HEALTH CONSULTATION
5th AND CLEVELAND INCINERATOR SITE
JACKSONVILLE, DUVAL COUNTY, FLORIDA
BACKGROUND AND STATEMENT OF ISSUES
The U.S. Environmental Protection Agency (EPA) plans on conducting a removal action to address long-term health threats associated with environmental contamination at the 5th and Cleveland Incinerator site in Jacksonville, Florida. EPA has requested that the Agency for Toxic Substances and Disease Registry (ATSDR) assess the immediate health threat at the site to determine if additional steps are required to protect public health prior to the removal action [1]. The EPA has provided ATSDR with sampling data collected during a Remedial Investigation (RI) conducted from March to September 2000. The RI was conducted to determine the extent of contamination from the past operation of a municipal incinerator at the site. The 5th and Cleveland Incinerator site is one of three sites that encompass the "Jacksonville Ash Sites." The other two are the Lonnie C. Miller Park and the Forest Street Incinerator [2].
From 1943 to 1969, the 5th and Cleveland site housed a municipal incinerator. Ash waste generated from the incinerator now covers approximately 36 acres, including most of the original 9 acre incinerator site [2]. The ash deposits are typically less than 2 feet thick, but ash deposits on the original site and Emmett Reed Park areas east, south, and west contain deposits up to 4 feet thick [2]. The site now includes a park, school, playground, basketball courts, and a baseball field. The surrounding community is primarily residential and commercial. The City placed one foot of clean fill over ash waste at the John E. Ford Elementary School located southeast of the site [2].
In December 1996, ATSDR, prepared a Health Consultation for the site assessing limited soil sampling data. ATSDR reviewed results from 14 samples collected from the site and concluded that lead was present in the soil at "levels of health concern," and that additional characterization of the contamination was required.
On March 15, 2001, ATSDR accompanied EPA on a tour of the site. Signs were posted in the area warning the public about lead contamination, and information was provided on measures to reduce exposure. Shredded tires were placed in playground areas to prevent direct contact with the ash-contaminated soil.
The EPA conducted an RI at the site from March to September 2000. As part of the RI for the 5th and Cleveland site, soil, and groundwater samples were collected. Samples were analyzed for a number of contaminants including metals, dioxin, and other organic constituents. A total of 267 soil borings and 7 groundwater monitoring well samples were collected as part of the RI. The population surrounding the community is served by a public water distribution system. It is not known if there are any private wells in the area that are being used a s a potable water source [3].
Sampling Results
Soil
Lead
Soil samples collected from the site and surrounding community showed extensive
lead contamination associated with ash waste (see figures 6-5, 6-6, and 6-7).
Lead was detected in the surface and subsurface soils at maximum concentrations
exceeding 2,000 mg/kg. EPA established a soil lead screening value of 400 milligrams
per kilogram (mg/kg) for the site. The combined area where surficial lead contamination
exceeded 400 mg/kg is approximately 54 acres.
Dioxin
The EPA performed screening analysis for 2,3,7,8-tetrachlorodibenzodioxin
toxicity equivalency (2,3,7,8-TCDD TEQ) on soil samples collected from the site.
All of the dioxin results were below the EPA action level of 1 nanogram per
kilogram (ng/kg) TCDD TEQ.
Groundwater
Lead concentrations were below the EPA screening value of 0.015 milligrams per liter (mg/l) in the groundwater monitoring wells. Subsurface soil samples collected from 1 foot below the visible ash did not show lead concentrations above the EPA screening value of 400 mg/kg indicating that significant leaching is not occurring at the site.
Blood Lead Screening
The Duval County Health Department has offered free blood lead screening for area residents. The purpose of the screening is to identify individuals, particularly children 12 months to 6 years of age, exceeding the Centers for Disease Control and Prevention (CDC) guideline of 10 micrograms per deciliter (ug/dl). If the CDC guidelines are exceeded, specific health followup actions are initiated. Test results to date have shown few blood lead levels exceeding the CDC guidelines. Blood lead levels among those tested were found to be at or below the established mean concentrations for Duval County and the U.S. [4]. In the few cases where the CDC guidelines were exceeded, a survey of the household revealed a potential source of exposure such as lead-based paint [4].
