LOWER DUWAMISH WATERWAY
SEATTLE, KING COUNTY, WASHINGTON
COMMUNITY HEALTH CONCERNS EVALUATION
A number of community health concerns related to the LDW were expressed during
community interviews and outreach activities. Specific individual health concerns
identified during community interviews and outreach activities are addressed
individually below.
1. Are the salmon in the Duwamish River site safe to eat?
An evaluation of both chinook and coho salmon tissue data indicates
that eating salmon caught from the river is no different from eating salmon
caught from other areas of Puget Sound. Salmon are a migratory fish and contaminants
present in salmon tissue are assumed to have originated from sources outside
of the LDW study area. However, salmon were evaluated in this public health
assessment because they are harvested commercially from the LDW and are consumed
by recreational and subsistence populations.
This assessment indicates that people who eat large amounts of salmon caught
in the LDW could have a small increased risk of adverse health effects. This
risk would be of most concern for pregnant women or women considering pregnancy.
However, this risk may be completely offset by the benefits of eating salmon,
particularly for some consumers who may have poor nutritional alternatives to
this resource. Because the contaminant levels in LDW salmon do not appear to
be any different from other areas of Puget Sound, the issue of exposure through
consumption of salmon must be dealt with across all of Puget Sound. PCBs are
the primary contaminant of concern in salmon found in the LDW and across Puget
Sound. DOH is currently evaluating PCB consumption of Puget Sound fish. This
evaluation is being done separately from this health assessment.
2. Is seafood from markets safe to eat? How do we know? How is it regulated?
Washington residents should continue to eat fish as part of a healthy
diet. The Washington Department of Agriculture inspects seafood for wholesale
processing. Their method is called the Hazard Analysis Critical Control Point
plan. It applies to wholesalers and ensures safety regarding storage temperatures,
species specifications, ingredients and potential allergens, and cross-contamination.
It does not include testing for chemicals. Most wholesalers buy fish from reputable
commercial fishers that do not harvest in the Duwamish River, however, anecdotal
information obtained from a PH-SKC focus group with Vietnamese
elders revealed that people may catch fish in the Duwamish and sell it to local
markets. This report has not been verified. For more information contact Jim
Pressley at the Washington State Department of Agriculture at (360) 902-1860.
The Washington Department of Health (DOH) monitors shellfish growing areas.
Shellfish harvesting is only permitted in areas with no past history of industrial
uses. The Lower Duwamish Waterway is closed for commercial shellfish harvesting
as is the King County shoreline, except for Vashon-Maury Island. DOH conducts
inspections of wholesalers of mollusk and shellfish. Shellfish are inspected
for biotoxins, not chemical contaminants. These shellfish should be safe to
eat if the grocer keeps them refrigerated and does not store them at room temperature.
Local health agencies are responsible for inspections at the markets. The local
health agency does not test for chemicals but does rely on state certification
tags for biotoxin safety indicating that the product comes from an approved
source. Public Health Seattle and King County (PH-SKC) conducts inspections
at markets four times a year. PH-SKC checks to see that seafood products sold
in markets come from an approved source. If the seafood does not come from an
approved source, the market receives a hold order, is expected to comply with
voluntary removal, and signs a waiver to destroy the product. The market is
not fined and this process primarily operates on the honor system. For more
information on local health inspection policies contact Leonard Winchester of
PH-SKC at (206) 296-9842.
The Food and Drug Administration (FDA) inspects samples from commercial fishing
and packaging plants. The FDA also conducts the Market Basket Survey through
which food products from the grocery store are randomly inspected. Food products
need to be shipped over state lines for the FDA to have jurisdiction, otherwise
the state is responsible for food safety inspections. For more information contact
Sue Hutchcroft at the FDA at (425) 483-4983.
All things considered, it would be wise to ask your local grocer where he buys
his product. If he does not provide a satisfactory answer, you may want to do
your shopping elsewhere.
3. Will it be safe to harvest seafood from the LDW site when it is cleaned
up?
The potential for uptake and bio-accumulation of contaminants varies
depending on the type of fish/shellfish and the amount and type of contaminant.
