Fort Deverrs Superfund Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
&EPA
UnM SJates
Environmwital Protection
Office of Emergency and
Remedial Response
(5201G)
EPA 540/F-98/011
OSWER 9378.0-18FS
PB 98-963213
April 1998
www.epa.gov/superfund
Fort Devens Site
Devens, Massachusetts
A Superfund Redevelopment Success
Fort Devens Superfund Site
at a Glance
Problem: Contamination of soil and groundwater
due to over 70 years of military training activities.
Solution: To date, over 40 short-term actions to
address immediate threats completed and six
long-term actions are underway to control the
source of the contamination.
Redevelopment: Partnership between EPA, DoD,
and State and local governments to clean up the
site and implement a comprehensive
redevelopment plan that includes public and private
commercial and recreational use.
The former Fort Devens Army base is
one of the largest redevelopment
projects in Massachusetts' history.
As part of the Superfund program, EPA is working with other Federal departments, State
and local governments, and local developers to clean up and return hazardous waste sites
to beneficial uses for the community. Fort Devens, a former Army base located in
Middlesex and Worcester Counties, Massachusetts, is one of the many installations
affected by the Base Realignment and Closure Act (BRAC), which transfers certain
bases to local communities for commercial, recreational, and/or residential use. The
closure of the Fort Devens base resulted in an estimated loss of over 7,000 jobs. But, the
Fort Devens site redevelopment demonstrates how EPA and the Department of Defense
(DoD) can work together to clean up and redevelop bases targeted for closure and foster
the economic recovery of neighboring communities. Once a military base with
significant contamination, the Fort Devens site is on its way to becoming the largest
redevelopment project in the history of Massachusetts. This fact sheet describes the
cleanup performed and the redevelopment underway at the Fort Devens site as of April
1998, and provides estimates for the economic impacts and environmental and social
benefits that will accrue at and around the site.
Site Snapshot
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Fort Deveils Superfund Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
Located 35 miles west of Boston, Fort Devens is a
9,400-acre former U.S. Army base that lies between
the towns of Ayer and Shirley in Middlesex County,
and Lancaster and Harvard in Worcester County.
The Army established Fort Devens in 1917 as a
temporary training camp for soldiers during World
War I. In 1931, the camp became a permanent
installation and operated for over 60 years serving a
variety of military purposes. In 1991, the Fort
Devens base was targeted for realignment and
closure and by 1996, the base was closed and the
transformation of the site for public and private use
began.
Massachusetts
The Fort Devens installation primarily comprises three primary areas, the Main Post,
North Post, and South Post. The Main Post provided all base housing, community
services, administrative buildings, training facilities, ammunition storage and an 8.8-acre
vehicle maintenance yard. The Main Post also is the site of an 84-acre municipal landfill
that existed before the base was established, and was used by the Army. The North Post
was primarily a military airfield, but was also used to train troops. In addition, it contains
a wastewater treatment plant. The South Post contained areas for troop training, firing
range activities, and an air drop zone.
The numerous operations at the Fort Devens base have resulted in the possible
contamination of over 80 areas of the installation. Three of these areas were of particular
concern to the Superfund program: the maintenance yard and municipal landfill located
on the Main Post, and the airfield located on the North Post. The maintenance yard
consisted of an unpaved parking area where military vehicles leaked fuel and oil onto the
ground. Additionally, underground storage tanks located at the maintenance yard had
released waste oil, resulting in contamination of the surrounding soil with polyaromatic
hydrocarbons, which are carcinogenic. The municipal landfill had deteriorated to a point
where there was a significant threat of arsenic contamination to the groundwater under
the site. Groundwater also is contaminated at the North Post, where a plume of
polychloroethylene was detected under the airfield. Polychloroethylene is a solvent that
was used extensively by the Army to clean parachutes at the airfield. Many other
contaminated areas of the Fort Devens site are being addressed under authorities other
than Superfund.
