PORT OF SEATTLE 
MEMORANDUM 
COMMISSION AGENDA                      Item No.         5f 
ACTION ITEM                      Date of Meeting    September 24, 2013 
DATE:     September 16, 2013 
TO:        Tay Yoshitani, Chief Executive Officer 
FROM:    Elizabeth Leavitt, Director, Planning and Environmental 
Bob Duffner, Manager Environmental Programs 
SUBJECT:  Execution of a Consent Decree for remediation of the Lora Lake Apartments Site 
Amount of This Request:   $0            Source of Funds: Airport Development Fund 
Est. State and Local Taxes: $0             Est. Jobs Created: TBD 
Est. Total Project Cost:     $18,200,000 
ACTION REQUESTED 
Request Commission authorization for the Chief Executive Officer to: (1) execute the Model
Toxics Control Act (MTCA) consent decree  for the design and implementation of the
environmental remediation for the Lora Lake Apartments Site; and (2) design and prepare
construction documents for the environmental remediation at the Lora Lake Parcel.
SYNOPSIS 
The Lora Lake Apartments site has dioxin contamination in the soil as a result of earlier
industrial operations which must be remediated for the Port to be in compliance with state law
and for future reuse of the site.  The Port acquired the property as part of the Third Runway
project to meet Federal Aviation Administration (FAA) flight safety zone regulations.  The
presence of dioxin was not known at the time of the property acquisition but was identified
during subsequent testing. During investigation work it was found that contamination had spread
from the Apartment property to the Lora Lake bottom sediments, and an adjacent area of Airport
property where dredged  sediments from the lake were placed in 1982.   The Lora Lake
Apartments cleanup site now includes these three parcels.
In order to proceed with the cleanup of the site, the Port must enter into a consent decree with the
Washington State Department of Ecology (Ecology). The decree and its exhibits describe in
detail the agreement between the Port and Ecology on how and when the site will be remediated.
Authorization  to  execute  the  consent  decree  along  with  the  design  and  preparation  of
construction documents will allow remediation of the site to occur in 2016 and 2017.

COMMISSION AGENDA 
Tay Yoshitani, Chief Executive Officer 
September 16, 2013 
Page 2 of 6 
After authorization and execution of the consent decree a public comment period will be
conducted by Ecology. This comment period will likely occur in the fourth quarter of 2013. If
public comments result in substantive changes to the consent decree an additional Commission
authorization will be requested. 
Funding for this work was included in the 2013-2017 Environmental Remediation Liability
(ERL) Program, and additional funds will be requested in the 2014-2018 ERL authorization in
December 2013. 
BACKGROUND 
The Lora Lake Apartments, located on the west side of Des Moines Memorial Way in the City of
Burien, was the site of a barrel cleaning facility in the 1940s and 1950s, and an auto wrecking
yard in the 1950s through the 1980s.  Both of these types of industrial uses are known to have
had high potential for releasing contaminants to the environment.  The Novak Barrel Washing
Company ceased to exist sometime in the late 1940s or early 1950s. Burien Auto Wrecking
went out of business when the property was purchased by the Mueller Development Company in
the mid-1980s for the construction of the apartment complex. 
During the construction of the apartment complex in 1986-87, the developer conducted
environmental investigations and remediation that were approved by Ecology under standards in
place at that time. 
By 1999 all residents had vacated the property in anticipation of the construction of the Third
Runway and redevelopment for airport and airport-compatible light industrial/commercial use.
Due to delays in Third Runway construction, and prior to demolition, the Port sold the property
to the King County Housing Authority for a limited period, for residential use. King County sold
the property back to the Port in July 2007, at which time the Port demolished a sufficient number
of structures to comply with FAA regulations for Airport runway operation.  At that time, the
Port conducted environmental sampling to define site conditions in support of future property
redevelopment. Sample data indicated significant contamination remained at the site.  Further
investigations confirmed those findings. 
In July 2009 the Port and Ecology entered into an agreed order that required the implementation
of a remedial investigation/feasibility study, and the development of a draft cleanup action plan.
During the remedial investigation of the apartment site, Ecology ordered the Port to collect
samples of sediment in the Lora Lake Parcel. The Lora Lake Parcel is located on the east side of
Des Moines Memorial Way in the City of SeaTac.  Those sediments contained dioxin
contamination that could have migrated from the apartment parcel.  It was also discovered that
sediment had been dredged from the lake in 1982 and placed on Airport property in what is now
called the dredge material containment area (DMCA). 
The Lora Lake Apartment site is located within the City of Burien's Northeast Redevelopment
Area (NERA). The city identified the NERA as an area affected by present and future aviation
activities.  The city and Port have partnered to prepare a redevelopment strategy for the NERA.

