Hazardous Materials and Waste Management Division
Former Lowry Air Force Base

Location

The former Lowry Air Force Base is located approximately six miles southeast of downtown Denver, Colorado.  It includes approximately 1,866 acres and is located within the city limits of Denver and Aurora.  Lowry is currently a mixed-use community including residences, educational facilities, commercial development and recreational areas.

Background

Lowry Air Force Base was an integral part of the U.S. Air Force and the City of Denver history for more than 60 years.  The base was named after Denver native, U.S. Army Lieutenant Francis B. Lowry, who was killed in action during World War I.  Lowry was an observer in an aircraft shot down over enemy lines near Crepion, France in September 1918.

The base started its training mission in 1938.  World War II caused Lowry to greatly expand facilities in order to train bomber aircrews along with a large number of other technical specialists.  By 1962, the Department of Missile Training was providing the Air Force with more than 1,000 trained missile specialists per year.  From 1953 to 1955, Lowry became President Dwight D. Eisenhower's "Summer White House" from which he conducted affairs of state while Mamie Eisenhower, a Denver native, visited with family.

President Eisenhower visits Lowry Air Force Base, 1953

Due to the close proximity of the residential area around Lowry and the increase in the number of high performance jet aircraft accidents at the base, flight operations at Lowry ceased in 1966.  In 1976, the U.S. Air Force Accounting and Finance Center moved from its old location near East 40th Avenue and York Street to newly built facilities at the southwest corner of the base.

Lowry's training mission expanded in the 1980s to include aircraft armament modern avionics and space operations.  In October, 1986, an undergraduate space training program was initiated at Lowry Air Force Base, providing a basic preparation for space operational assignments.  Lowry hosted the first Titan I Intercontinental Ballistic Missile (ICBM) site located at the bombing range east of Denver.  The Titans were operational from 1962 to 1965.

In 1992, the site was scheduled for permanent closure under the Base Realignment and Closure Act (BRAC) of 1988 and the Defense Base Realignment and Closure Act of 1990.  The site was formally closed on September 30, 1994.

Environmental Concerns

Lowry Air Force Base was established in 1937 as a training facility for the Army Air Corps Technical School and was used primarily as a technical training and airfields operations facility.  In many ways, the activities at Lowry Air Force Base were similar to other communities of the time.  A coal-powered steam plant provided heat, gas stations fueled vehicles, municipal waste was taken to a landfill and machine parts were cleaned with solvents.  Fuels and chemicals were stored and used to support the training activities, and disposal of those liquids were conducted using standard waste-handling procedures of the day.  These activities were undertaken according to what were then generally accepted practices.  However, some of these practices resulted in environmental issues.

                          Aerial view of Lowry Air Force Base in 1952

Until 2002, the Air Force managed all of the cleanup work at Lowry.  In 2002, the Air Force privatized the groundwater plumes (Operable Unit 5) and the Landfill Zone (Operable Unit 2) environmental cleanup efforts, turning management over to the Lowry Redevelopment Authority and its contractor, Lowry Assumption Corporation.  Additional cleanup efforts were privatized in 2005.

Base Closure and Transfer

An Intergovernmental Agreement dated August 1, 1994 by and between the City and County of Denver and the City of Aurora established the Lowry Economic Redevelopment Authority, also known as the Lowry Redevelopment Authority.  The Lowry Redevelopment Authority is responsible for developing and coordinating all reuse plans and development strategies to promote economic redevelopment at the former Lowry Air Force Base.

The environmental investigations, which must be completed prior to any property transfer, must be conducted following the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) process.  The Air Force is required to assess, determine  and document if properties where release or disposal of hazardous substances or petroleum products has occurred are suitable for transfer by deed.  This assessment and determination will be based on an Environmental Baseline Survey and any subsequent investigations.

FOST - The determination will be documented in a Finding of Suitability to Transfer (FOST) if the property is determined to be suitable for the intended use proposed by the Lowry Redevelopment Authority.  The Air Force has given both the Colorado Department of Public Health and Environment (CDPHE) and Region 8 EPA an opportunity to comment on all of the Findings of Suitability to Transfer for the former Lowry Air Force Base.

