PUBLIC HEALTH ASSESSMENT
NAVAL AIR STATION FALLON
(a/k/a FALLON NAVAL AIR STATION)
FALLON, CHURCHILL COUNTY, NEVADA
ATSDR has communicated with community members who live near NASF and has documented specific health concerns related to the activities at NASF. A Community Information Fair was held on August 21 and 22, 2001, at the Fallon Convention and Tourism Authority, in Fallon, Nevada, to provide an opportunity for community members to discuss health and site-related concerns with ATSDR staff as well as other state and federal agencies involved with the Fallon childhood leukemia investigation. ATSDR identified the following community concerns regarding contamination and health effects associated with NASF from the site visits, the Community Information Fair, and other site-related activities.
ATSDR has identified the primary sources of drinking water for NASF, the city of Fallon, and the Fallon Paiute-Shoshone Tribe. Groundwater beneath NASF is not used as a source of drinking water. The NASF drinking water wells and the city of Fallon municipal wells are screened in the Fallon basalt aquifer which has not been impacted by site-related contaminants. These drinking water wells are upgradient from NASF and the depth to the basalt aquifer is more than 500 feet below ground surface. Arsenic, which is naturally occurring in the Fallon area, continues to be detected above EPA's safe drinking water standard. The city of Fallon, NASF, and the Fallon Paiute-Shoshone Tribe are addressing this issue by constructing a water treatment plant designed to remove arsenic. The plant is expected to be in operation by the beginning of 2004. There are some private drinking water wells to the east of the station boundary. However, monitoring wells near the station boundary have not contained any site-related contaminants that have exceeded ATSDR's CVs.
Several members of the community in the vicinity of NAS Fallon have expressed the concern that fuel jettisoned from Naval aircraft might be a potential cause of illnesses in the community. There is a perception that fuel is routinely jettisoned by aircraft prior to landing. According to U.S. Navy operations guidelines, this is not the case. Jettisoning typically occurs when an emergency landing is required. The fuel is released in order to decrease the potential for an explosion or fire during an urgent or emergency landing.
The U.S. Navy Operational and Training Manual for General Aircraft Operations (OPNAV Instruction 3710, January 1997) states that: "Whenever practicable, fuel shall not be jettisoned (dumped) below an altitude of 6,000 feet above the terrain. Should weather or emergency conditions dictate jettisoning at a lower altitude, every effort shall be made to avoid populated areas. When under positive control, the pilot in command should advise the air traffic control facility that fuel will be jettisoned."
As mentioned above, jettisoning is not a common occurrence at NASF or other military air bases. Even during urgent or emergency circumstances, to the extent allowed by the situation, procedures must be followed to minimize exposure to the greatest extent possible given the circumstances. Additionally, jettisoning of fuel close to the ground can produce turbulent conditions that could cause the aircraft to become difficult to control and increase the likelihood of a crash. For these reasons, standard procedures do not recommend jettisoning of fuel close to the ground.
Table 6 lists the actual jettisoning events that have occurred at NAS Fallon between 1986 and 2001 (Rybold, 2001). The jettisoning incidents occurred when mechanical or electronic problems created dangerous operating conditions increasing the potential for an accident upon landing. The amount of fuel jettisoned were, in all cases, relatively small and occurred over undeveloped and unpopulated areas, specifically Salt Wells Flat (also known as Salt Wells Basin or Eight Mile Flat) and bombing ranges B-17 and B-20, located from 10 to 30 miles from the city of Fallon. These locations are depicted in Figure 7. It should be noted that these locations are not upwind from the city of Fallon, making it unlikely that ground fall would move toward the city.
U.S. Air Force research on ground fall of jettisoned fuel (i.e., JP-8) found much of the jettisoned fuel evaporates and remains in the atmosphere long enough to be dissipated. This research also found that ground temperature is an important factor in determining the amount of fuel that will reach the ground. At ground temperatures above 30 degrees Celsius(30º C) (86º (F)) less than one percent of JP-8 jettisoned at 3000 feet above ground level (agl) will reach the ground. At 0º C (32º F) approximately 25 percent of the fuel will reach the ground (AFESC, 1981). The balance of the jettisoned fuel becomes entrained in the atmosphere for an indefinite period of time. Without specific knowledge of the speed of the aircraft, the flight path and meteorological information such as wind speed and direction, and humidity, it is not possible to determine precisely how much fuel would have reached the ground during specific jettisoning events. However, the jettisoning occurred over areas down wind and removed from the city of Fallon and did not occur over residential areas. It is unlikely that people were exposed to the limited amount of jettisoned fuel that would reach the ground in these areas.
At NASF, whenever fuel jettisoning occurs, an on-site inspection is conducted of the area. This inspection includes soil sampling if fumes or other fuel-related products are observed, is conducted by explosive ordnance personnel. To date, no evidence of fuel contamination has been discovered. Additionally, the base routinely tests the shallow water aquifer (218 monitoring wells are located at NASF and periodically tested) and conducts routine testing of the three drinking water wells according to the schedule required by the Source Water assessment Program. To date, no fuel related chemicals have ever been discovered in off-base property or in the drinking water supply (Naughton, 2001).
