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NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance.
Support for this project was provided by the U.S. Navy under Contract No. N47408-97-C-0234.
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Committee on Environmental Remediation at Naval Facilities
EDWARD J. BOUWER, Chair,
Johns Hopkins University, Baltimore, Maryland
GENE F. PARKIN, Vice-Chair,
University of Iowa, Iowa City
MICHAEL J. BARCELONA,
University of Michigan, Ann Arbor
LAWRENCE W. BARNTHOUSE,
LWB Environmental Services, Inc., Oak Ridge, Tennessee
JOHN C. CHAMBERS,
Arent, Fox, Kintner, Plotkin & Kahn, Washington, D.C.
FRANCIS H. CHAPELLE,
U.S. Geological Survey, Columbia, South Carolina
NEIL R. GARRETT,
Oklahoma Corporation Commission, Oklahoma City
FRANKLIN W. SCHWARTZ,
Ohio State University, Columbus
LENNY M. SIEGEL,
Center for Public Environmental Oversight, San Francisco State University, California
ALICE D. STARK,
New York State Department of Health, Albany
SAMUEL J. TRAINA,
Ohio State University, Columbus
ALBERT J. VALOCCHI,
University of Illinois, Urbana-Champaign
BRIAN J. WAGNER,
U.S. Geological Survey, Menlo Park, California
CLAIRE WELTY,
Drexel University, Philadelphia, Pennsylvania
JEFFREY J. WONG,
California Environmental Protection Agency, Sacramento
Staff
LAURA J. EHLERS, Study Director
KIMBERLY A. SWARTZ, Project Assistant
Water Science and Technology Board
HENRY J. VAUX, JR., Chair,
University of California, Riverside
CAROL A. JOHNSTON, Vice-Chair,
University of Minnesota, Duluth
RICHELLE ALLEN-KING,
Washington State University, Pullman
JOHN S. BOYER,
University of Delaware, Lewes
JOHN BRISCOE,
The World Bank, Washington, D.C.
DENISE FORT,
University of New Mexico, Albuquerque
EVILLE GORHAM,
University of Minnesota, St. Paul
CHARLES D. D. HOWARD,
Charles Howard & Associates, Victoria, British Columbia, Canada
WILLIAM A. JURY,
University of California, Riverside
WILLIAM M. LEWIS, JR.,
University of Colorado, Boulder
GARY S. LOGSDON,
Black & Veatch, Cincinatti, Ohio
RICHARD G. LUTHY,
Carnegie Mellon University, Pittsburgh, Pennsylvania
JOHN W. MORRIS,
J. W. Morris, Ltd., Arlington, Virginia
CHARLES R. O'MELIA,
Johns Hopkins University, Baltimore, Maryland
PHILIP A. PALMER,
DuPont Engineering, Wilmington, Delaware
REBECCA T. PARKIN,
The George Washington University, Washington, D.C.
JOAN B. ROSE,
University of South Florida, St. Petersburg
ERIC F. WOOD,
Princeton University, New Jersey
Staff
STEPHEN D. PARKER, Director
JACQUELINE A. MACDONALD, Associate Director
CHRIS ELFRING, Senior Staff Officer
LAURA J. EHLERS, Staff Officer
JEFFREY W. JACOBS, Staff Officer
MARK GIBSON, Research Associate
JEANNE AQUILINO, Administrative Associate
ANITA A. HALL, Administrative Assistant
ELLEN DE GUZMAN, Senior Project Assistant
KIMBERLY A. SWARTZ, Project Assistant
Commission on Geosciences, Environment, and Resources
GEORGE M. HORNBERGER, Chair,
University of Virginia, Charlottesville
PATRICK R. ATKINS,
Aluminum Company of America, Pittsburgh, Pennsylvania
JERRY F. FRANKLIN,
University of Washington, Seattle
B. JOHN GARRICK,
PLG, Inc., Newport Beach, California
THOMAS E. GRAEDEL,
Yale University, New Haven, Connecticut
DEBRA KNOPMAN,
Progressive Foundation, Washington, D.C.
KAI N. LEE,
Williams College, Williamstown, Massachusetts
JUDITH E. MCDOWELL,
Woods Hole Oceanographic Institution, Massachusetts
RICHARD A. MESERVE,
Covington & Burling, Washington, D.C.
HUGH C. MORRIS,
Canadian Global Change Program, Delta, British Columbia
RAYMOND A. PRICE,
Queen's University at Kingston, Ontario, Canada
H. RONALD PULLIAM,
University of Georgia, Athens
THOMAS C. SCHELLING,
University of Maryland, College Park
VICTORIA J. TSCHINKEL,
Landers and Parsons, Tallahassee, Florida
E-AN ZEN,
University of Maryland, College Park
MARY LOU ZOBACK,
U. S. Geological Survey, Menlo Park, California
Staff
ROBERT M. HAMILTON, Executive Director
GREGORY H. SYMMES, Assistant Executive Director
JEANETTE SPOON, Administrative & Financial Officer
SANDI FITZPATRICK, Administrative Associate
MARQUITA SMITH, Administrative Assistant/Technology Analyst
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The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. William A. Wulf are chairman and vice-chairman, respectively, of the National Research Council.
Preface
"I have yet to see any problem, however complicated, which, when you looked at it in the right way, did not become still more complicated."
Poul Anderson, New Scientist (London, Sept. 25, 1969)
Under the auspices of the Water Science and Technology Board (WSTB), the National Research Council (NRC) established the Committee on Environmental Remediation at Naval Facilities in 1997. The NRC chose 15 experts to serve on the committee for the purpose of studying issues associated with the remediation of contaminated soil, sediment, and ground water at Navy facilities. The committee was initially established to provide guidance on the following three main areas pertinent to characterization and remediation of Navy facilities:
- Risk-Based Methodologies. What are the strengths and weaknesses of risk-based methodologies for cleaning up contaminated sites, including (but not limited to) the Risk-Based Corrective Action standard (RBCA) devised by the American Society for Testing and Materials? How should such a methodology be implemented at Navy facilities?