As the cleanup of the LDW site progresses additional sampling will be conducted
to verify that cleanup actions are effective. It should also be noted that a
number of upland sources have also been identified as potential sources of LDW
contamination. These potential sources will be addressed by Ecology throughout
the LDW site cleanup.
PCBs are the major contaminant of concern related to fish consumed from the
LDW. While cleanup is expected to reduce PCB levels in both fish and sediment,
it is likely to take many years before any appreciable decline is seen in fish.
Measurable decreases in PCB levels are expected only for those fish species
that are resident in the LDW.
4. When will the site be cleaned up?
The LDW is an enormous site (6 miles of river and shoreline area) and will
require a number of years to clean up. The Environmental Protection Agency is
the lead agency in terms of site cleanup activities. For specific questions
regarding the time frame for cleanup or specific cleanup activities for the
LDW site contact Allison Hiltner at EPA (206) 553-2140 or Ravi Sanga (206) 553-4092.
Questions relating to upland source control activities should be directed to
Rick Huey at Ecology at (425) 649-7256.
5. What species of fish/crab/shellfish are safe to eat (if any) in
the river?
People who eat fish occasionally from the LDW are not likely to be exposed
to chemical contaminants at levels of health concern. High-end (subsistence)
consumption of fish from the river, however, is of concern. As a result, this
health assessment has recommended meal limits for resident fish. Salmon from
the LDW have contaminant levels similar to other areas of Puget Sound and have
lower PCB levels than resident LDW fish.
6. Why are signs not posted at the river if there is a pollution problem?
DOH, PH-SKC, EPA, and Ecology are addressing this issue. There is an existing
health advisory for urban areas along the King County shoreline, including Elliott
Bay and the Lower Duwamish Waterway, but the advisory has not been well documented,
communicated, or understood by potentially impacted populations. This health
assessment recommends better communication of existing advisories (see page 58).
7. Is it safe for children to play in the sand along the river at
the Duwamish River Park and the other little park along the river in South Park?
Yes. Childhood exposure to chemical contaminants associated with the LDW were
evaluated at several public access areas (see page 35). There
was very little risk to children playing at parks. It should be noted that the
sediment near public access areas has not been well characterized, but worst-case
exposure scenarios based on existing data did not reveal significant increases
in health risk. Additional sampling is planned at public access areas in order
to identify the potential need for cleanup. The new data gathered are not anticipated
to significantly change the conclusion in this health assessment.
9. Is it safe for habitat restoration workers to work along the riverbanks?
If not, what precautions should they take to reduce exposure (gear)?
Exposure to chemical contaminants in LDW sediment through direct contact does
not appear to be a significant public health concern. However, there are items
such as debris, glass, and unstable rock and riprap materials that could represent
a physical hazard for individuals involved in habitat restoration activities.
Rubber gloves and boots would be appropriate protective attire to protect against
physical hazards.
10. What are the "hot spots" along the river (particularly pertaining
to marinas)?
EPA is currently in the process of identifying sediment "hot spots" along the
LDW study area for early remedial action. Questions relating to sediment "hot
spots" and early action activities should be directed to Allison Hilter at EPA
at (206) 553-2140.
11. Is it safe to swim, wade, or to kayak in the river?
The King County Water Quality Assessment concluded that occasional swimming
or recreation in the Duwamish River is not likely to result in chemical exposures
that are of a health concern. However, there are combined sewage overflows that
may contribute pathogens and viruses into the river that are a concern for swimmers.
PH-SKC has an existing advisory warning against swimming near combined sewer
overflows, especially after periods of heavy rain when untreated sewage may
be present.
12. How are contaminants evaluated?
This assessment evaluated environmental contamination in the LDW using ATSDR
guidance, guidance from state and other federal agencies including EPA and Ecology
and primary literature sources. A description of the process is given in the
Environmental Contamination section (see page 17) and the Pathways Analysis/Public
Health Implications section (see page 22). In the case of the LDW, primary exposure
pathways involve consumption of contaminated seafood and direct contact with
contaminated sediments.
13. Is the river causing respiratory problems?
Contaminants associated with the river are not of concern for respiratory problems.
However, the LDW is situated in the heart of a highly industrialized area with
a number of air emission sources. Major sources in the area include industry,
automobiles and airplanes, all of which can contribute to respiratory effects.
