TO: Mayor and City Council
THROUGH: Krishna Namburi, Interim City Manager
FROM: Brian D. Martin, PE, Public Works Director
SUBJECT:
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Progress on investigation of past use of Aqueous Film-Forming Foam (also called fire-fighting foam and AFFF) containing PFAS (per- and polyfluoroalkyl substances) and its impacts at Salem-Willamette Valley Airport and Salem Fire Station 6.
Ward(s): Ward 2
Councilor(s): Nishioka
Neighborhood(s): Southeast Mill Creek Neighborhood Association (SEMCA), Southeast Salem Neighborhood Association (SESNA)
Result Area(s): Good Governance; Safe, Reliable and Efficient Infrastructure; Strong and Diverse Economy.
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SUMMARY:
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The purpose of this report is to inform City Council on the planned activities that will be conducted during the investigation into the past use of AFFF foam containing PFAS at the Salem-Willamette Valley Airport and Fire Station 6 and the schedule for initial sampling and testing. The City of Salem is investigating the past use of AFFF containing PFAS and its potential impacts at Salem-Willamette Valley Airport and Fire Station 6. Recent developments include the finalization of the initial Site Investigation Work Plan (reviewed by the Oregon Department of Environmental Quality; DEQ) and the Worker Exposure Assessment Sampling and Analysis Plan.
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ISSUE:
Information only.
RECOMMENDATION:
recommendation
Information only.
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FACTS AND FINDINGS:
Following the initial discovery of PFAS chemicals in soil samples collected at the Salem-Willamette Valley Airport during the initial development of a hangar construction project, a Site Investigation Work Plan has been prepared to complete an initial assessment of soil and groundwater quality across the airport property (focused on identifying potential source areas and the potential for migration in soil, groundwater, and stormwater). These areas of focus include locations that have historically been used for firefighting foam testing and training, like the Salem Fire Department’s Station 6 on-site training area, the hangar development area, and the site of the one past flight crash that required the use of foam.
The development of the Work Plan included coordination with the Oregon Military Department who is in the process of completing a similar investigation at the Oregon Army National Guard base located adjacent to the airport, to eliminate the duplication of effort. The DEQ has reviewed the Work Plan and provided recommendations that are being incorporated into planned future activities.
In parallel with the Site Investigation Work Plan a separate Sampling and Analysis Plan has been prepared by a Certified Industrial Hygienist to complete a worker exposure assessment for staff at Fire Station 6 to evaluate potential exposure risks associated with the past use of AFFF and residual contamination that may persist in the work area from historical FAA-required training activities.
The execution of these plans will allow the City to better understand the risk and exposure in these areas and will help us take steps to further ensure the safety, health, and well-being of Fire department staff, as well as Airport employees, tenants, and the future development of airport properties.
Next Steps: Work Plan Implementation
To better understand the presence of PFAS at the Airport, including the Fire Station 6 training area, over the coming months, we will:
• Implement the Site Investigation Work Plan to identify potential source areas and assess the magnitude of PFAS that may originate from those source areas,
• Evaluate potential exposure risks to fire department and airport personnel, and
• Preliminarily assess the potential risks to human health and the environment associated with identified impacts.
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And then as new information becomes available from the investigation activities, we will:
• Update City Council, the Fire Department and firefighters, the Airport Advisory Commission and Airport tenants, and developers of new airport projects through regular communications,
• Communicate with our community through City channels such as social media, the website, the newsletter, and Council meetings and media briefings,
• Identify further investigation needed, and
• Coordinate with regulatory authorities to appropriately respond to the investigation’s findings as the PFAS regulations develop.
Estimated Timeline:
Initiation of Site Investigation Field Work (pending delivery of purchase order)
• Mid-September
Initiation of Industrial Hygiene Site Worker Exposure Assessment
• Mid-September
Phase 1 of Site Investigation Field Work complete (shallow wells and sediment)
• Late-September
Phase 1 Laboratory Analyses Due, IH Worker Sample Analyses Due
• Mid-October
Phase 2 of Site Investigation Field Work complete (deep well installation)
• Late-October
Phase 2 Laboratory Analyses Due, IH Worker Exposure Assessment Report Complete
• Mid-November
Site Investigation Report Complete and Submitted to the City
• Mid-December
BACKGROUND:
PFAS chemicals are used in many commercial products designed to resist heat, water, and oil, such as water-resistant clothing, food packaging, and nonstick cookware. The Federal Aviation Administration (FAA) has required the use of one such PFAS-containing substance in mandated training and testing: aqueous film-forming foam, also called fire-fighting foam. Until 2024, the Salem Fire Department used this foam during its required training exercises at the Airport, particularly at the Salem Fire Department’s Station 6 training area.
Growing awareness of PFAS or "forever chemicals" is increasing throughout the United States. PFAS are a group of manufactured chemicals that have been used in industry and consumer products since the 1940s because of their useful properties. There are thousands of different PFAS compounds, some of which have been more widely used and studied than others.
Perfluorooctanoic Acid (PFOA) and Perfluorooctane Sulfonate (PFOS), for example, are two of the most widely used and studied chemicals in the PFAS group. PFOA and PFOS have been phased out of use in the United States and replaced with other compounds in recent years.
One common characteristic of concern of PFAS chemicals is that many are resistant to breaking down in the environment and, over time, can build up in plants, animals, and the environment.
While the science behind this emerging global issue is still being studied, Salem is taking early steps to share with the community testing data and the potential risks of PFAS in the City.
In 2023, PFAS testing was performed on City wastewater and drinking water, and while the drinking water is free of PFAS, we continue to track and work with our permittees and DEQ on the issues related to PFAS in our wastewater. Actions, results, resources, and additional details associated with the water testing were shared with the public at that time. The information can be found on the website at www.cityofsalem.net/community/natural-environment-climate/reports-references-and-resources/understanding-pfas <http://www.cityofsalem.net/community/natural-environment-climate/reports-references-and-resources/understanding-pfas>.
Nitin Joshi,
Environmental & Operations Technology Manager, Public Works Department
Attachments:
1. Base Sampling Plan Map
2. Salem-Willamette Task Order Proposal
3. Salem-Willamette Valley Airport Site Characterization Work Plan