At its peak, over 15,000 military personnel and their families lived on the Fort Devens
base. The current land use around the site is primarily rural and residential, with an
estimated 3,500 households located within two miles of the Fort Devens boundary. In
addition, the Nashua River and many of its tributaries run directly through the site, with
wetlands located along its banks. The Oxbow National Wildlife Refuge is located just
below the southern boundary of the Main Post.
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Cleanup
In 1989, EPA added Fort Devens to the Superfund program's National Priorities List
(NPL)—the Agency's list of hazardous waste sites needing cleanup. Since 1989, the
environmental condition of the site has been investigated by DoD under Superfund,
BRAC, and other environmental authorities, and over 80 areas with possible hazardous
waste contamination have been identified. A Fort Devens BRAC Cleanup Team (BCT),
which consists of representatives from the Army, EPA, and the State of Massachusetts,
was formed in 1994 to address the contamination on the site. This partnership has been
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Fort Devens Superftind Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
successful in integrating many of the investigations of the site, which has eliminated an
estimated four years of environmental study and saved the government approximately $5
million. The BCT has also worked closely with the surrounding communities during the
investigation and cleanup to address local concerns and to ensure that the cleanup is
consistent with future uses of the base.
The cleanup of the contamination on the base was required before redevelopment of the
property could occur. A majority of the over 80 contaminated areas are being cleaned up
through short-term response actions that address immediate threats. To date, more than
40 short-term actions have been completed and several more are in progress. Actions
include removal and disposal of underground storage tanks, asbestos, building debris,
scrap metals, and solvent-saturated soils. Several portions of the site are also undergoing
long-term cleanup. In particular, cleanup plans were selected by DoD and approved by
EPA for six areas on the site, most notably the maintenance yard, the municipal landfill,
and the airfield. The remedy selected to clean up the maintenance yard was tailored to the
future use of the area while protecting human health and the environment. The cleanup
plan called for covering a portion of this area with asphalt for a parking lot and
redesigning the storm drainage system. Similarly, a cap was placed over the landfill to
control the source of the contamination, while allowing for the possible recreational use
of the area in the future. Cleanup at the airfield involves excavation of soil areas with
extensive solvent contamination, which has been completed, and the ongoing treatment
of the groundwater. Additional cleanup activities are being planned or are underway for
the other contaminated areas on the site.
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Reileveloiwient
The closure of Fort Devens and the
remedies chosen to clean up the site were
key factors in its redevelopment. As an
Army base, Fort Devens had extensive
infrastructure in place and was being used
for a variety of operations. At the time of
the base's closure, studies indicated that
approximately 5.6 million square feet of
land and over 2 million square feet of
existing buildings and facilities had
potential reuse because of their location and
access to major highways and rail service.
Several public and private sector employers
have taken advantage of this redevelopment
potential and have located, or are planning
to locate, at the site. The redevelopment of Fort Devens is expected to revitalize the local
economy impacted by the base's closure.
A Federal prison hospital is one of the many
public redevelopment projects at the site.
As part of the redevelopment of the Fort Devens site, DoD transferred large portions of
the site to other Federal departments and the State to provide public services and attract
private businesses. DoD retained control of 5,000 acres of land, including all of the South
Post and portions of the Main and North Posts, for construction of a new Army Reserve
enclave and training area. DoD transferred the remainder of the site to the Department of
Labor (DOL), the Department of Justice (DOJ), and a State-designated developer for
public and private development. DoD transferred approximately 22 acres of land to DOL,
which is building a Jobs Corp Center; 222 acres to the DOJ, where a Federal Bureau of
Prisons Hospital is being built; and approximately 836 acres along the Nashua River to
the Fish and Wildlife Service (FWS) for an extension to the Oxbow National Wildlife
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Fort Devens Superfund Site
http://www.epa.gov/superfund/oerr/accornp/redevel/devens.htrn
Refuge. The remainder of the Main and North Posts was transferred to the Massachusetts
Government Land Bank to promote and oversee private redevelopment.