Air emissions in this area are regulated by the Puget Sound Clean Air Agency.
You can contact the Puget Sound Clean Air Agency at (206) 689-4040 or 1-800-552-3565,
e-mail: commedu@psapca.org, URL: http://www.pscleanair.org.
14. What about aerial deposition from cement plants?
Aerial emissions from cement plants is regulated by the Puget Sound
Clean Air Agency. You can contact the Puget Sound Clean Air Agency at (206)
689-4040 or 1-800-552-3565, e-mail: commedu@psapca.org,
URL: http://www.pscleanair.org.
DOH is currently evaluating a cement plant located along the Duwamish River.
For more information regarding this assessment, please contact Gary Palcisko
toll-free at 877-485-7316 or 360-236-3377.
15. Are mortality rates higher for people exposed to contamination in the waterway?
In order to determine if mortality rates are higher for people exposed
to LDW contamination, an exposed population needs to be identified, and compared
to an unexposed population. In the case of the LDW site, census tracts could
be utilized in an effort to define the potentially exposed population. However,
it would be unclear as to what extent the population within the defined area
comprised the exposed or potentially exposed population. This represents a significant
barrier when addressing the mortality rates in people exposed to LDW contamination.
The state Board of Health reports that the communities of South Park and Georgetown
have higher mortality rates and decreased life expectancies when compared to
city of Seattle as a whole. Though it has been theorized that the communities'
proximity to heavy industry contributes to this trend, there are no studies
in Washington State that confirm this theory. [71]
16. Is the water in the Duwamish site a source of drinking water?
DOH is not aware of anyone using the LDW as a source of drinking water. Drinking
water is provided by the City of Seattle to industry and residences in this
area. The city of Seattle obtains the majority of their drinking water from
the relatively pristine Cedar and Tolt River watersheds. Drinking water is routinely
tested to ensure that it is safe for human consumption.
17. Is it safe for pets to have access to the waterway?
This PHA does not specifically address pet exposures. Evaluation of human exposure
to contaminated water and sediments at public access areas indicates very little
risk. PH-SKC does advise humans not to swim in the river after heavy rain because
of possible raw sewage discharge.
18. Is the water from the Duwamish a health hazard if it seeps into people's
homes?
DOH is not aware of any residences along the Duwamish river that are
being impacted by seeps from the river. Pathogens present in the water column,
especially near CSOs following rain events, may represent a potential health
concern for individuals using the river for recreational purposes such as swimming
or SCUBA diving. Refer to response to question #12.
19. Is there enough data on fish/shellfish tissue to assess a health risk and
is that data being shared?
While it is always desirable to have more information, DOH determined
that sampling of some species of fish in the LDW such as salmon, English sole,
and perch were adequate to support recommendations made in this health assessment
to protect public health. There was a limited amount of Dungeness crab samples,
but recommendations concerning crab consumption are based on red rock crab data.
Shellfish are not well-characterized in the LDW, and this health assessment
recommends additional sampling of these species.
The tissue data used in this health assessment have a variety of origins. The
bulk of it comes from the Puget Sound Ambient Monitoring Program conducted by
the Washington State Department of Fish and Wildlife, and the King County water
quality assessment. These data are available to the public.
20. Are surface water, combined sewer overflows (CSO), and air issues
being addressed?
A number of government agencies are involved with the monitoring, regulation,
and management of the LDW site. The Washington State Department of Ecology Toxics
Cleanup Program is the lead for addressing upland source control actions which
could impact LDW sediment. Impacts to surface water that present no threat to
sediments will be addressed by other Ecology programs and/or local agencies.
In addition, Ecology issues National Pollutant Discharge Elimination System
(NPDES) permits along the shoreline of the LDW. Combined sewer overflows have
been evaluated by the King County Department of Natural Resources in a report
entitled "Water Quality Assessment for the Duwamish River and Elliott Bay" dated
February 1999. A number of documents are included in the water quality assessment
and can be accessed at the following Internet URL address: http://dnr.metrokc.gov/wlr/waterres/wqa/wqpage.htm.
Exposure to chemicals in surface water represents much less of a concern than
exposure via ingestion of contaminated seafood. Air issues within the LDW study
area fall under the jurisdiction of the Puget Sound Clean Air Agency.