COMMISSION AGENDA 
Tay Yoshitani, Chief Executive Officer 
September 16, 2013 
Page 3 of 6 
The redevelopment strategy identified the Lora Lake Apartment site as appropriate for largescale
commercial or industrial uses such as auto dealerships or air cargo logistics. 
PROJECT JUSTIFICATION AND DETAILS 
The overall goal of the site cleanup is to significantly reduce or eliminate the exposure of
ecological and human receptors to soil contamination and thereby reduce or eliminate adverse
effects on resources in the project site.  In addition, cleanup of the apartment parcel will allow
for its beneficial reuse. 
Project Objectives: 
Perform the remediation work at the site in accordance with the consent decree. 
Manage and perform the work, with project controls and contract systems in place. 
Identify and consider community values and concerns, as part of a formal public
participation plan. 
Remediation design and implementation will be carried out in a manner that considers the
potential needs of future development on the Lora Lake Apartment Site. 
Scope of Work: 
Cleanup of the apartment parcel will consist of the removal of approximately 19,000 cubic yards
of dioxinp-contaminated soil with a concentration greater than 100 parts per trillion (pptr). This
soil will be transported to a landfill permitted to accept this type of material.  Soil remaining on
the site with a concentration less than 100 pptr, but above the cleanup level of 11 pptr will be
covered with a barrier to prevent direct contact with people or animals. The cleanup action plan
will give the Port the option to relocate and consolidate the soil between 11 pptr and 100 pptr
(approximately 30,000 cubic yards) to a nearby, secure portion of the Airport where it will be
covered to prevent direct contact with people or animals. This option may improve conditions at
the apartment parcel for redevelopment, and is an option the Port can elect to implement should
the redevelopment plans indicate it is prudent. 
At the Lora Lake Parcel, contaminated sediments will be capped by filling the lake with
approximately 38,500 cubic yards of clean fill, and restoring it to a wetland similar to the 
surrounding area. The fill will be engineered to immobilize the dioxin contained in the lake
sediments. 
After the Port signs the consent decree a public comment period will be held in October or
November 2013 on the remedial investigation/feasibility report, the 2013 consent decree and the
cleanup action plan.  After the consent decree has been finalized, the Port will begin extensive
pre-design sampling in early 2014 with design of the apartment site and lake parcel cleanup
completed in mid-2015. The apartment site remediation will be completed during the summer of
2016, with the lake parcel remediation occurring in the summer of 2017.

COMMISSION AGENDA 
Tay Yoshitani, Chief Executive Officer 
September 16, 2013 
Page 4 of 6 
Schedule: 
2013, 4th Quarter  Public comment period on remedial investigation/feasibility study report and
consent decree. 
2013, 4th Quarter  Final consent decree lodged with the Court. 
2014, 1st and 2nd Quarters  Complete extensive pre-design/confirmation sampling program. 
2014, 3rd and 4th Quarters and 2015 1st and 2nd Quarters  Prepare remedial design documents,
plans and specifications. 
2015, 2nd, 3rd, and 4th Quarters  Advertise construction contract. 
2016  Complete remediation at the Apartments Site and DMCA. 
2017 Complete remediation at the Lake Parcel. 
FINANCIAL IMPLICATIONS 
There is no funding request as part of this authorization since the budget for this requested action
will be authorized in the annual ERL program authorization requests.   All costs will be
accounted for as environmental remediation liabilities and charged to expense in accordance with
Port Policy AC-9. The Airport Development Fund will be the funding source.
Total cost for the entire cleanup is estimated at $18.2 million. The cleanup costs of the Lora Lake
Apartments parcel and the Lora Lake parcel will be accounted for differently. The $4.9 million
cleanup at the lake parcel will be accounted for as an operating cost (recognized in 2013) as the
property is part of the object-free area within the runway protection zone, and therefore no
development is permitted. The Lora Lake Apartments site is not necessary for airfield operations
(although a corner is in the controlled action area of the runway protection zone). The Port's
intent is to clean up the site in anticipation of sale.  The $13.3 million clean-up costs are being
accounted for as non-operating costs ($11.5 million recognized as non-operating expense in
2012, $1.8 million recognized as non-operating expense in 2013). 
The costs are eligible for Remedial Action Grants from Ecology if and when funds for such
grants are available.  An application for such a grant has been submitted to Ecology, requesting
$2.5 million for the 2013-15 biennium, and an additional $7.5 million in the follow biennium. 
STRATEGIES AND OBJECTIVES 
This project will achieve the strategic objective of accomplishing cleanup of the Port's property,
with the intent of returning it to productive use. 
Remediation of the Lora Lake Apartments Site will reduce to acceptable levels threats to the
environment caused by historical property uses and operations, achieving compliance with
regulatory mandates, management of Port liabilities, and support of the local community, all in
alignment with  the goals and objectives of the Century Agenda and Airport Strategies.
Returning the property to productive use benefits both the Airport and the local community.