Members of the Fallon community have expressed concern that jettisoning occurred more frequently and at lower altitudes than reported in Table 6. ATSDR can not determine what was actually observed, there are several phenomena that might be mistaken for jettisoning.
Figure 8 depicts an aircraft actually venting fuel. The venting is believed to be the result of an accidental overfill during refueling. However, the visual effect is the same as jettisoning (personal communication, Jeff Kellam, from Jet Safety, July 7, 2002) . The visual effect is similar to that of a vapor trail except that a vapor trail can extend for a considerable distance, even horizon-to-horizon, whereas a jettisoning event lasts for a few seconds and will likely leave a much shorter visible trail.
When viewed from a distance, other types of emissions may be mistaken for fuel jettisoning. Figures 9 - 12 are photographs of military aircraft, collected from various military websites. While these were not taken from aircraft at NASF, each depicts phenomena that might be mistaken for fuel being jettisoned. These phenomena include; exhaust plumes, vapor trails, heat plumes, and the firing of flares. Exhaust plumes are the smoke fumes that are similar to those that are emitted by any internal combustion engine. Vapor trails are streams of water vapor that are condensed from the air by the increased air pressure created by the aircraft moving through the atmosphere. These are the contrails that are commonly seen trailing many aircraft such as commercial airliners. A heat plume is created by the variation of density of the heated emissions of an aircraft engine. The difference in density between the heated exhaust and the cooler air creates the wavy pattern behind the aircraft. These wavy patterns are similar to the 'heat waves' seen above paved roads during hot weather. The firing of flares may be mistaken for jettisoning if observed from a distance, but would only be seen over the training ranges. These flares are defensive measures taken by military aircraft in combat and are used to 'confuse' antiaircraft weapons that target the heat of the aircraft engine.
Because fuel jettisoning is a very rare event and does not typically occur over populated areas, ATSDR has determined that fuel jettisoning at NAS Fallon does not present a public health hazard.
ATSDR has prepared a separate public health consultation (HC) that addresses the issue of whether jet fuel releases are likely to have occurred along the Fallon jet fuel pipeline that delivers JP-8 fuel to NASF (ATSDR 2002). The HC provides a description of the history, operation, maintenance, and monitoring of the pipeline, and evaluates any potential pathways for human exposure. Based on this evaluation, ATSDR concluded that the Fallon jet fuel pipeline does not pose a past, current, or likely future public health hazard. The Fallon Jet Fuel Pipeline HC was released for public comment and is on-line at ATSDR's web-site: http://www.atsdr.cdc.gov/HAC/PHA/fallonpipe/fallon_toc.html
Community members have voiced concern about possible public health risks associated with the Navy's use of chaff at NASF. Chaff is a metallic material consisting of aluminum-coated glass fibers. Chaff fibers typically are 25 microns (m) thick and between 1 and 2 centimeters long (Naval Research Laboratory 1999). The primary elements in chaff are aluminum and silicon--two of the most abundant naturally occurring elements in the earth's crust. It is used by the military to confuse radar signals, which allows aircraft to operate without easily being detected.
Part of NASF's mission is to conduct training operations that accurately simulate wartime conditions. Air crews at NASF complete chaff deployment training missions and other training exercises which result in the release of approximately 50,000 chaff canisters or bundles per year. At NASF, most of the chaff is released at 15,000 to 20,000 feet above ground level over an area covering approximately 10,000 square miles. Each canister of chaff contains approximately 2.1 million fibers and weighs about 1.5 ounces. This is equivalent to approximately 2 ½ tons of chaff fibers released annually. Once released into the atmosphere, the dispersion of chaff and its ground concentrations depend on such conditions as temperature, humidity, wind directions and speed, release altitude, aircraft speed, and topographic features (Tetra Tech, Inc. 1998; Naval Research Laboratory 1999) In general, chaff is released at high altitudes, drifts over very large areas, and is greatly dispersed before falling to the Earth's surface.
Based on the site-specific information presented above, 2 ½ tons of chaff fibers released each year over 10,000 square miles would result in an annual average PM10 or PM2.5 concentration of 0.018 µg/m3. This is far below the NAAQS of 50 µg/m3 for PM10 and 15 µg/m3 for PM2.5. To provide some perspective, annual average background PM10 concentrations range from 6.4 µg/m3 in northern California and Western Nevada to 20 µg/m3 along the east coast. The lowest background PM2.5 concentrations, which are typically found in Nevada, Utah, Wyoming, and northern Arizona, are around 3 µg/m3. The PM10 or PM2.5 concentrations that would result from chaff at NASF would be much lower than average background concentrations found across the U.S.