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Public Redevelopment at Devens
In 1994, Massachusetts passed legislation
that helped to define the future use of Fort
Devens. The act served four main
purposes: (1) creation of the Devens
Regional Enterprise Zone (currently known
as the Devens Commerce Center), which is
the portion of the former military base that
is being relinquished by the U.S. Army, as
well as pieces of land adjacent to the site
owned by B&M Railroad and the State; (2)
establishment of the Devens Enterprise
Commission, a public agency comprising
community members and political
appointees, which is responsible for the permitting of all proposed redevelopment
projects; (3) empowerment of the Massachusetts Government Land Bank (currently
known as MassDevelop-ment) with the authority to oversee all redevelopment planning
and implementation at Fort Devens, including the collection of municipal and other
service fees; and (4) authorization for MassDevelopment to issue bonds and to borrow up
$200 million to redevelop the site. The 1994 legislation also established incentives to
stimulate the private sector's interest in redevelopment of the site. Some of these
incentives include the designation of the Devens Commerce Center as a State Economic
Target and Opportunity Area, establishment of wholesale utility rates, elimination of
personal property tax, and access to water and wastewater treatment at reduced rates.
DOJ will build 245-acre Federal
Bureau of Prisons Hospital
DOL will build a 25-acre Job Corps
Center
DoD is retaining approximately 182
acres of land for an Army Reserve
enclave and 132 acres for a training
site
FWS is expanding the Oxbow National
Wildlife Refuge by 836 acres
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Fort Devens Superfund Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
Private Redevelopment at the Devens
Commerce Center
For the provisions in the legislation to become effective, a plan had to be developed that
would delineate the future private use of the former base. This plan, called the Devens
Reuse Plan, was prepared by MassDevelop-ment and representatives from the towns of
Ayer, Harvard, and Shirley, and was approved by these communities in 1994. The Plan
lays out the goals and objectives for the redevelopment of Fort Devens according to
several overarching uses: innovation and technology; business and community services;
environmental business; research and development; rail, industry and trade-related; and
open space and recreation.
By March 1998, 13 private sector facilities,
each over 10,000 square feet in size, were
built or were under construction. For
example, the Gillette Corporation, a
Fortune 200 company, has built a 410,000
square foot warehouse and distribution
center on the former base. In addition, 33
facilities, each smaller than 10,000 square
feet, have been built. Four public facilities
also have been built or are under
construction and MassDevelopment has
built two facilities. In all, 49
redevelopment projects have already been
completed at Fort Devens. Two additional
projects are currently underway, and one
more project will begin construction soon. Of the private sector companies, several
manufacturing firms have been constructed on a portion of the space designated for
industrial use, and several computer software and graphics companies have constructed
facilities in the area intended for research and development operations.
The Gillette Co. constructed a
warehouse and distribution center.
Companies such as CeCorr, Inc. and
Parker Hannifin have helped to
redevelop to manufacturing/industrial
space.
Image Software Services, Inc.,
Xinetics, and Ellora Software, Inc. are
among the computer software and
graphics companies that have built
research and development facilities.
"Uncommonly convenient highway
and rail access, and the cost savings
benefits of the tow utility rates and no
personal property tsoes were key
factors in the Gillette Company's
decision to lease two facilities at
The Devens Commerce Center."
-fijcKrauss, The GWatts Cospany
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Benefits
The partnership among EPA, DoD, and State and local governments to clean up and
redevelop the Fort Devens site has had a positive effect on the local community. In
particular, the cleanup and redevelopment of the site has resulted in positive economic
impacts, as well as significant environmental and social benefits. A summary of these
benefits is provided below and reflects information as of April 1998. Additional
information on the calculations used to estimate the economic impacts is provided in the
Technical Appendix to this fact sheet.
Economic Impacts
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Fort Devetis Superfund Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
The cleanup and redevelopment of the Fort
Devens site has resulted in (and will
continue to result in) numerous positive
economic impacts in the form of jobs and
associated income and local spending.