21. What about occupational exposure to fishermen exercising their treaty
rights?
Based upon the exposure assumptions used to evaluate this exposure pathway,
exposure to contaminated sediments while tending fishing nets was not expected
to result in adverse health effects. Exposure of tribal fisher people are discussed
on page 34.
22. Is it safe to eat shellfish?
Two separate advisories concerning shellfish from the King County shoreline
(including the LDW) exist. The PH-SKC advisory warns harvesters that shellfish
harvested near urban areas along the King County shoreline are potentially contaminated,
and the DOH Food Safety and Shellfish Programs advisory recommends against the
consumption of shellfish from the King County shoreline except for Vashon-Maury
Island. These advisories are based on potential
biological and chemical contamination of shellfish due to proximity to urban
areas. However, the extent of contamination in LDW shellfish is not actually
known due to limited shellfish sampling. Shellfish from the LDW should not be
eaten until more information is known about them.
23. Can people get cancer or leukemia from eating fish/shellfish from the river?
Certain contaminants present in LDW fish/shellfish are considered to
be carcinogenic, or have the potential to cause cancer. The two major contaminants
in LDW fish that can or may cause cancer in humans, arsenic and PCBs, are not
associated with leukemia but have been linked to other types of cancer. The
estimation of cancer risks utilizes science to the maximum extent possible,
however, many assumptions are employed in this process. In general, estimated
cancer risks associated with eating LDW fish are very low. Furthermore, the
risk assessment methodologies used in this PHA are likely to overestimate the
true risk of cancer.
CONCLUSIONS
People who eat large amounts of resident (nonanadromous)
fish caught in the LDW may be at some risk for adverse health effects. The
primary health concern is the potential for adverse effects on the development
of children following exposure in the womb. Exposure of the fetus to mercury
and PCBs has been shown to impair learning and behavior during childhood.
Levels of PCBs found in English sole suggest that consumption of this species,
particularly by pregnant women, should be limited. Other bottomfish from the
LDW (i.e., flounder) can also be assumed to contain high levels of PCBs. In
addition to bottomfish, there is also risk associated with consumption of
pelagic fish, namely striped perch, from the LDW. Though these fish do not
contain levels of PCBs as high as bottomfish, they represent a slight risk
to people who might frequently consume them such as anglers and subsistence
populations. Limited sampling indicates that both red rock and Dungeness crab
contain elevated levels of PCBs and mercury. In addition, Dungeness crab also
contain elevated levels of arsenic although the percentage of the more toxic
inorganic form is not known. Although it is not clear that the LDW can support
a significant shellfish or crab harvest, people have been witnessed harvesting
crabs from the LDW. Finally, Quillback rockfish, though not identified in
the LDW, also contained high levels of PCBs, therefore, consumption of these
fish from Elliot Bay should also be limited. Due to the fact that a subsistence
fish consuming population can potentially consume significant amounts of resident
fish from the LDW, consumption of resident fish from the LDW represents a
public health hazard in accordance with ATSDR's conclusion categories.
A health advisory from PH-SKC currently exists for urban areas along the
King County shoreline warning about contaminants in bottomfish, shellfish,
and crab. However, the health advisory has not been well documented or communicated
to populations consuming seafood from the LDW. There is also a general advisory
from DOH Food Safety and Shellfish Programs that advises against harvesting
shellfish from all of the King County shoreline except Vashon-Maury Island
due to biologic and chemical contamination associated with urban areas. The
highest consumers of fish and/or shellfish from the LDW are from Asian/Pacific
Islander and Native American communities. With the exception of Boeing Plant
2, signs warning against the consumption of these types of seafood from the
LDW were not visible from the shoreline or from the LDW during site visits
to the study area.
The current PH-SKC advisory includes crab and bottomfish (e.g., English
sole), which are among the most contaminated species consumed in the LDW.
However, rockfish caught in Elliot Bay contain the highest levels of PCBs
and are not considered to be bottomfish. DOH is currently evaluating the potential
health risk associated with exposure to polychlorinated biphenyls (PCBs) in
fish throughout Puget Sound.
