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1. ATSDR > Public Health Assessments & Consultations

PUBLIC HEALTH ASSESSMENT

NAVAL AIR STATION CECIL FIELD
(a/k/a USN AIR STATION CECIL FIELD)
JACKSONVILLE, DUVAL COUNTY, FLORIDA

There are several ways building occupants can be exposed to lead, including eating or inhaling lead-based paint or dusts or drinking water from plumbing containing lead. In 1995, the Navy surveyed base buildings and found lead-based paint hazards. The surveys determined that base housing, and Base Officer Family Housing units have varying levels of lead-based paint as well as the former Child Care Center facilities (Buildings 24 & 118). The survey stated that residential housing units constructed between 1942 and 1957 have paint with 20-25% lead. The base buildings also have asbestos insulation remaining that, if disturbed, could present a health hazard.

The Navy has disclosed information concerning lead and asbestos via the Finding of Suitability to Transfer (FOST) documents for parcels transferred to the city of Jacksonville and the Jacksonville Port Authority. The Navy or the redevelopment authority should provide information to new residents, developers, or tenants on not only the location of the lead paint and asbestos buildings, but ways to manage those hazards.

The Navy has also identified copper drinking water pipes with lead solder. Lead solder is known to leach into drinking water under certain conditions. The Navy should determine if the lead solder is leaching into the drinking water at action levels (15 ppb). If so, either remove the lead hazard or provide information to new occupants on flushing techniques and frequency. Future occupants and frequent visitors should consult with their health care provider as to whether routine (annual) blood lead sampling is needed based on their medical condition. Those at greatest risk are children under 6 years old, the elderly, and women of child bearing age.

Exterior lead paint may have also peeled off the housing exterior and deposited into soils possibly presenting a hazard if children play there or if soil is used for vegetable gardening. The Navy has sampled the soils and determined that the levels do not present a health hazard.

Possible Past Exposures to Lead

Children who attended Building 24 Day Care operations at the base may have been exposed to lead at levels of health concern. Surveys conducted in 1995 demonstrated that interior and exterior surfaces of this facility were painted with lead-based paint. Areas of deteriorated paint were noted in the infant room, pre-toddler room, 3 year old and 4 year old rooms, and in common areas. In 1997, NAS Cecil Field day care activities were moved from Building 24 to Buildings 109 and 118. No lead hazard has been identified at Building 109, but Building 118 is documented as having lead-based paint and extreme deterioration of painted surfaces.

Additionally, children who lived in base housing may have been exposed to lead at levels of health concern. The 1995 surveys determined that Base Officer Family Housing and Base Enlisted Housing units have lead-based painted surfaces.

No risk reduction or abatement activities were initiated by NAS Cecil Field or the Naval Facilities Engineering Command-Southern Division in response to the results of the 1995 lead paint survey. Baseline and follow-up blood lead screenings were not performed so there is no information to determine if children were being exposed to lead in the day care and residential environments at levels posing a health risk. Therefore, ATSDR also concludes that in the past, those children attending base day care facilities, living in base enlisted housing, or both, may have experienced exposures to lead at levels posing a health hazard. Since the base closing, the day care and Base Officer Family Housing have been taken out of service.

Possible Future Exposures to Lead

In the absence of risk reduction or lead abatement activities, the lead in the NAS Cecil Field housing units may pose a health hazard to children 6 years and under, the elderly, and women of child-bearing age who use these units for permanent or vacation housing in the future.

According to Navy documents, there are five fishable lakes including Lake Fretwell, Lake Newman, Lake Wright, Lake Yellow Water, and Lake Burrel, and numerous creeks as well as wetland areas with standing water, capable of supporting fish on NAS Cecil Field. While the base was in operation, people were fishing in the lakes. With the turnover of NAS Cecil Field, more fishing is likely. The fish have only been sampled in one lake, Lake Fretwell, and found to be contaminated with low levels of mercury, lead, PCBs, and other chemicals, but at levels not likely to result in adverse health effects in people. New lakes or enlargement of existing lakes in the future may inadvertently bring contamination to the water bodies from nearby remaining source areas. Future use of the lakes and streams has not been determined and they may, in the future, be stocked with sufficient fish to support recreational or subsistence fishing. This situation would therefore, warrant periodic reassessment.