These economic impacts will help to offset
the effects of the base closure, including
lost civilian jobs and earnings and the
reduction in local spending by military
personnel and civilians. Cleanup of the site
will provide an estimated 121 short-term
jobs per year for a total of 26 years, while
redevelopment projects, completed and
underway, will provide an estimated 114
short-term on-site jobs per year for 3.75
years. These short-term cleanup and
redevelopment jobs are expected to result
in an annual income of over $6 million.
Full implementation of the Reuse Plan for
private companies and development by the
Federal government may result in over
2,500 permanent on-site jobs. These
permanent jobs are associated with the
public and private sector employers who
have already developed or have committed
to redevelop the site. These jobs may
generate almost $70 million in direct salary
and result in almost $56 million in annual
spending. Moreover, growth in jobs and
incomes should result in an increase by
over $4 million in State income tax and
almost $3 million in sales taxes. In
addition, the cleanup may lead to an
Positive Economic Impacts
An estimated 121 short-term cleanup
jobs per year for 26 years and 114
short-term redevelopment jobs per
year for 3.75 years.
$6 million in annual income associated
with cleanup and redevelopment jobs.
Over 2,500 potential permanent
on-site jobs associated with future
redevelopment.
Over $70 million in annual income
associated with permanent on-site
jobs resulting in $56 million in personal
spending.
Up to $2 million increase in total
residential property values within two
miles of the site.
The Gillette Corporation was the first private
corporation to locate in the new Devens
Commerce Center.
estimated increase of up to $2 million in total residential property values within two
miles of the site.
The redevelopment of the site will act to preserve the surrounding towns that for years
have been economically tied to the Army base. Many local businesses once again may
become viable with the redevelopment of the Fort Devens site. Moreover, property values
in the surrounding communities may increase further as jobs are created, people return to
the area, and the local economy is further stimulated by redevelopment.
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Environmental Benefits
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Fort Deveiis Superfimd Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
Environmental Benefits
Elimination of immediate on-site risks
in 40 areas.
Cleanup to eliminate exposure to
contaminants in soil and water.
Protection of critical natural resources,
including the National Wildlife Refuge.
Preservation of habitat used by
State-listed species of special
concern.
In keeping with EPA's mission, the
primary benefit achieved through the
cleanup of Fort Devens is the long term
protection of human health and the natural
environment. Because of the size and
multiple uses of the former military
installation, the U.S. Army investigated the
entire site, and found that many areas of
the site were not a threat to public health or
the environment. Of the over 80 areas with
identified contamination, the Fort Devens
BCT addressed immediate threats to
human health and the environment, such as removal and disposal of underground storage
tanks, asbestos, building debris, scrap metals, and contaminated soils. The cleanup of the
maintenance yard, the 84-acre landfill, and the airfield will protect residents, workers,
recreational users, and future visitors to the site from risks associated with exposure to
contaminated soils and groundwater, and minimize future migration of contaminants.
The Devens Reuse Plan ensures the protection and enhancement of critical natural
environmental resources including wetlands, rivers, streams, open waters, sensitive
habitats, vegetation, and aquifers. Cleanup and redevelopment of Fort Devens will
protect the Nashua River and its tributaries, as well as the adjacent Oxbow National
Wildlife Refuge, which will be expanded as part of the site redevelopment.
Fort Devens has become one of the best characterized ecological sites in the state of
Massachusetts. The characterization process has identified several State-recognized
endangered or threatened plant species on the site. Also, several State-recognized
endangered, threatened, or special concern animal species inhabit the site, such as the
upland sandpiper (Bartramia longicauda). While cleanup of the site has protected the
ecological resources at and around the site, redevelopment planning also will carefully
consider the effect of new development on these rare and sensitive species.
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Social Benefits
Preservation of the surrounding
communities and their way of life.
Increased access to recreational and
historical sites.
Preservation of historic architectural
buildings.
Reduced perception of societal loss
associated with base closure.
Perhaps the greatest social benefit ' Social Benefits
stemming from the cleanup and
redevelopment of the Fort Devens site is
the preservation of the surrounding
communities and their established way of
life. Local communities will benefit from
preservation of open space and greater
access to a wide range of existing indoor
and outdoor recreational resources.
