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HomeMy WebLinkAbout06082026 City Council Laydown - City ManagerGOVERNOR MIKE DUNLEAVY 260608 CC Laydown - City Manager Department of Environmental Conservation DIVISION OF SPILL PREVENTION AND RESPONSE Contaminated Sites Program 43335 Kalifomsky Beach Rd., Ste. 11 Soldotna, AK 99669 Phone: (907) 262-5210 Fax: (907) 262-2294 www.dec.alaska.gov DEC File No: 2332.38.054 June 2, 2026 Jason Bickling City of Seward, Alaska PO Box 167 Seward, AK 99664-0167 jbickling@cityofseward.net Re: Decision Document: Former Seward Orphanage — Jessie Lee Home Cleanup Complete Determination Dear Mr. Bickling The Alaska Department of Environmental Conservation, Contaminated Sites Program (DEC) has completed a review of the environmental records associated with the Former Seward Orphanage — Jessie Lee Home located at 101 Benson Drive in Seward. Based on the information provided to date, it has been determined that the contaminant concentrations remaining on site do not pose an unacceptable risk to human health or the environment and no further remedial action will be required unless information becomes available that indicates residual contaminants may pose an unacceptable risk. This Cleanup Complete determination is based on the administrative record for the Former Seward Orphanage — Jessie Lee Home maintained by DEC. This decision letter summarizes the site history, cleanup actions and levels, and site closure conditions that apply. Site Name and Location: Former Seward Orphanage — Jessie Lee Home 101 Benson Drive Seward, AK 99664 DEC Site Identifiers: File No.: 2332.38.054 Hazard ID.: 27559 Name and Mailing Address of Contact Party: Jason Bickling City of Seward PO Box 167 Seward, AK 99664-0167 Regulatory Authority for Determination: 18 Alaska Administrative Code (AAC) 75 Mr. Jason Bickling June 2, 2026 City of Seward Site Description and Background The Jesse Lee Home orphanage in Seward was originally constructed in 1925 and consisted of two dormitory buildings (Goode and Jewel Halls) to house the children. In 1936, the Balto Building, with a kitchen and dining space, was constructed between the dormitories and connected by arcades. There were undocumented upgrades and repairs to the facilities over the years until the orphanage quit operating due to substantial damage to the facilities from the 1964 earthquake. The Goode Hall dormitory located on the adjacent lot was demolished shortly after the earthquake. In the spring of 2021, the City of Seward demolished the remaining structures. During a site visit in 2020, areas of contamination were discovered including floor drains, above ground storage tanks, the presence of black tar and petroleum staining on the concrete around the building boilers. Analytical samples collected from soil confirmed petroleum contamination and mercury levels above DEC cleanup levels. The sources of contamination were suspected to be historic releases of fuel oil and bunker C from storage tanks and piping related to the boiler systems. The property parcel is approximately 1.66 acres (Figure 1) and is accessed from Phoenix Rd or Benson Drive. There are no nearby sources of surface water. Contaminants of Concern During the site investigation and cleanup activities at this site, samples were collected from soil and analyzed for diesel range organics (DRO), residual range organics (RRO), volatile organic compounds (VOCs), polycyclic aromatic hydrocarbons (PAHs), polychlorinated biphenyls (PCBs), and Resource Conservation and Recovery Act (RCRA) total metals. Based on these analyses, the following contaminants were detected above the applicable cleanup levels and are considered Contaminants of Concern (COCs) at this site: • DRO • Naphthalene • Benzene • Mercury Cleanup Levels Soil cleanup levels applicable to the site are the most stringent Method 2 Migration to Groundwater (MTG) and human health (HH) cleanup levels for the over 40-inches of precipitation climate zone found in 18 AAC 75.341(c), Table B 1 and 18 AAC 75.341(d), Table B2. Groundwater was not encountered and is considered an incomplete pathway. Table 1— Aubroved Cleanup Levels Contaminant Soil MTG (mg/kg) Soil HH (mg/kg) DRO 230 8,250 Naphthalene 0.038 20 Benzene 0.022 8.1 Mercury 0.36 14 Notes: 1. mg/kg = milligrams per kilogram 2. µg/L = micrograms per liter 2 Mr. Jason Bickling June 2, 2026 City of Seward Characterization and Cleanup Activities During a site evaluation in 2020, several environmental concerns were identified including floor