Background

There are five man-made lakes on NAS Cecil Field, including Lake Fretwell, Lake Newman, Lake Wright, Lake Yellow Water, and Lake Burrel, and numerous creeks, as well as wetland areas with standing water, capable of supporting fish. Fish resources in the impoundments include large mouth bass, red ear sunfish, warmouth perch, channel catfish, bullhead catfish. Channel catfish are found in lake impoundments and creeks and rivers feeding lakes.

Exposure Evaluation and Public Health Implications

Current and Future Exposure to Chemical Contaminants in Lake Fretwell Fish

Lake Fretwell, located in the western portion of the Main Station, was created by damming Rowell Creek. The northern and western parts of the base drain to Lake Fretwell and Rowell Creek, which ultimately discharges to Sal Taylor Creek. Sal Taylor Creek continues off-base to the south and eventually drains to the St. Johns River. In the past, the Lake Fretwell was stocked by NAS Cecil Field for recreational fishing. Lake Fretwell is the only on-base lake where fish were sampled.

In February 1995, fishing restrictions were placed on Lake Fretwell after sampling results indicated PCB and pesticide contamination in lake sediments (NAS Cecil Field IRP, 1996a). A subsequent investigation was conducted to determine if fish tissue was contaminated and whether consumption of fish from the lake posed an unacceptable health risk (U.S. EPA, 1995a). The results of the investigation led the Florida Department of Health and Rehabilitative Services (HRS) to issue a Health Advisory for fish establishing a consumption rate of two 8-ounce servings of Lake Fretwell fish per month (Florida DEP, Undated). However, it was subsequently determined that the fish samples may not have been representative of game fish contaminant concentrations; therefore, additional fish were collected and analyzed by the Navy in January 1997.

The 1997 fish sampling event was designed to generate an optimum data set for drawing conclusions about the public health risks associated with eating fish from Lake Fretwell. Forty-seven adult fish, belonging to the popular game fish species, were caught and the fillets analyzed for PCBs, pesticides, and mercury. The Navy estimated cancer and non-cancer health risks for four different potential fishing populations using standard EPA risk assessment methodology; recreational fisherman, avid fisherman, subsistence fisherman, and fisherman consuming fish according to ingestion rates and frequency defined by the Florida HRS as typical of fishers in Florida. The risk evaluation assumed that 50% of all fish consumed by an individual were caught from Lake Fretwell. Analysis of the 1997 fish tissue data indicated that consumption of fish from Lake Fretwell did not pose a health risk to people. (ABB-ES, 1997b).

There are not currently enough fish in Lake Fretwell to feed those with diets of fish at subsistence or recreational levels. Other lakes are believed by stakeholders to be upgradient of possible source areas. Nevertheless, the lack of available fish in Lake Fretwell does not support eating fish at subsistence (e.g., eating fish a few times a week) or recreational consumption levels (e.g., eating fish a few times a month) and therefore, contaminants would be below levels of health concern.

Possible Contaminant Sources

The 1997 sampling results demonstrated that Lake Fretwell is safe for recreational fishing use. The multiple possible sources of contamination to Lake Fretwell include:

References: ABB-ES, 1994a ; ABB-ES, 1997c.

Some site-specific sources of mercury used, stored, or disposed at NAS Cecil Field include the following: paints, calibration gauges, batteries, and munitions (e.g., mercury fulminate is an initiating explosive that may be used as either a primer or a detonator (Department of the Navy. 1969). Additionally, EPA's Mercury Report to Congress shows the Jacksonville area with a moderate mercury deposition (i.e., 5-10 µg/m²) (EPA, 1997a).

Besides mercury, when NAS Cecil Field was in operation, many fuel spills - some quite large- ran off into creeks and streams. The contaminants from those spills could have included lead, fuels, and possibly other chemicals. Additionally, small impoundments (lakes and ponds) near old firing ranges and the gunnery school have not been sampled and lead and explosives possibly present in soil could impact those waters.

Future Uncertainty of Fish Contamination

If future use of the property includes expanding or creating new lakes, a review of the remaining contaminant locations and migration information should be conducted to determine if the lakes could become contaminated.

The Navy has evaluated a number of areas on the Main Base and Yellow Water Weapons Area where explosives and ordnance may have been located. At least ten primary areas were identified with unexploded ordnance (UXO). The type of ordnance found was generally smaller, less powerful rounds that require much force to cause them to explode. However, more powerful, 20 mm rounds and rocket warheads, were also found in one area on the Main Base (PSC 18 - Ammunition Disposal Area). A 500-pound high explosive blast and fragmentation bomb (inert) was found at site 15. Because the more powerful munitions were found in a creek (Sal Taylor Creek), people should use caution in waterways, ponds, lakes, and wetlands as those areas have not been fully investigated. The Navy also used at least four off-base areas during the WWII era for bombing ranges. These areas have been identified by the Army as formerly used defense sites. Those areas are currently developed. No UXO investigations have taken place there.