Outdoor recreational assets include the
Nashua River corridor and nature center, lakes, ponds, streams, bike and equestrian trails.
Indoor recreational facilities include a gymnasium, a pool, entertainment facilities, and
other sports facilities. Also, the Devens Commerce Center is planning to build a new golf
course.
According to the Reuse Plan, redevelopment also will emphasize preservation of
sensitive architectural and landscape designs. Vicksburg Square, a National Register
historic district, will receive special consideration. Surveys conducted as part of the
closure process identified 80 historic buildings and 29 historic archeological sites that
will be preserved throughout the redevelopment.
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Fort Dev^ns Superftmd Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
Back to the top
Positive Impacts from Fort Dcvcns
Cleanup and Redevelopment
Shirley
Social BeneWs
* Preservation of
surrounding
communities'
way of life
» Use of indoor and
outcioor recreational
Ayer
Preservation of 29
historic arcneaoknicai
Economic Baneftts
* Over I rrdlHon square
to«t of development
space
BwirorunentaJ
Benefits
Preservation and
expansion of Oxbow
National Wildlife
Refuge
* 23S short-term
cleanup and
redBvetoptrasnt
jobs
Preservation of State
species of special
concern and habitat
• Over 2,500 potential
permanent on-stte
lob*
• Protecttwi of Nashua
River, its tributaries
anil wetland areas
• Annual income for
permanent jab* «rf
$70 million
• Annual sales tax
revenues of up to
$2 million
Lancaster
Harvard
For More information
The Technical Appendix to this fact sheet provides detailed information on the economic
impacts associated with this site, including the specific calculations used, sources of
information, and possible limitations associated with the calculations. To obtain copies of
the Technical Appendix for this fact sheet, or to learn more about economic analyses
performed for this site or other Superfund sites, please contact:
John Harris, Senior Advisor for Economics,
Office of Emergency and Remedial Response
U.S. Environmental Protection Agency
Mail Code 5204G
401 M Street, SW
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Fort Devens Superfund Site
http://www.epa.gov/superfund/oerr/accomp/redevel/devens.htm
Washington, DC 20460
(703) 603-9075
harris.iohn@epamail.epa.gov
For further information about the cleanup and redevelopment of the Fort Devens site,
please contact the site manager:
James P. Byrne, Remedial Project Manager
U.S. EPA Region 1
JFK Federal Building (HAN-CAN1)
Boston, MA 02203
(617)573-5799
bvrne.i ames(q)epamail .epa. gov
Jim Chambers, BRAC Environmental Coordinator
Department of the Army
Devens Reserve Force Training Area
33 Quebec Street
Box 100
Devens, MA 01432
(978)769-3114
(978) 769-3133 (fax)
Jim DeLorenzo, Beneficial Uses Coordinator
U.S. EPA Region 1
90 Canal Street
Boston, Massachusetts 02114
(617) 565-3420
delorenzo.iim@epamail.epa.gov
Economic impacts presented in this fact sheet represent positive local impacts occurring at
and around the site. Available information does not allow a determination of whether or how
many of the jobs associated with the cleanup and redevelopment are new. Consequently, the
economic impacts presented in this fact sheet are not "net" impacts. Although the
redevelopment of the site also may generate other positive impacts throughout the rest of the
economy, this analysis does not quantify these indirect effects or estimate any offsetting
negative effects or costs.
Whenever infprmation specific to the site was available, it was used. However, certain
numerical estimates are, of necessity, based on general formulas rather than site-specific
information and are, therefore, approximations. Although there may be uncertainty associated
with many of these estimates, point estimates are used throughout the fact sheet. The
economic impacts reflect the information available at the time of fact sheet development and
may change overtime. Monetary estimates are expressed in July 1997 dollars. Estimates of
jobs associated with cleanup and redevelopment are presented as annualized values,
reflecting the average number of jobs per year.
Technical Appendix
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