drains, boilers, aboveground storage tanks (ASTs), improperly abandoned fuel lines, staining on soil and concrete AST slabs, and a thick black tar present in the AST containments and around the old boilers. In 2021, underground utilities and floor drains were exposed and traced, and ASTs and fuel lines were drained and removed. The termination point for the floor drain piping could not be determined and was plugged with spray foam. The concrete was segregated into visually contaminated and non -contaminated piles for further waste characterization. Debris, exposed fuel pipes, clumps of tar and petroleum staining were encountered during the investigation. Soil samples from several areas of concern and one concrete sample were collected and analyzed for VOCs, DRO, RRO, and PAHs. Additional analysis included PCBs (for the concrete sample) and RCRA metals (for the concrete and tar soil sample). Arsenic and chromium were also above cleanup levels but at concentrations typically seen in Alaskan soils and are considered representative of background conditions. Concrete Summary One sample was collected in 2021 from visibly contaminated concrete removed from the Balto Building AST containment area. DRO and RRO were reported at concentrations above the migration to groundwater cleanup levels. PCBs were not detected and below the RCRA characteristic hazardous waste limits (analyzed by the toxicity characteristic leaching procedure or TCLP). All visibly contaminated concrete was containerized and transported to Columbia Ridge Landfill in 2022. Concrete with no odor, tar, or petroleum stains was used for backfill material in the building excavations. Jewel Building Summary During the 2021 demolition activities, one analytical soil sample was collected at the Jewel Building near an old boiler found buried in the southeast corner of the basement. Naphthalene, arsenic, and chromium were the only analytes detected above DEC cleanup levels. Soil with naphthalene contamination was excavated in 2022. The old boiler and approximately 3 cubic yards of burnt material was removed along with a concrete cradle for the boiler. Excavation confirmation soil samples were collected from the sidewalls and base and analyzed for DRO, RRO, VOCs, and PAHs. The excavation was lined and backfilled. All analytical results were below DEC cleanup levels for contaminants of concern. Groundwater was not encountered during the excavation. There was no evidence of contamination on the concrete cradle, and it was crushed and used as backfill. Balto Building Summary In 2021, two analytical soil samples were collected in the basement. One sample was collected beneath a fuel line to the boiler where a black tar -like material was present and analyzed for GRO, DRO, RRO, VOCs, PAHs, and RCRA metals. The other sample was collected beneath buried debris at a depth of 36 inches and analyzed for the same contaminants except metals. Concentrations of DRO, arsenic, mercury, and benzene were reported above cleanup levels in the tar -stained soil sample. DRO was the only contaminant reported above cleanup levels in the sample from beneath the debris. In June 2022, soil excavation was conducted within the footprint of the AST containment area, the fuel piping runs, and the boiler area to remove tar, contaminated soil, and any contaminated construction debris. Approximately 50 cubic yards of soil and debris were excavated to a depth of 2 to 3 feet, guided by field screening and visual evidence. An underlying soil that appeared to be layered marine deposition was encountered in several areas during the excavation. Confirmation analytical results were collected from the 3 Mr. Jason Bickling June 2, 2026 City of Seward north and west walls and base of the excavation and analyzed for DRO, RRO, VOCs, PAHs, and RCRA metals. Contaminants were not detected except DRO, which was slightly above the cleanup level in the western section of the northern wall. The analytical results from the base samples confirmed that contamination remained and additional cleanup was necessary. Additional soil was removed in October 2022 from the north and western walls and base of the excavation where contamination was documented in June. The excavation depth was extended to approximately 17 feet below ground surface, to the previously identified marine depositional layer. All building debris that had been stockpiled in the footprint of the building was removed and the excavation continued until field screening indicated that clean limits may have been reached. A