Salmon are not bottomfish and are not part of the advisory. Recent data
indicate that contaminant levels in LDW salmon are similar to those found
in salmon from other parts of Puget Sound. DOH is currently evaluating PCB
exposure from consumption of salmon caught throughout Puget Sound. Exposure
to PCBs in salmon and other fish can be reduced through preparation and cooking.
Livers of English sole caught in the LDW contain approximately 25 times
the amount of PCBs in muscle tissue. While there is no evidence that livers
of fish caught in the LDW are consumed to any great extent, consumption of
livers from resident fish caught in the LDW could substantially add to overall
PCB exposure.
The hepatopancreas organ in crabs concentrates PCBs. A seafood consumption
study of Asian and Pacific Islanders in King County indicates that many people
eat this organ when consuming crabs. Although sampling in the LDW is limited,
data gathered elsewhere indicates that this organ can contain up to 10 times
the amount of PCBs found in muscle tissue.
Consumption of shellfish from the LDW represents an indeterminate public
health hazard. Existing tissue data for shellfish is very limited and represents
a significant data gap, and little is known about the type and quantity of shellfish
that can potentially be harvested from the LDW.
Direct contact with chemicals in LDW sediments (e.g., playing, fishing,
or netfishing) represents no apparent public health hazard. Extensive sediment
sampling of the LDW over the past ten years was evaluated for various recreational
(swimming, shellfishing) and occupational (bank restoration, tribal net fishing)
exposure scenarios. Geographical Information System (GIS) maps were used to
delineate specific areas of exposure in order to calculate an appropriate
contaminant concentration for each scenario.
Exposure to chemical contaminants in surface water while swimming represents
no apparent public health hazard. The water quality assessment conducted by
King County determined that there is very little risk to swimmers associated
with chemical contaminants in surface water of the LDW. This pathway is unlikely
to represent a health hazard as community outreach efforts and site visits
found very little evidence that swimming is a frequent activity in the LDW.
It is important to note, however, that PH-SKC has a current advisory against
swimming near combined sewer outfalls (CSOs) due to high levels of pathogens.
The tissue and sediment data evaluated for this public health assessment
have not been reviewed by EPA or Ecology. This information will undergo review
and evaluation by EPA and Ecology, and will be reviewed by DOH to ensure that
the conclusions of the health assessment remain valid. Additional environmental
data collected during Phase II of the remedial investigation/feasibility study
and early action activities will also be evaluated by DOH.
Common concerns expressed during community interviews and outreach activities
related to the safety of consuming salmon harvested from the LDW, seafood
consumed from local markets, and a lack of information warning against consumption
of seafood harvested from the LDW study area.
Building relationships with all populations potentially impacted by contamination
at the LDW site is imperative. DOH has committed to revisit every community
group previously contacted, to present the findings of this public health
assessment. All community groups expressed interest in receiving public health
messages outlined in the public health assessment. Several of the Asian/Pacific
Islander groups are interested in learning more about safe shellfish harvesting.
An excellent video, entitled, Good Food From the Beach: Safe and Responsible
Marine Resource Harvesting, is available through the Washington Department
of Fish and Wildlife in English, Korean, Samoan, Vietnamese, and Cambodian.
DOH plans to view the video with interested communities and offer helpful
tips from the DOH shellfish experts in addition to presenting the results
of the health assessment.
Vietnamese and Filipino groups requested written educational materials.
DOH will coordinate with The Voice newspaper which serves housing
communities in High Point, Park Lake Homes, Rainier Vista, among others, and
offers translations in Amharic, Cambodian, Russian, Somali, Tigrigna, and
Vietnamese to communicate health messages regarding the LDW. The Filipino
American Bulletin has also offered to publish community health messages
regarding the LDW. Radio and television service announcements are also possibilities
that DOH will explore.
RECOMMENDATIONS
DOH supports King County's existing advisory that warns of contaminants
in shellfish, bottomfish, and crabs near urban areas of the King County shoreline.
The DOH Office of Food Safety and Shellfish Programs has also issued a general
shellfish advisory for the entire King County shoreline, except Vashon-Maury
Island. This assessment further recommends the following advisory related
to consumption of LDW fish.