- Innovative Technologies. What innovative technologies are appropriate to assist the cleanup efforts at Navy facilities?
- Long-Term Monitoring. For Navy facilities that will not be able to meet regulatory standards for cleanup in the near future, what guidance can be given for establishing and maintaining long-term monitoring at such sites?
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The project was supported by the U.S. Navy with the stipulation that the three study topics listed above would be funded incrementally. This report reflects the outcome of the first year of committee deliberations that addressed risk-based methodologies (Task 1 above). The committee saw as its goals to provide a review of existing risk-based methodologies, a description of their strengths and weaknesses, and a set of recommendations on how the Navy should proceed.
The Navy did not ask the committee to review methods they are currently using to comply with the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA). The committee was also not asked to review the Relative Risk Site Evaluation Framework, which is a risk-based framework for requesting and distributing cleanup funds in the military. Consequently, the committee did not view as its role the task of suggesting improvements to the approach the Navy is currently using and did not deliberate on how to improve the CERCLA process. The committee discussions focused on risk-based methods not currently being used by the Navy that may offer cost and time savings. Navy personnel indicated that they were interested in a methodology that could encompass all of their sites, from petroleum underground storage tanks to more recalcitrant types of contamination.
The committee undertook a thorough evaluation of the use of risk-based methodologies for managing current soil and ground water cleanup efforts. During four meetings held over nine months, the committee gathered information from expert presentations to the committee, field trips to three Navy facilities, and dialogue with Navy personnel. The committee also relied on the in-depth experience and expertise of the committee members, who are recognized leaders in environmental engineering, hydrogeology, soil science, geochemistry, ground water modeling, statistical sampling of ground water, toxicology, risk assessment, law, public health, and public participation/stakeholder involvement. Although the committee members represented a diversity of opinions and backgrounds, we were able to reach a consensus on almost all issues. The quote from Poul Anderson above is an accurate reflection of the experiences of this committee. The Navy, like most if not all responsible parties, would like to see a simpler solution to its cleanup problems. However, the committee agreed that site cleanup and maintaining an acceptable risk at a site are both complex and difficult issues. The uncertainties associated with leaving contamination in place and the uncertainties in source, pathway, and receptor characterization led the committee to develop eleven criteria that a risk-based approach must fully satisfy to address Naval hazardous waste sites. The document that follows is the culmination of our initial efforts to help the Navy solve problems in its Environmental Restoration Program. Although the committee discussed the additional time and costs that would be necessary to implement its recommendations, these issues were not quantitatively evaluated.
This report has been reviewed, in accordance with NRC procedures, by individuals chosen for their expertise and broad perspectives on the issues addressed herein. These independent reviews provided candid and critical comments that assisted the authors and the NRC in making the published report as sound as possible, and they ensured that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The content of the review comments and the draft manuscript remain confidential to protect the integrity of the deliberative process. The committee wishes to thank the following individu-
als for their participation in the review of this report and their many instructive comments: Patrick Atkins, Aluminum Company of America; Anthony Grey, New York State Department of Health; Theodore Henry, Community Health Assessment & Public Participation Center; Michael Kavanaugh, Malcolm Pirnie, Inc.; Paul Kostecki, University of Massachusetts at Amherst; Philip LaMoreaux, P. E. LaMoreaux and Associates, Inc.; Joel Massmann, University of Washington; and William Walsh, Pepper Hamilton LLP. While the individuals listed above have provided many constructive comments and suggestions, responsibility for the final content of this report rests solely with the authoring committee and the NRC.
Special thanks must go to several individuals who contributed to the committee's overall effort in so many ways. First, a great share of appreciation must go to Laura Ehlers, the NRC Staff Officer for this project. Laura put forth a great deal of effort in coordinating the committee meetings, gathering information, preparing copious minutes of the meetings, and reminding the committee members of their duties and responsibilities. Laura actively participated in the committee discussions, offered insightful comments and input, and demonstrated considerable editing skills in preparing and extensively rewriting significant sections of the report. We owe much of the credit for the success of this report to Laura. Second, much appreciation also goes to Jackie MacDonald. Jackie is the associate director of the WSTB and assisted the committee with this project by actively participating in the meetings, providing background details on the evolution of the study, and writing sections of the report. Jackie's positive feedback of the committee's progress during these past nine months is appreciated. Third, the committee extends its appreciation to Kim Swartz who, as project assistant, provided the essential administrative support associated with the committee effort. Fourth, the committee thanks Steve Eikenberry, director of the Environmental Restoration Division of the Naval Facilities Engineering Service Center, for his role as the Navy liaison. The committee benefited from Steve's insight into the problems and needs of the Navy with respect to environmental remediation. Fifth, I thank Gene Parkin who assisted me as vice-chair. Gene's attention to details, timeliness, and positive spirit are much appreciated.
Finally, I would like to thank the committee members, who devoted many long hours to this project. I have enjoyed immensely the opportunity to work with such a talented and articulate group of professionals. They provided a stimulating environment for addressing the study issues. I especially appreciate their willingness to spend time researching, writing, and revising their contributions. I believe the results of their efforts will provide useful guidance for some of the environmental restoration challenges of the Navy, which should also be relevant to a broader universe of sites and facilities.
EDWARD J. BOUWER, CHAIR
COMMITTEE ON ENVIRONMENTAL REMEDIATION OF NAVAL FACILITIES
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