UXO investigations do not find all UXO items. UXO in waterways and wetlands are extremely unlikely to be discovered as are bulk explosives or any UXO buried below two meters.

The Navy should coordinate with the Army Corps of Engineers and new tenants to ensure the proper program provides public education on the locations and hazards associated with disturbing UXO. Institutional controls (i.e., no digging) may be needed in multiple areas. The Navy should verify emergency phone numbers and reporting information and provide clearing and reporting procedures to residents, developers, utility contractors, and municipalities before people dig or excavate in UXO locations.

Background and Land Use

Several activities in the NAS Cecil Field mission used or stored munitions and explosives including: training ranges for aircraft bombing, small arms firing ranges, and explosive and munition storage. After construction of NAS Cecil Field in 1941, the Navy used the base for flight training operations during WWII (Hardin Lawson, 1999). At least four bombing ranges (now off-base) were used until 1947 for training missions (U.S. COE, 2000). Part of the training mission included small arms firing ranges. Munitions storage in storage bunkers was also a part of the mission here.

Exposure Evaluation and Public Health Implications

In 1994, the Navy conducted geophysical surveys in several areas on the Main Base and Yellow Water Weapons Area to locate possible unexploded ordnance (UXO). Excavation of suspect areas identified by the surveys was also performed. The UXO survey areas were identified based on records search, aerial photograph review, and interviews with Navy personnel (Harding Lawson, 1999).

At least ten primary UXO areas were identified on base. The type of munitions found was generally smaller, less powerful rounds that require much force to cause them to explode. However, more powerful, 20 mm rounds and rocket warheads were also found in one area on the Main Base (PSC 18 Ammunition Disposal Area near Sal Taylor Creek). Because the more powerful munitions were found in a creek, people should use caution in waterways, lakes, ponds, and wetlands as those areas have not been fully investigated. ATSDR's review of the available information shows that approximately 3-4% of the base has been geophysically investigated and those investigations covered up to four feet deep.

The Navy also used at least four off-base areas during the WWII era for bombing ranges. Those areas are currently developed, and no UXO investigations have taken place there.

A summary of ATSDR's review of the available documents referencing ordnance or explosives is provided in the table below. The on-base locations are on Figure 10. More information on the off-base area can be found at the bibliography of bombing ranges listed with the References.

III. COMMUNITY HEALTH CONCERNS

ATSDR briefed the NAS Cecil Field Restoration Advisory Board (RAB) in 1997 and 1998 on our intent to complete a public health assessment and solicited comments and concerns from those attending. No concerns were expressed by the people present. ATSDR also phoned the RAB Community Co-Chair who confirmed the same issues we have identified (groundwater, lead in soil, and UXO) and on the past use of radioactive materials. ATSDR conducted interviews of local, state, and other federal government officials to identify any community health concerns. During these interviews, no additional community health concerns were brought to our attention.

Did NAS Cecil Field use, store, or dispose of radioactive materials on-base? Could reuse in those area be harmful to people's health?

A complete radiological survey of the entire base was not accomplished. ATSDR currently has no indication that high-level radioactive material remains on NAS Cecil Field. Some low-level radiation may still be present in landfills from past disposal of dials, etc. ATSDR recommends that a re-evaluation of all information, including the evaluation of data gaps, be part of the Superfund Comprehensive Five Year Review.

If you have concerns you would like to relay to ATSDR, please direct them to the following address.

Program Evaluation, Records, and Information Services Branch
Re: NAS Cecil Field
ATSDR, Division of Health Assessment and Consultation
1600 Clifton Road, MS E-56
Atlanta, GA 30333

Questions may also be directed to Robert Safay, the ATSDR senior regional representative in Region 4, at 404-562-1782 or to the ATSDR information line at 888-42ATSDR or 888-422-8737. Please mention that you are calling about NAS Cecil Field.

