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Record of Decision System (RODS)



City & State:  MANCHESTER  WA  98352
County:  KITSAP
EPA ID:  WA8680030931
EPA Region:  10
NPL Status:  Currently on the Final NPL
ROD Type:  Record of Decision
ROD ID:  EPA/541/R-97/201
ROD Date:  09/30/1997
Operable Unit(s):  01
Media:  Groundwater,Water,Sediment(s)
Contaminant:  Waste oil, gas, diesel, polychlorinated biphenyls (PCBs), dioxin
Abstract:  The Old Navy Dump/Manchester Laboratory site is located approximately 1 mile north of Manchester, Washington, in Kitsap County. The 40-acre site is situated on the western shore of Clam Bay, an embayment off the west side of Rich Passage in Puget Sound. Clam Bay is typical of shallow sand-mud marine communities in Puget Sound, and supports a variety of marine resources. Commercial and experimental salmon farms also operate in the Bay.The site was historically owned and operated by the U.S. Navy for submarine net maintenance, fire training, and waste disposal activities. Current site owners include the U.S. Environmental Protection Agency (EPA) and the National Oceanic and Atmospheric Administration (NOAA), both of which operate laboratory facilities at the site. Approximately 100 personnel work at the two laboratory facilities. Washington State Parks operates Manchester State Park, a seasonal park facility, on the extreme western portion of the site.The EPA Manchester Laboratory is situated in the northern 17 1/2 acres of the site. The northernmost 5 acres of the EPA property includes the EPA laboratory and associated concrete parking pad and other facilities, and is also the location of the former Navy Net Depot. The remaining 12 1/2 acres, located in the central portion of the site, contains a landfill area. A small portion of the northwestern corner of the landfill area extends onto Manchester State Park property.The southern 22 1/2 acres of the site was the location of a former Navy Fire Training School and is currently occupied by the NOAA National Marine Fisheries Service (NMFS). The U.S. Naval Fuel Supply Center is located south of the site.Listed and candidate threatened and endangered species identified at the site include the great blue heron, bald eagle, and Steller's sea lion. There is a moderate probability for hunter-fisher-gatherer cultural deposits.The site was originally established as part of a 385-acre military reservation in 1898, and subsequently transferred from the War Department to the Navy in 1919. During World War II, the Net Depot and Fire Fighting School were established at the site. From approximately 1940 to the early 1950s, the Manchester Net Depot functioned to construct, repair, and store submarine nets, made of steel cable and suspended from gate vessels across strategically important waterways. The Net Depot was comprised of a large concrete pad and various structures including storage facilities and a paint and sandblasting building. Activities performed within this area of the site included net and buoy maintenance, sandblasting, painting, and machining operation. The Net Depot appears to have been disestablished in the early 1950s, when the area became devoted to boat storage.Formally established in 1942, the initial purpose of the Fire Fighting School was to train World War II Navy personnel to extinguish ship fires. The school included a number of features which enabled typical ship fires to be set and extinguished. Associated equipment included underground storage tanks (USTs) for gas, diesel, and waste oil; fuel lines; water lines; and pumps. Three steel USTs were removed in 1994; however, at least five concrete USTs and several concrete simulators remain in this area.Between approximately 1946 and 1962, the Navy filled the tidal lagoon between the Net Depot and Fire Training Area. The majority of the landfilling appears to have occurred between 1946 and 1955. The bulk of the waste included building demolition debris and burnable garbage from the Puget Sound Naval Station, along with scrap metals, steel, old submarine nets, and other debris. The resulting landfill, which has an average thickness of 6 feet and covers about 6 acres, was subsequently covered with a 1-foot thickness of sand and gravel. The southeastern edge of the landfill (approximately 1,200 feet in length) is currently exposed along the Clam Bay shoreline, and landfill waste materials have eroded into the adjacent intertidal area.The Navy surplused 150 acres of the Station (the former Naval Station property other than the fuel depot) to the General Services Administration (GSA) in 1960, though Navy use reportedly continued until about 1962. In 1967, GSA transferred the Net Depot and most of the Landfill Area to the Public Health Service, and the property subsequently fell under EPA control. The Fire Training Area was transferred in 1968 to the U.S. Fish and Wildlife Service (USFWS), and is now under the administration of NOAA/NMFS. The portion of the Station located north and northwest of the EPA and NMFS properties, including a small portion of the Landfill Area, was transferred to the State of Washington in 1970, becoming Manchester State Park.Several investigations including preliminary assessments, site investigations, and UST removal and closure action were performed by the U.S. Army Corps of Engineers (Corps), EPA, and NOAA during the period from 1987 to 1994. Based on the findings of these investigations, the Manchester Annex Site was listed in 1994 on the National Priorities List (NPL).