FOSET - Later amendments to CERCLA allowed properties to be transferred before all necessary environmental remedial action has been taken, in certain limited cases.  In Colorado, an Executive Order (D 013 98) was signed June 18, 1998 which established evaluation guidelines and review procedures for the request of a deferral of the CERCLA requirement.  This document is known as the Finding of Suitability for Early Transfer (FOSET).

Regulatory Authority

Prior to privatization of the cleanup in 2002, the Air Force was the lead agency at the former Lowry Air Force Base and the Base Realignment and Closure Act Cleanup Team consisted of the Air Force, the Colorado Department of Public Health and Environment and the EPA.  The Base Realignment and Closure Act Cleanup Team reviewed all of the environmental investigation reports and discussed the need for further work.

Since privatization in 2002, the Colorado Department of Public Health and Environment has regulatory authority over the environmental cleanup activities at Lowry Air Force Base through a Resource Conservation and Recovery Act (RCRA) Consent Agreement signed by the Colorado Department of Public Health and Environment, Lowry Redevelopment Authority and Lowry Assumption, LLC.  The Consent Agreement and the First Amendment to the Consent Agreement are meant to ensure compliance with State laws and regulations.  Currently, the Lowry Cleanup Team, which consists of the Lowry Assumption, LLC, the Air Force, the Colorado Department of Public Health and Environment, U.S. EPA, the City and County of Denver and the City of Aurora meet routinely to discuss the ongoing environmental investigations and cleanup.

Investigations and Remedial Actions to Date

The final Five Year Review is completed and can be found in the Administrative Record at https://afrpaar.lackland.af.mil/ar.

No Further Action (NFA) Sites

Since privatization in 2002, investigation and remediation have been completed at many of the environmental sites identified by the Air Force.  The Colorado Department of Public Health and Environment approved No Further Action on the following sites:

• Fire Training Zone Soil             Approved May 5, 2006

• Outdoor Firing Range Soil       Approved  June 21, 2006

• Building 667                               Approved September 7, 2006

• Building 777                               Approved November 1, 2006

• Powerhouse Diesel Spill         Approved October 10, 2006

• Buildings 546 and 568             Approved May 11, 2007

• Building 1496a                           Approved May 11, 2007

• Yosemite Street Gate Plume   Approved May 11, 2007

• Building 606                                Approved February 1, 2008

• Buildings 349, 303(345), 354, 359, 361, 383, 401, 416, 850, 901, 903, 905, 959, 999 and 1499
                                                         Approved February 13, 2008

• Building 1002e Dayton Street Septic Tank
                                                         Approved April 30, 2008

• Building 753                               Approved October 23, 2009

For additional information:  Lowry No Further Action Sites - exit this site

On-going Investigation and Cleanup

Landfill Zone (Operable Unit 2):  This 74.5 acre parcel is in the south-central portion of Lowry.  It is bounded by Alameda Avenue on the south, Westerly Creek Flood Control Dam to the north, the AMLI Apartment Complex to the west and Westerly Creek to the east.

Former HEAT Campus:  Buildings located on the Colorado Community College System site, formerly the HEAT Campus (in Aurora), have been demolished.  Asbestos abatement was completed prior to demolition.

Sitewide Groundwater (Operable Unit [OU] 5):  Groundwater contaminants were initially released in the environment at numerous locations at Lowry Air Force Base.  The primary origin of contaminant release was into the storm sewers from several on-base facilities including an auto hobby shop.  Other likely sources of contamination include:

• accidental spills or leaks of solvents around firing range facilities

• disposal of solvents into septic systems at the firing range

• leakage from a storm sewer in the Headquarters area

• accidental spills or leaks at the fuel storage area in the vicinity of Uinta Street

• releases related to fire training activities

• leakage from fuel tanks at the Yosemite Street Gate Site

All of the impacted groundwater was grouped into one unit.  Operable Unit 5 (OU 5) is defined as all areas within and adjacent to Lowry Air force Base where groundwater has been impacted by Air Force activities.  The Operable Unit 5 groundwater contamination includes two plumes:

