewater discharge was stopped in 1970 and sediments were excavated and transported to Site A for burning and disposal. The lagoon was then filled with clean soil and paved over with asphalt.2
High levels of TNT were found in soil and groundwater along with lower levels of other ordnance compounds and their degradation products. Environmental investigations began in 1971 and the site was listed on the NPL in 1987. A final RI/FS was released in August 1993 and the site is currently undergoing remediation. Soil from the lagoon area was excavated and composted to speed degradation of contaminants. Composted soil was then returned to the excavated area and covered with a geo-textile liner to prevent further leaching of contaminants to groundwater via rain infiltration. Since December 1994, contaminants in the shallow aquifer at Site F have been contained and removed though a pump and treat system.6 This system continues to operate along with groundwater monitoring.
Workers were potentially exposed to Site F soils during the excavation and transfer of soil from the lagoon to Site A. Remedial activities carried out by the base have effectively eliminated exposure to contaminants in soil at Site A. Past exposure of on-base workers to contaminants in soil at on-base hazardous waste sites is evaluated under completed exposure Pathway 3 (see page 24).
Operable Unit 3 (OU-3)
Operable Unit 3 consists of sites 16, 24 and 25 which are all located at southeastern portion of the base. Sites 16 and 24 are adjacent and cover about 1.5 acres. From 1970 to 1983, site 16 was used to store drummed waste containing solvents and ordnance contaminated wastewater that was then incinerated at Site 24. The incinerator was shut down in 1983 and removed in 1987. Deposition from the incinerator was estimated to be immediately to the north.7
Site 25 originally consisted of one detention pond that received industrial wastewater from a sewage treatment plant at the former U.S. Naval Ammunition Depot. Wastewater in the pond was discharged into Clear Creek from 1942 until 1977 when the plant was removed and wastewater diverted to a municipal treatment system off base. The site was upgraded in 1983 to include two ponds and an oil/water separator to handle storm water runoff from large areas of the base. The ponds continue to handle storm water runoff at the base that is required to meet National Pollution Discharge Elimination System (NPDES) requirements prior to discharge into Clear Creek.7
Environmental sampling of soil, groundwater and sediment at these sites indicates very little contamination. Low levels of arsenic, dioxins and furans were found in surface soils located within the predicted fallout area of the incinerator. Past exposure of on-base workers to contaminants in soil at on-base hazardous waste sites is evaluated under completed exposure Pathway 3 (see page 24).
Operable Unit 4 (OU-4)
Operable Unit 4 consists of Site C (East and West) and is located at the intersection of Flier and Darter Roads in the northern portion of the base. Between 1946 and 1957, two unlined leachate pits located at Site C-East received wastewater and sludge produced during demilitarization activities at the former ammunition depot. An oil-water separator installed in 1971 removed fuel oil contained in the wastewater prior to discharge into the pits. Soils removed from one pit during the construction of Flyer Road in 1971 were used as fill material at Site C-West. At least some of this fill material was returned to Site C-East. Between 1978 and 1982, surface water at Site C-East was treated via carbon filtration.(8)
Waste discharged to Site C-East is believed to have contained Explosive D (ammonium picrate), picric and picramic acids, and a variety of projectile dyes. Groundwater, sediment, surface water and soil sampling detected only low levels of contamination. Past exposure of on-base workers to contaminants in soil at on-base hazardous waste sites is evaluated under completed exposure Pathway 3 (see page 24).
Operable Unit 5 (OU-5)
Operable Unit 5 consists of Site 5, the former barricaded railroad sidings located in the south-central portion of the base that became a disposal area for demolition debris from a metallurgy laboratory. One hundred pounds of mercury may have been contained within the walls of the lab prior to demolition. Other waste materials may also have been deposited in this area. Soil sampling for mercury found only sparse contamination. Initial soil vapor analysis using a field screening probe found high levels of mercury vapor. However, longer term vapor sampling using sorbent material extracted and analyzed in the laboratory found only trace levels.9 Mercury was determined not to be a contaminant of concern at OU-5. No other contaminants of concern were identified at OU-5.