Remedy:  The selected remedy is the only response action planned for the site. This action address all contaminated media at the site, and consists of the following actions. Landfill debris located in the intertidal zone of Clam Bay will excavated to establish a shoreline protection system, with no loss of aquatic habitat. Excavated material will be placed, to the extent possible, on the upland landfill area prior to capping. Debris that is unsuitable for placement on the landfill will be tested for waste designation purposed and disposed of in an appropriate off-site landfill; the shoreline excavation backfill will be designed to achieve seep cleanup levels, provide the best possible habitat for marine organisms, and maximize long-term beach stability. Seeps associated with discharge from the landfill after implementation of the remedial action, if observed, will be monitored for compliance with seep discharge cleanup levels. Additional remedial measures will be implemented, as necessary, if seep discharge cleanup levels are not achieved; a thin cap of clean sediment will be established over intertidal Clam Bay sediment areas that exceed cleanup levels (roughly 5 acres). The overall goal is to reduce contaminant concentration is surficial sediments to ensure that sediment-dwelling organisms are adequately protected to support unrestricted use of the cap area within several years of completion of the remedial action. Clam Bay sediment and shellfish tissue will be monitored in intertidal areas currently exceeding the polychlorinated biphenyl (PCB) cleanup goal for sediments until compliance with cleanup goals is established, or until the Washington State Department of Health and the Suquamish Tribe determine that the shellfish are safe for subsistence-level harvesting, whichever comes first. The upland portion of the landfill will be capped in accordance with the State of Washington's standards for solid waste landfill closures. A hydraulic cutoff system will be installed upgradient of the landfill area. After completion of upland construction, the area will be revegetated, consistent with long-term operation and maintenance requirements and site development plans. A post-closure plan for the landfill cap, hydraulic cutoff system, and shoreline protection system will be developed during remedial construction and implemented following construction; dioxin-contaminated debris will be removed from the main simulator complex in the Fire Training Area and disposed of in a Resource Conservation and Recovery Act (RCRA) hazardous waste landfill. If routes of potential leakage are found in the simulator floors, soils beneath the simulators will be sampled and analyzed for dioxins. If dioxin concentrations above cleanup levels are detected, the simulator(s) will be demolished, and the underlying contaminated soils excavated; near-surface soils adjacent to the main simulator complex and the soil/debris pile north of the main complex will be sampled and analyzed for dioxins. Soil and debris with concentrations above cleanup levels will be excavated, tested for waste designation purposes, and disposed of in appropriate off site landfills; concrete USTs remaining in the Fire Training Area will be closed in place following State UST closure requirements. UST piping systems, and total petroleum hydrocarbon (TPH)-impacted soil excavated incidentally along with piping, will be disposed of in an appropriate off-site landfill.The following institutional controls will be implemented: deed covenants to provide for the long-term protection and maintenance of the selected remedy; a restriction on subsistence level harvesting of shellfish until the Washington State Department of Health and the Suquamish Tribe determine that the shellfish are safe for subsistence level harvesting; and an institutional control plan to address TPH-impacted soil left in place in the Fire Training Area.
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