The operation of the 5th and Cleveland incinerator resulted in significant ash waste on site and in the surrounding community. Sampling was conducted to measure lead and other metals that can concentrate in ash. Dioxin and other complex organic compounds were also sampled since they can be present as a by-products of incinerated organic material. The health threat posed by these contaminants is dependent on the concentration, the amount of ash/soil ingested or inhaled, and the susceptibility of the population exposed. The most significant route of exposure to contaminated ash/soil at this site is from incidental ingestion. Since metals and dioxin are non-volatile, the inhalation route is of less concern and is limited to dust that may be swallowed following inhalation.
The population living in the area are served by a public water distribution system. It is not known if there are any private wells in the area that used as a potable water source. However, the groundwater at the site does not appear to be a concern since sampling has not shown any significant contamination in the soil below the ash line, nor has there been any significant leaching into the water table.
Lead
The RI indicated wide spread lead contamination in ash-contaminated surface and subsurface soils on site and in the surrounding community. The EPA has established a lead screening value of 400 mg/kg for high contact areas. This value is often used as a screening tool for residential areas where frequent contact with the soil can occur, and where there is not a sufficient vegetative cover. This value is designed to protect the most sensitive members of the population. EPA has a screening level of 1000 mg/kg for low contact areas such as commercial or industrial properties. Lead was detected in the surface soil at this site exceeding 2,000 mg/kg. Lead at these concentrations in the soil could result in elevated blood lead levels, particularly in children who are more likely to ingest larger amounts of contaminated soil while playing. Children in the 0-to-6 year age group are most susceptible since their developing nervous systems are particularly sensitive to the harmful effects of lead.
Some measures have been taken to reduce exposure to lead-contaminated soil at this site. For example, ground cover (shredded tires) have been placed in playground areas, clean fill has been placed at the John E. Ford Elementary School, and signs have been posted. In addition, voluntary blood lead testing has been offered to area residents. However, the wide spread contamination, particularly in residential areas around the site poses a concern. The EPA plans on conducting a cleanup action at the site. However, some exposure to lead may occur or be occurring prior to the cleanup action.
Although blood lead screening of residents in the area has not shown significant elevations among those tested, the testing has been available on a volunteer basis, and it is not clear that all the children residing in contaminated areas have been tested. In addition, low test results do not ensure exposures will not occur in the future. Residential areas surrounding the former incinerator are of particular concern since these areas are likely to have children in the susceptible age range (0-to-6 years) who may have frequent contact with the contaminated soil. It would be prudent to implement some additional measures, particularly in high concentration areas (greater than 1,000 mg/kg) until the EPA removal action is completed. Covering areas of contamination can help to reduce exposures in the community along with continued blood lead screening and health education.
Dioxin
The potential threat posed by the dioxin is dependant on the concentration and the extent of human exposure. EPA established an action level for dioxin of 1 ug/kg [2]. None of the soil samples collected from site during the Remedial Investigation exceeded the EPA screening value. The screening value itself it designed to protect people exposed in a residential setting over a life time. The exposure assumptions (e.g. soil ingestion amounts) used to derive the 1 ug/kg value are conservative and are likely to overestimate the actual exposures that may occur.
Child Health Initiative
ATSDR considers the unique susceptibility of children in the evaluation of all hazardous waste sites. Children may have higher levels of exposure since they are more likely to inhale and ingest contaminated soil. Infants and toddlers are also more susceptible to the adverse effects of some contaminants which must be considered when assessing exposure to environmental contaminants. Since children are particularly susceptible to the deleterious effects of lead, a major contaminant at this site, recommendations were provided at this site to ensure that children are protected from exposure.
Based on information provided, ATSDR concludes the following:
Figure 6-6. Surficial Soil Lead Results
Figure 6-7. Subsurface Soil Lead Results