Consumption of any resident fish from the LDW should be limited to one
8 ounce meal per month (see table 10), and quillback rockfish from Elliot
Bay near Harbor Island should be avoided. Women who are pregnant or considering
pregnancy should pay special attention to these meal limits because PCBs and
mercury, the contaminants which the meal limits are based, can impair development
of the fetus.
People who routinely eat fish in their diet should avoid eating any resident
fish from the LDW to account for the fact that all fish, including those purchased
at the supermarket, have some contaminants in them.
Salmon is the preferred fish to eat from the LDW, but it should not be
eaten every day especially while pregnant or considering pregnancy.
The hepatopancreas of crabs should not be eaten due to the tendency for
PCBs to concentrate in the organ.
Livers from bottomfish caught in the LDW should not be eaten due to the
likelihood of highly concentrated contamination.
In concurrence with both PH-SKC and DOH Food Safety and Shellfish Programs,
consumption of shellfish from the LDW should be avoided due to potential chemical
and biological contamination.
Further investigation is needed to adequately assess exposure from consumption
of certain species caught in the LDW. In addition, more information regarding
the extent of consumption of shellfish is necessary to determine if this pathway
is of concern.
The abundance of shellfish within the LDW needs to be determined.
Congener-specific analysis for PCBs is needed for a representative species
from each of the various trophic levels of the LDW.
A current inventory of existing warning signs within the LDW study needs
to be conducted. The specific location of each sign needs to be documented,
the language of each sign needs to be identified, and the specific health
messages should be accurately verified by a translator.
Educational information should be provided to populations potentially impacted
by LDW contamination. These materials should communicate the existing health
advisories and findings of the public health assessment.
Signs communicating concerns about the consumption of fish and shellfish
from the LDW should be posted where fishing is known or likely to occur.
DOH will evaluate new environmental data gathered by various agencies within
the LDW study area.
Very little is known about how much fish is being caught and eaten from
the LDW, but evidence of people fishing and crabbing in the LDW combined with
the presence of elevated contaminant levels has prompted a fish advisory.
As the fish advisory becomes better communicated, an evaluation of the effectiveness
of the advisory should be conducted.
PUBLIC HEALTH ACTION PLAN
The public health action plan for the Lower Duwamish Waterway site identifies
actions to be taken by DOH and other government agencies. The purpose of the
action plan is to ensure that the public health assessment 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 following public health actions are based upon the recommendations outlined in this public health assessment.
DOH will re-examine the consumption limits recommended in this health assessment
pending new sampling and/or toxicological data.
DOH will revisit all community groups previously contacted to present the
conclusions and recommendations of the public health assessment.
DOH will post signs.
DOH will provide health education materials to various community groups
to assist in communicating health messages. Educational materials will be
translated into various languages and will be verified for technical accuracy
by a translator.
DOH will coordinate shellfish harvesting and safety education presentations,
including showing a marine resource harvesting video in the community's native
language, to those groups that requested harvesting information.
DOH will conduct fish cleaning demonstrations to show the affected community
how to reduce their exposure to contaminants in fish.
ATSDR and DOH will explore the possibility of sponsoring a continuing medical
education (CME) session designed to educate physicians on how to evaluate
environmental exposures.
DOH will coordinate with PH-SKC, EPA, and Ecology to implement the recommendations
outlined in this public health assessment.
Community repositories for the public health assessment and related fact
sheets will be established at the following locations:
Boulevard Park Library
12015 Roseberg Ave. S.
Seattle, WA 98168
(206) 242-8662
South Park Community Center
8319 8th Ave. S.
Seattle, WA 98101
(206) 684-7451
PREPARERS OF REPORT
Gary Palcisko
Washington State Department of Health
Office of Environmental Health Assessments
Site Assessment Section
Marcia Henning
Washington State Department of Health
Office of Environmental Health Assessments
Site Assessment Section
DOH Designated Reviewer
Robert Duff, Manager
Washington State Department of Health
Office of Environmental Health Assessments
Site Assessment Section
ATSDR Designated Reviewer
Debra Gable
Technical Project Officer
Division of Health Assessment and Consultation
Agency for Toxic Substances and Disease Registry
ATSDR Regional Representative
Karen Larson, Ph.D.
ATSDR Region 10
Regional Operations
Agency for Toxic Substances and Disease Registry
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