• Main Trichloroethylene (TCE) Plume, originating at the former auto hobby shop and Building 1432 in the north central portion of the Base; four leaking underground storage tanks (USTs) were removed from the north side of former Building 1432 in 2002

• Tributary Outdoor Firing Range Trichloroethylene Plume, originating in the old firing range facilities near the eastern Base boundary

In 2002, the Air Force privatized most of the environmental cleanup efforts, turning management over to the Lowry Redevelopment Authority and its contractor, Lowry Assumption, LLC.  Remedies to accelerate groundwater cleanup include:

• injecting oxidizing reagents to destroy chlorinated solvents

• injecting a potassium permanganate solution throughout the entire plume, both on- and off-base

• ongoing groundwater monitoring

Trichloroethylene cleanup began in October 2004, and a state environmental covenant was issued in January 2006. While the ongoing, aggressive groundwater treatment is the best way to mitigate the long-term concerns, the Colorado Department of Public Health and Environment requires that all new construction built over the groundwater plume include sub-slab depressurization systems to further reduce any potential for exposure.  Groundwater Cleanup Fact Sheet - April 2009
Groundwater Cleanup and Development Fact Sheet - March 2007 - exit this site

Monitoring indicates that concentrations in the plumes have been significantly reduced and it appears that contamination moving from the source areas to the downgradient plumes has been limited.  These concentration reductions are likely the result of a combination of all remedial efforts to date, as well as natural attenuation processes.

For additional information:  Lowry Main TCE Plume - exit this site

Building 898: 

Mercury:  Building 898 was a former dispensary and dental clinic located in the northeastern corner of Lowry.  During initial investigations of the building, levels of mercury vapor were measured in the breathing zone that precluded unrestricted use.  Additional sampling was conducted in 2002 to:

• establish whether removal of primary sources (sinks and associated piping) would lower mercury vapor concentrations to levels permitting unrestricted use

• establish whether potential secondary sources were emitting mercury vapor

• assess potential mercury contamination of soil and building materials in the crawlspace

Sampling results indicated that removing sinks and piping would likely lower mercury vapor concentrations in breathing zones to levels that would permit unrestricted use.  However, the results also indicated that mercury associated with the flooring materials could pose a risk.  Elevated mercury vapor concentrations were not detected in the crawlspace.

The Air Force decided to demolish Building 898, and the Colorado Department of Public Health and Environment approved the Air Force Study and demolition decision with the requirement that soil samples be collected during the demolition to assess any release of mercury to the environment.

Asbestos:  In April 2007, Lowry Assumption, LLC submitted a letter work plan outlining the pre-demolition asbestos building inspection, the collection and analysis of debris waste generated during demolition, and soil sampling to be conducted following demolition.  Because Building 898 was within a Lowry Historic District, consultation with the State Historic Preservation Office was required before demolition.  The work plan described the consultation with the State Historic Preservation Office and their approval for demolition in January 2007.

In August 2007, asbestos abatement was conducted and Building 898 was demolished.  Soil was sampled for mercury and results indicate that they are below Lowry Soil Action Levels and Toxicity Characteristic Leaching Procedure (TCLP) standards.  Following demolition, asbestos was identified in the soil and access to the site was restricted.  The remaining asbestos-contaminated building debris was remediated in early 2008, and Lowry Assumption Corporation is preparing closure documents for the building.

For additional information:  Lowry Building 898 - exit this site

Northwest Neighborhood:  Between the early 1940s and the late 1950s, an Air Force hospital complex was located on fourteen acres of land located north of East 8th Avenue,  west of Uinta Way, south of East 11th Avenue and east of Spruce Court and Ulster Way.  This area is now called the Northwest Neighborhood of Lowry.  The complex of buildings included the hospital and the hospital's steam heating plant.  The steam lines may have been wrapped in asbestos-containing insulation.  The Air Force demolished the complex between 1963 and 1975.  When the buildings were demolished, not all of the building debris and piping were removed.  Therefore, material containing asbestos was found in the soil in the Northwest Neighborhood, including water pipes, some gas pipes, insulation material and floor tile.