A Chaff Survey was conducted by the Navy between December 1994 and January 1995. The survey area covered approximately 107 acres at the Electronic Warfare Range, which is approximately 25 miles east-southeast of NASF. The survey did not find any observable effects of chaff debris in vegetation, wildlife, soils, or water within the survey area (Tetra Tech 1998). Although the Navy survey did not evaluate human health impacts associated with the inhalation of chaff fibers, a recent report issued by the U.S. Air Force did not identify any studies that found chaff to contribute significantly to particulate matter or any EPA criteria pollutants in the atmosphere (USAF 1997). In addition, a panel of independent experts from academic and research institutes concluded that chaff fibers are too large to be inhaled into the lungs and are, therefore, not of health concern for inhalation exposure (Naval Research Laboratory 1999). Based on a review of the scientific literature and recent evaluations at other sites, ATSDR concludes that the usage of chaff at NASF does not pose a public health hazard.
Navy records report that ordnance containing depleted uranium has not be used at NASF. According to NASF information, some of the aircraft used in training at NASF could be equipped to fire the types of ordnance that contain depleted uranium. Training with DU must be specifically authorized on designated DOD targets. There are no authorized targets within the Fallon Range Training Complex and DU does not appear on the list of approved ordnance for the Fallon ranges. No record exists of DU ever being authorized or used in the Fallon Range Training Complex or of expended DU ever being encountered during range clean up. (Electronic communication, Captain B.T. Goetsch, Commanding Officer NASF, February 26, 2002).
Elevated levels of tungsten were found in the biological sampling of case and control families in the Fallon area. At present there is no established causal link between tungsten and leukemia. The NSHD, CDC and ATSDR are continuing to evaluate tungsten in the environment in the Fallon area. This evaluation will include drinking water sampling, and possibly, ambient air sampling.
ATSDR recognizes that infants and children may be more sensitive than adults to environmental exposure in communities faced with contamination of their water, soil, air, or food. This sensitivity is a result of the following factors: (1) children are more likely to be exposed to certain media like soil when they play outdoors; (2) children are shorter and therefore may be more likely to breathe dust, soil, and vapors close to the ground; and (3) children are smaller than adults and therefore may receive a higher dose of chemical exposure relative to their body weight. Children also can sustain permanent damage if exposed to toxic substances during critical growth stages. ATSDR is committed to evaluating children's special interests at sites such as NASF as part of its public health assessment process.
ATSDR evaluated the likelihood that children living at or near NASF may have been or may be exposed to contaminants at levels of health concern. Based on the most recent NASF estimates, there are 84 children under the age of 18 years living in NASF housing on site. There are no schools or daycare facilities on site. The on-site family housing area (i.e., Fairview Housing) does not border any of the IRP sites. Although most of the IRP sites are not in close proximity to the family housing, Site 1 is approximately 2,500 feet from the Fairview Housing area. As a conservative safety measure, ATSDR recommended that a fence be installed around the "biopile" located within Site 1 to minimize any potential for exposure. In July 2002, a fence was placed around the "biopile" at Site 1. In addition, a contract has been approved to remove, treat, and dispose of the contaminated soil at an off-site approved disposal facility (Brown 2002). Based on available data, information from NASF personnel, and the site visit to NASF, ATSDR did not identify any situations where children were likely to be exposed to contaminants at levels which pose a health concern.
After evaluating available environmental data and available toxicologic and medical information, ATSDR has reached the following conclusions regarding media- and site-specific exposure pathways. ATSDR concludes that there are no past, current or future public health hazards presented by exposures to NASF-related contaminants in the environment.
Groundwater investigations at NASF have indicated that contamination is confined to the shallow aquifer beneath NASF. Most private wells in the Lahontan Valley are screened in the intermediate aquifer and would not be impacted by NASF contamination of the shallow aquifer. There are a small number of private residences to the south and east of NASF that use shallow aquifer wells. Monitoring wells near the station boundary have not contained any site-related contaminants that have exceeded ATSDR's CVs. Since, boundary wells have not contained contaminants at levels above ATSDR's CVs, it is not expected that private wells have been impacted by site-related contaminants.
Based on the conclusions about potential exposure pathways at NASF, ATSDR makes the following recommendations.
The public health action plan (PHAP) for NASF contains a description of actions to be taken by ATSDR and other government agencies at and in the vicinity of the site upon completion of this PHA. The PHAP is designed to ensure that this PHA not only identifies public health hazards, but provides a plan of action designed to mitigate and prevent adverse human health effects resulting from exposure to hazardous substances in the environment. The plan includes a commitment on the part of ATSDR to follow up and ensure that the plan is implemented. The public health actions completed and to be implemented are as follows:
Completed Actions
Ongoing and Planned Actions
Jeffrey Kellam, MS
Environmental Health Scientist
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation
Gary Campbell, Ph.D.
Environmental Health Scientist
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation
Karl Markiewicz, Ph.D.
Toxicologist
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation
Len Young, MS
Epidemiologist
Eastern Research Group
John Wilhelmi, MS
Senior Chemical Engineer
Eastern Research Group
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