Operable Unit 6 (OU-6)
Operable Unit 6 consists of Site D. Site D was a former ordnance disposal area located in the central portion of the base where ordnance was burned and detonated from 1946 through 1965. This area also received sludge waste for several years from steam cleaning of projectiles. Ordnance was burned or detonated in long a narrow trench approximately 15-20 feet wide, 200 feet long and 10 feet deep. The site also contained other smaller burn trenches and mounds as well as a small arms incinerator.10
Along with Site A (OU-1), where similar ordnance disposal practices continued until 1986, Site D contained the most heavily contaminated soils on the base.Very high levels of TNT were detected in surface soil along with lower levels of other ordnance compounds. Exposure of on-base workers to soil at Site D could have occurred during and after demilitarization activities. Remedial activities carried out by the base have reduced exposure to soil contaminants at Site D below a level of health concern. Exposure of on-base workers to contaminants in soil at on-base hazardous waste sites is evaluated under completed exposure Pathway 3 (see page 24).
Operable Unit 7 (OU-7)
Operable Unit 7 consists of Sites B, E, 2, 4, 7, 10, 11, 18, 26, and 30. Site B is Floral Point, reportedly a former landfill located near Hood Canal. Site E, located in the central portion of the base, was reportedly a liquid waste disposal area. Site 2 was an unauthorized dump area along an embankment in the southern portion of the base. Site 4 was reportedly an ordnance burn area. Site 7, located at the northern end of the base, was a former paint can disposal area used in 1977. Site 10, located at the southeastern portion of the base, was a former Quonset hut location where pesticides were stored. The Quonset huts in the area were removed in 1978 during construction of the submarine base. Site 11, located in the central portion of the base, was a disposal pit used for empty pesticide containers. Site 18, located in the southeastern portion of the base, was designated for investigation because of repair activities that took place on a leaking transformer in 1968. Site 26, Hood Canal sediments, was investigated due to older pier activities and the potential for impacts from upland remediation sites. Site 30, located on the southern portion of the base, was where neutralized pesticide rinse water was sprayed along railroad tracks in the 1970s.11
OU-7 contains sites from various areas of the base that did not fit in other operable units and were grouped together for convenience. Of the site contained in OU-7, Site-26 (Hood Canal Sediments) and Site B (Floral Point) represent the highest potential for exposure due to the potential for shellfish contamination. Ingestion of shellfish and from Floral Point and other areas of Hood Canal is evaluated under completed exposure Pathway 2 (see page 21).
Operable Unit 8 (OU-8)
Operable Unit 8 consists of Sites 27, 28 and 29 all of which are located in the Public Works Industrial Area in the southeastern portion of the base. Site 27 and 28 were reportedly used as waste and paint disposal ditches, respectively, while Site 29 was a pesticide rinse water spray area. Other sites located within the Public Works area include Sites 16, 24 and 25 which make up OU-3 and Sites 10 and 18 are now part of OU-7.3
Groundwater contamination in the Mountain View Road area was first reported in October 1984 when 1,3-dinitrobenzene (1,3-DNB) was detected in a residential well. Subsequent sampling and analysis of this well did not confirm this detection.12 In May 1986, investigations of a potential gasoline release in the Public Works facility bordering the Mountain View Road area identified a significant amount of groundwater contamination in the area. A recovery system was installed in August 1986 to recover the gasoline from the groundwater. Further investigation of groundwater in the Public Works and Mountain View Road area was conducted in 1994. Volatile organic compounds (VOCs) were detected in groundwater monitoring wells on and off-base as well as Mountain View Road residential wells.3 The primary contaminants detected off-base during these more recent investigations were 1,2-dichloroethane (1,2-DCA) and benzene.
In addition to the free product recovery system, a vapor extraction system
is operating in the Public Works area. A groundwater extraction and treatment
system is also operating at the base boundary to remove VOCs from groundwater.4
This remediation will help to reduce VOC levels in the off-site plume and limit
further migration of the plume. No current exposure to contaminants in groundwater
exists for residents since the base arranged for an extension of the Silverdale
public water supply into the Mountain View Road area. Past and future exposure
of Mountain View Road residents is discussed below as completed exposure Pathway
1 (see page 16).