A. ATSDR Child Health Initiative

ATSDR's Child Health Initiative recognizes that the unique vulnerabilities of infants and children demand special emphasis in communities faced with contamination of their water, soil, air, or food. Children are at greater risk than adults from certain kinds of exposures to hazardous substances emitted from waste sites and emergency events. They are more likely to be exposed because they play outdoors and they often bring food into contaminated areas. They are shorter than adults, which means they breathe the dust, soil, and heavy vapors close to the ground. Children are also smaller, resulting in higher doses of chemical exposure per body weight. The developing body systems of children can sustain permanent damage if toxic exposures occur during critical growth stages. Most importantly, children depend completely on adults for identifying behaviors and situations that may place their health at risk and for access to medical care (ATSDR, 1998).

Conclusions about Child Health at NAS Cecil Field

ATSDR evaluated the likelihood for children living on-base or in the community around NAS Cecil Field to be exposed to base contaminants at levels of health concern. ATSDR identified one current and one future scenario and two situations in the past in which children may have been exposed to lead at the NAS Cecil Field. The first population is, in the future, children may play on the unremediated parts of Site 15 in the Yellow Water Weapons Area (YWWA). The second population is those children who attended Building 24 Day Care operations at the base. The third population are children who lived in base housing. The 1995 surveys determined that Base Officer Family Housing and Base Enlisted Housing units have lead-based painted surfaces. These situations are discussed in greater detail within their corresponding section headings in the body of the document. Plus, might be better to put in list form rather than sentence form, like:

IV. HEALTH OUTCOME DATA

ATSDR conducts a review of existing health outcome data (e.g., birth and death certificates, birth defects registries, cancer registries, etc.), when available, if people have been exposed to site contaminants in concentrations possibly posing a public health hazard or if the community has concerns related to specific health outcomes. The evaluation of health outcome data may give a general picture of the health of a community, or it may confirm the presence of excess disease or illness in a community. However, elevated rates of a particular disease may not necessarily be caused by hazardous substances in the environment. Other factors such as personal habits, socioeconomic status, and occupation, also may influence the development of disease. In contrast, even if elevated rates of disease are not found, a contaminant may still have caused illness or disease.

At NAS Cecil Field, ATSDR did not review health outcome data because records were not available or the exposed population was too small to evaluate the trends of adverse health effects. For on-base exposure to lead, records were not available since routine testing was not done. Without blood level data at the time of exposure, ATSDR cannot verify exposure to lead in the soils and paint. Furthermore, examining current blood samples for lead will not identify past exposure because the half-life of lead in blood is approximately 32 days, in soft tissue 40 days, and in bone approximately 27 years. Blood and soft tissue lead levels will likely fall after exposure ceases with slow replenishment from the bone. However, the much higher half-life in blood would keep blood lead levels low. Therefore, examining current blood levels will not provide information about past exposure to lead. Further, examining current lead levels in bone would not provide exposure information about a single source, such as lead in soils, since bone lead levels represent a lifetime of exposure from many sources. Lead is prevalent in the environment. Since troop rotations were five to nine years and the houses have been vacant for two years, people in the houses could have been exposed before they moved to NAS Cecil Field or after. Therefore, current blood lead data would provide information about lead exposure from all sources and not just base housing or the day care facility.

V. SUMMARY OF CONCLUSIONS AND RECOMMENDATIONS

VI. PREPARERS OF REPORT

This report was prepared under the direction and supervision of the following individuals:

Charles Grosse, M.S., REM
Environmental Health Scientist
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation
Agency for Toxic Substances and Disease Registry

Diane Jackson
Chief, Defense Facilities Section B
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation
Agency for Toxic Substances and Disease Registry

Carole Hossom
Environmental Health Scientist
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation

Assistance Provided by:

Aimee Tucker
Research Assistant
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation

Archana Joshi
Research Assistant
Federal Facilities Assessment Branch
Division of Health Assessment and Consultation

VII. REFERENCES

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ABB-ES. 1995a. Asea Brown Boveri Environmental Services, Inc. NAS Cecil Field. Base Realignment and Closure Environmental Baseline Survey Report, Addendum C, 103rd Street Jet Fuel Pipeline. August 1995.

ABB-ES. 1996b. Asea Brown Boveri Environmental Services, Inc. NAS Cecil Field. Unexploded Ordnance Survey Report for Naval Air Station ,Cecil Field, Jacksonville Florida: Prepared for Southern Division , Naval Facility Engineering Command.

ABB-ES. 1997a. Asea Brown Boveri Environmental Services, Inc. NAS Cecil Field. Remedial Investigation. Operable Unit 5, Sites 14 and 15. Jacksonville, Florida. October 1997.