In April 2003, the Colorado Department of Public Health and Environment issued Compliance Advisories for asbestos in soil in the Northwest Neighborhood.  The Compliance Advisories required sampling, emissions control and response plans related to asbestos in soil.  Several sampling work plans and a response plan for investigation and remediation of the Northwest Neighborhood soils were approved by the Colorado Department of Public Health and Environment.  The Lowry Redevelopment Authority and builders sampled and remediated properties they owned, and the Air Force conducted indoor air sampling for asbestos at Buildings 667 and 670, as well as some limited sampling for asbestos in soil.  A No Further Action letter was issued for Building 670 in January 2005, after asbestos remediation was completed.

In 2002, Lowry Assumption, LLC became responsible for sampling and remediating the remaining unsampled areas within the Northwest Neighborhood.  The company began sampling in April 2006 and completed sampling in August 2006.  No asbestos was found in 93% of the 30,000 samples taken.  Lowry Assumption, LLC performed remediation of the properties, and has received the following closures from the Colorado Department of Public Health and Environment:

• 670 North - Notice to Construct and permission to transfer issued on August 17, 2006

• Building 667 - No Further Action and permission to transfer issued on September 7, 2006

• Filing 28 (First 11 lots) - Notice to construct and permission to transfer issued October 4, 2006

• Filing 28 (including Trenton Median and Building 670 sliver) - No Further Action for Trenton Median and a Notice to Construct and permission to transfer issued on December 18, 2006

• Filing 16 - No Further Action approved September 22, 2009 - Notice of Completion of Compliance Advisories and Compliance Order for properties constituting 22 acres in Northwest Neighborhood

• Notice of completion of compliance advisories and compliance order for properties constituting 22 acres in Northwest Neighborhood approved September 29, 2009

For additional information:  Lowry Northwest Neighborhood Asbestos - exit this site

General Environmental Oversight and the Soil Management Program:  In addition to monitoring and remediation work at Lowry, Lowry Assumption, LLC's scope includes environmental oversight.  The environmental oversight program is in place to address any unknown conditions encountered during the redevelopment process.  As part of the oversight program, all builders and construction crews must notify Lowry Assumption, LLC before beginning any activities that will disturb soil.  Lowry Assumption Corporation has provided more than 34,000 hours of oversight and the program has been very successful.  Through the process, asbestos was identified and removed in several locations, including near the former heating plant in the Northwest Neighborhood, an abandoned gas line, a former debris disposal area and a former steam line.  In addition, diesel fuel was identified in the soil in the vicinity of a former maintenance yard.  The soil was removed and a No Further Action granted by the Colorado Department of Public Health and Environment.  All of these have been small removal projects and were addressed quickly to minimize any impacts.  The guidelines for environmental oversight are described in detail in the Soil Management Plan that can be found in the Administrative Record.

For additional information:  Lowry Environmental Oversight - exit this site

Administrative Record On-line

The Administrative Record contains all documents used in making cleanup decisions at Lowry Air Force Base.  The record can be accessed on line at:  https://afrpaar.lackland.af.mil/ar  (exit this site).

You may encounter a security certificate error, but you can continue to the website.

Contact Information

Colorado Department of Public Health and Environment
4300 Cherry Creek Drive South
Denver, CO  80246-1530

Lee Pivonka
State Project Manager
303-692-3453
comments.hmwmd@state.co.us (use "Pivonka" in the Subject line)

Marilyn Null
State Community Involvement Specialist
303-692-3304
comments.hmwmd@state.co.us (use Null in the Subject line)

Lowry Assumption, LLC
125 Rampart Way, Suite 302
Denver, CO  80230
303-972-6633

Elizabeth Sopher
Lowry Environmental Community Specialist
elizabeth.sopher@lowry.org

Libraries

Environmental documents are available for public review during regular business hours at:

Lowry Assumption, LLC
125 Rampart Way, Suite 302
Denver, CO  80230
303-972-6633

Related Web Sites

http://www.lowry.org/
http://www.lowryafbcleanup.com/lowryhome.html

Of Historical Interest

http://www.globalsecurity.org/military/facility/lowry.htm
http://www.strategic-air-command.com/bases/Lowry_AFB.htm
http://www.wingsmuseum.org/