ATSDR and DOH have been involved with hazardous waste issues at Bangor since site investigations began in the mid-1980s. ATSDR visited Bangor several times between 1991 and 1995 and has provided the base with verbal as well as written consultations. A public availability session was held in March 1993 to hear the health concerns of Mountain View Road area residents. DOH provided extensive comments on the draft RI/FS for Site A in order to ensure that cleanup would address all exposures of health concern. More recently in July 1997, DOH released an evaluation of sediment data gathered along Hood Canal with regard to potential exposures to contaminants through ingestion of shellfish.
A Preliminary Public Health Assessment was released by ATSDR in April 1989. This document took only a cursory look at contamination issues at Bangor and recommended further site characterization and sampling.13 In 1991, after entering into a Memorandum of Understanding (MOU) with the Department of Defense (DOD), ATSDR visited 96 DOD National Priorities List (NPL) sites including Bangor. At this time, Bangor was ranked as a relatively low priority for a public health assessment when compared with other DOD NPL sites. A grant awarded to DOH for the federal fiscal year 1999, as part of an existing cooperative agreement with ATSDR, provided funds to conduct this public health assessment of Bangor.
Site Visit
On July 7, 1998, the Installation Restoration Program manger accompanied staff from DOH on a tour of various waste sites located on the base. Several areas of contamination were visited including Site A (OU-1), Site D (OU-6), Site F (OU-2) and OU-8. Several groundwater monitoring and extraction wells were noted around the Public Works area of the base. No shellfish harvesters were seen during an inspection of the capped landfill and beach at Floral Point (OU-7). The area was posted "Warning: Restricted Area. Keep Out." No activity was noted around any sites to suggest that significant contact with soil, sediment or surface water was occurring.
C. Demographics, Land Use, and Natural Resource Use
Demographics information for Bangor and the surrounding area was obtained from ATSDR (Figure 3). The are 5,141 persons currently living on-base in 1,254 housing units.14 The population within one mile of the base totals 8,755 with 388 persons greater than 65 and 1,292 children six years of age or younger.15
There are three residential communities bordering the base that are addressed as either potentially exposed or exposed populations; Olympic View/Old Bangor, Vinland and the Mountain View Road area (see Figure 4). Table 2 below gives population estimates for those areas within these communities that are located downgradient of groundwater contamination plumes originating at Bangor.(a)
Table 2. Population estimates for potentially exposed communities near Naval Submarine Base, Bangor16
| Population | Olympic View/Old Bangor | Vinland | Mountain View Road |
| Age 0 through 4 | 43 | 10 | 11 |
| Age 5 through 9 | 33 | 7 | 9 |
| Age 10 through 19 | 40 | 8 | 12 |
| Age 20 through 49 | 160 | 35 | 42 |
| Age 50 through 64 | 13 | 2 | 4 |
| Age 65 and over | 10 | 1 | 2 |
| Total | 299 | 63 | 80 |
Drinking water for the Olympic View/Old Bangor, Vinland and Mountain View Road area communities is supplied by both public and private wells. Public supply wells in the vicinity of Bangor are shown in Figure 5. The base drinking water supply comes from four wells all located in the sea-level aquifer as shown in Figure 6.
Land use in the area surrounding the base is primarily agricultural, commercial and residential. There is little industrial activity in the area. However, there are five other NPL sites located in Kitsap County including the Naval Undersea Warfare Center, Keyport, Puget Sound Naval Shipyard, Bremerton, Jackson Park Housing Complex, Bremerton, Old Navy Dump/Manchester Lab, Manchester and Wyckoff Co./Eagle Harbor, Bainbridge Island.3 Each of these facilities has had either controlled or uncontrolled releases of hazardous waste into the environment. Due to the distance of these facilities, it is unlikely that residents living near Bangor would be impacted by contaminants released from these facilities. Since each of these facilities except Wyckoff Co./Eagle Harbor is or has been operated by the U.S. Navy, it is possible that Navy personnel could be or have been exposed to contaminants from more than one site.
Next Section Table
of Contents