total of 216 tons of material was removed from the Balto Building AST and boiler area footprints and sent to the Columbia Ridge Landfill in Oregon. Base and sidewall confirmation soil samples were collected from the highest field screening results and were analyzed for DRO, RRO, VOCs, PAHs, and RCRA metals. Sample results from the northwest corner of the excavation (base and sidewalls) detected concentrations of DRO and naphthalene above the migration to groundwater cleanup levels. All other contaminants were below cleanup levels. Groundwater was not encountered during the excavation. In July 2024, two test pits were advanced from the base of the former excavation (17 ft below ground surface (bgs)) in the areas of documented contamination (2023 results). Visibly contaminated soil was encountered in both test pits at about 21 ft bgs. Approximately 3 cubic yards of soil was removed from each test pit to a depth of 25 ft bgs. Soil confirmation analytical samples from the base of each pit documented DRO (maximum 1,840 g/kg) and naphthalene (0.174 mg/kg) above migration to groundwater cleanup levels. The excavated soil was characterized and transported to a soil treatment facility with DEC approval. Groundwater was not encountered during the site investigation. Soil borings were advanced in the test pit locations in October 2024 in an attempt to vertically delineate soil contamination and characterize groundwater. Samples were collected from the highest field screening result and analyzed for DRO and VOCs. The extent of DRO contamination was not reached at the base of the borings (65 feet bgs) and groundwater was not encountered. Naphthalene was below the DEC cleanup level. In October 2025, one soil boring was advanced in the area with the highest contamination (former 2024 boring SB02) to a depth of 100 ft.bgs. Soils were screened using the heated head space method and analytical samples were collected at the highest field screening result (75 ft bgs) and the base of the borings (two samples; 95 and 99 ft bgs.). Samples were analyzed for DRO and RCRA metals. DRO remained above the cleanup level at 75 ft. bgs. but was below at 95 and 99 ft. bgs. Other than arsenic (determined to be background), metals were not detected above cleanup levels. Groundwater was not encountered in the investigation. Contaminated soil from the 2024 and 2025 borings was containerized and characterized. The soil was transported to a soil treatment facility in 2026 with DEC approval. Remaining Contamination The maximum concentrations of contaminants remaining in the soil at the site are shown in Table 2. These concentrations are all below human health but above migration to groundwater cleanup levels. Groundwater was not encountered at the site. The sample location referred to in Table 2 is shown in Figure 2. 4 Mr. Jason Bickling City of Seward Table 2 — Maximum Contaminant Concentrations Remainini in Soil June 2, 2026 Contaminant Soil (mg/kg) Sample Location Date Sampled DRO 1,840 24CSSWDSO-TP02-09 7/3/2024 Naphthalene 0.174 24CSSWDSO-TP02-09 7/3/2024 Cumulative Risk Evaluation Pursuant to 18 AAC 75.325(g), when detectable contamination remains on -site following a cleanup, a cumulative risk determination must be made that the risk from hazardous substances does not exceed a cumulative carcinogenic risk standard of 1 in 100,000 across all exposure pathways and does not exceed a cumulative noncarcinogenic risk standard at a hazard index (HI) of 1 across all exposure pathways. Based on a review of the environmental record, DEC has determined that residual contaminant concentrations meet the human health cumulative risk criteria for residential land use. Exposure Pathway Evaluation Following investigation and cleanup at the site, exposure to the remaining contaminants was evaluated using DEC's Exposure Tracking Model (ETM). Exposure pathways are the conduits by which contamination may reach human or ecological receptors. ETM results show all pathways to be one of the following: De Minimis Exposure, Exposure Controlled, or Pathway Incomplete. A summary of this pathway evaluation is included in Table 2. Table 3 — Exposure Pathway Evaluation Pathway Result Explanation Surface Soil Contact De Minimis Exposure Contamination is not present in surface soil (0 to 2 feet below ground surface). Subsurface Soil Contact De Minimis Exposure Contamination remains in the subsurface below human health and ingestion levels in 18 AAC 75.341, Tables B1 and B2. Inhalation — Outdoor Air De Minimis Exposure Contaminants are