ABB-ES. 1997b. Asea Brown Boveri Environmental Services, Inc. NAS Cecil Field. Draft Lake Fretwell Fish Sampling Report. June 26, 1997.

ABB-ES. 1997c. Asea Brown Boveri Environmental Services, Inc. NAS Cecil Field. Lake Fretwell Ecological Risk Assessment Presentation Summary.

AFCEE. 1999. Air Force Center for Environmental Excellence, Pro_Act Fact Sheet TI#19206 Petroleum Fuels: Basic Composition and Properties. February 1999.

ATSDR. 1992a. Agency for Toxic Substances and Disease Registry. Impact of Lead-Contaminated Soil on Public Health. U.S. Department of Health and Human Services.

ATSDR. 1998a. ATSDR Child Health Initiative: About ATSDR's Child Health Initiative. Accessed January, 1998 at http://www.atsdr.cdc.gov/.

ATSDR. 1999a. Toxicological Profile for Lead (Update), Atlanta, GA. July.

ATSDR. 2001a. Agency for Toxic Substances and Disease Registry. Personal communication with EPA's Dr. Ted Simon.

ATSDR. 2001b. Landfill gas primer: an overview for environmental health professionals. Atlanta: US Department of Health and Human Services. Available at: URL: <http://atsdr1.atsdr.cdc.gov/HAC/landfill/html/intro.html>. (Accessed August 2002).

Arthur Andersen LLP. 1996. Prepared for: The Cecil Field Development Commission. Prepared by: NASCF Base Reuse Plan (Final). February

Bechtel. 1996. Bechtel Environmental, Inc. Addendum, Remedial Action Plan for the NAS Cecil Field Jet Fuel Line at 103rd Street. Jacksonville, Florida. July 1996.

BRAC (Base Realignment and Closure) Environmental Fact Sheet, Spring, 1999. <http://www.dtic.mil/envirodod/Policies/BRAC/BCP_factsheet_final.pdf >

CDC. 1991a. Centers for Disease Control and Prevention. U.S. Department of Health and Human Services (DHHS). Preventing Lead Poisoning in Young Children. October, 1991.

City of Jacksonville. 2000. Cecil Field Development Office. Website accessed August 2000. (http://www.coj.net/Departments/Jacksonville+Economic+Development+Commission/Cecil+Commerce+Center/Land+Uses.htm )

Connecticut DEP (Department of Environmental Protection). Reference Table A, DEP-PERD-EHR-FS-100, Volatile Organic Substances to Identify Significant Environmental Hazard Notification Threshold Concentrations including those for Volatile Organic Compounds Beneath a Building for both groundwater concentrations and for Soil Vapor Concentrations. This table may be found at <http://www.dep.state.ct.us/wtr/remediation/98-134/134thresholdA.htm >

Crews. J. 1998. Correspondence from J. Lloyd Crews (NAS Cecil Field) to J. Corkran (ATSDR). Responses to ATSDR correspondence dated October 24, 1997. January 26, 1998.

Delaney, K.F. 1996. Response from K. F. Delaney, Rear Admiral, U.S. Navy to Congressional Request from Honorable Stephen R. Wise, Representative, District 13 (May 23, 1996). June 26, 1996.

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Florida DEP (Department of Environmental Protection). Undated. Memorandum. NAS Cecil Field Fish Sampling: April 24 - 27, 1995.

Florida Fish and Wildlife Conservation Commission. 2000. Health Advisories for Mercury in Florida Fish, 1989-1996. August 2000 <http://www.floridaconservation.org/fishing/health.html >

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Harding Lawson Associates. 1999. Unexploded Ordnance Report. Naval Air Station Cecil Field, Jacksonville, FL. May 1999.

Hillford, K., J. 1996. Groundwater Flow in the Surficial Aquifer System and Potential Movement of Contamination form selected Waste-Disposal Sites at Cecil Field Naval Air Station,. Jacksonville, Florida. U.S. Geological Survey, Administrative Release, prepared in cooperation with Southern Division, Naval Engineering Command, U.S. Navy, Tallahassee, Florida.

Jamal. 1990. Jamal & Associates, Inc. Contamination Assessment Report: 103rd Street Jet Fuel Line. May 1990.

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Lancaster, D. 1997. Personal communication with Diane Lancaster, Environmental Programs, NAS Jacksonville. May 27, 1997.

NAS Cecil Field Installation Restoration Program (IRP). 1996a. Update on Fishing Restrictions at Lake Fretwell.

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Bibliography of Information on Off-Base Bombing Ranges

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