not volatile enough to reach outdoor air. Inhalation — Indoor Air (vapor intrusion) De Minimis Exposure Groundwater is not present from the surface to 100 ft below the ground surface. Groundwater Ingestion Pathway Incomplete Groundwater was not encountered at the site. Soil contamination above migration to groundwater cleanup levels was documented to 75 ft below ground surface. Site investigation took place to 100 ft. below ground surface where contamination was below MTG cleanup levels. Surface Water Ingestion Pathway Incomplete There are no nearby surface water bodies Wild and Farmed Foods Ingestion Pathway Incomplete Contaminants of concern do not have the potential to bioaccumulate in plants or animals. Exposure to Ecological Receptors Pathway Incomplete There are no ecological receptor concerns. 5 Mr. Jason Bickling June 2, 2026 City of Seward Notes: 1. "De Minimis Exposure" means that, in DEC's judgment, the receptors are unlikely to be adversely affected by the minimal volume or concentration of remaining contamination. 2. "Pathway Incomplete" means that, in DEC's judgment, the contamination has no potential to contact receptors. 3. "Exposure Controlled" means there is an IC in place limiting land or groundwater use and there may be a physical barrier in place that prevents contact with residual contamination. DEC Decision Surface soil contamination at the site has been cleaned up to concentrations below the approved cleanup levels suitable for residential land use. Subsurface soil contamination is below cleanup levels protective of human health but above migration to groundwater cleanup levels to a depth of 75 ft. Groundwater was not encountered and therefore groundwater contamination was not documented. This site will receive a "Cleanup Complete" designation on the Contaminated Sites Database. DEC approval is required for movement or disposal of soil and/or groundwater subject to the Site Cleanup Rules, in accordance with 18 AAC 75.325(i). Please contact DEC for information about applicable regulations and requirements. A "site", as defined by 18 AAC 75.990 means an area that is contaminated, including areas contaminated by the migration of hazardous substances from a source area, regardless of property ownership. Movement or use of contaminated material in an ecologically sensitive area or in a manner that results in a violation of 18 AAC 70 water quality standards is prohibited. Furthermore, groundwater throughout Alaska is protected for use as a water supply for drinking, culinary and food processing, agriculture including irrigation and stock watering, aquaculture, and industrial use. Contaminated site cleanup complete determinations are based on groundwater being considered a potential drinking water source. If, in the future, groundwater from this site is to be used for other purposes, additional testing and treatment may be required to ensure the water is suitable for its intended use. This determination is in accordance with 18 AAC 75.380 and does not preclude DEC from requiring additional assessment and/or cleanup action if information indicates that contaminants at this site may pose an unacceptable risk to human health, safety, or welfare or to the environment. Informal Reviews and Adjudicatory Hearings A person authorized under a provision of 18 AAC 15 may request an informal review of a contested decision by the Division Director in accordance with 18 AAC 15.185 and/or an adjudicatory hearing in accordance with 18 AAC 15.195 — 18 AAC 15.340. See DEC's "Appeal a DEC Decision" web page https://dec.alaska.gov/commish/review-guidance/ for access to the required forms and guidance on the appeal process. Please provide a courtesy copy of the adjudicatory hearing request in an electronic format to the parties required to be served under 18 AAC 15.200. Requests must be submitted no later than the deadline specified in 18 AAC 15. If you have questions about this closure decision, please feel free to contact me at (907) 262-8200 or email at dawn.wilburn@alaska.gov. 6 Mr. Jason Bickling June 2, 2026 City of Seward Sincerely, 2:37TG--- Dawn Wilburn Project Manager cc: DEC, Division of Spill Prevention and Response, Cost Recovery Unit Andrea Carlson, DEC, andrea.carlson@alaska.gov 7 Mr. Jason Bickling City of Seward June 2, 2026 Figure 1. Location of the Former Seward Orphanage/Jesse Lee Home. 8 Mr. Jason Bickling City of Seward June 2, 2026 Figure 2. Location of the 2024 sample (24CSSWDSO-TP02-09) above the DEC cleanup level at 25 feet below ground surface. 9