COMMISSION AGENDA 
Tay Yoshitani, Chief Executive Officer 
September 16, 2013 
Page 5 of 6 
Completion of the site remediation, moreover, is directly responsive to the Port's commitment to 
cooperative Port-City of Burien property redevelopment.
TRIPLE BOTTOM LINE 
Economic Development 
Cleanup of the contaminated site will allow it to be returned to productive use, and support the
surrounding re-development plans of the City of Burien. 
Environmental Responsibility 
State and federal laws require elimination of unacceptable levels of environmental risk caused by
the presence of contaminants in soil, groundwater, and sediment. Project planning and design
efforts are considering and incorporating opportunities for materials reuse, recycling, and/or
reduction. Implementation of the cleanup remedy will include significant environmental controls
and performance monitoring to ensure public health and safety. 
Community Benefit 
From the perspective of the surrounding communities and the customers that we serve, the Port's
participation in site remediation is the hallmark of responsible environmental stewardship.
Cleanup returns contaminated land to a more productive state, supporting the City of Burien
plans for the NERA redevelopment. 
ALTERNATIVES AND IMPLICATIONS CONSIDERED 
The following alternatives were considered for accomplishing the work described in the scope of
work: 
Alternative 1: Do not authorize execution of the consent decree. This alternative would delay
remediation of the site and would not protect the environment. In addition, it would not provide
for the cleanup necessary for the NERA redevelopment. This alternative could also result in the
issuance of a unilateral Ecology enforcement order to perform the work, which would eliminate
Port control over the remediation activity and could result in a significant increase in costs. This
is not the recommended alternative. 
Alternative 2: Authorize execution of the proposed consent decree, but not authorize the start of
design and preparation of construction documents. This would cause the Port to be out of
compliance with the remediation schedule set forth in the consent decree, and would delay the
remediation of the site.  It could also trigger a unilateral enforcement order from Ecology.  This
is not the recommended alternative. 
Alternative 3: Authorize execution of the proposed consent decree and the start of design and
preparation of construction documents. This alternative would result in compliance with the
2013 Consent Decree and facilitate remediation of the site in 2016 and 2017. This is the most
expeditious and cost effective approach. This is the recommended alternative.

COMMISSION AGENDA 
Tay Yoshitani, Chief Executive Officer 
September 16, 2013 
Page 6 of 6 
ATTACHMENTS TO THIS REQUEST 
Draft  MTCA  Consent  Decree  for  environmental  remediation  at  the  Lora  Lake
Apartments Site
PowerPoint presentation. 
PREVIOUS COMMISSION ACTIONS OR BRIEFINGS 
December 4, 2012  The Commission authorized (1) execution of an amendment to the
2009 Agreed Order for additional environmental investigation and remediation planning
for the Lora Lake Apartments site; (2) design and preparation of construction documents
for environmental remediation at the site; and (3) amendment of the professional services
agreement for environmental remediation at the site to $4.4 million, which was more than 
50 percent over the original contract amount. 
December 4, 2012  The Port Commission authorized 2013 expenditure of $44,179,000 
from Port Environmental Reserve funds, for environmental remediation of the various
Port properties for which remediation funds have been reserved.   The Lora Lake
Apartments Property was included in that authorization request. 
December 6, 2011  The Port Commission authorized 2012 expenditure of $56,500,000 
from Port Environmental Reserve funds, for environmental remediation of the various
Port properties for which remediation funds have been reserved.   The Lora Lake
Apartments Property was included in that authorization request.June 9, 2009  The Port
Commission authorized execution of an agreed order with Ecology, issued under MTCA,
for environmental investigation and remediation of the Lora Lake Apartments Site. 
May 5, 2009   The Port Commission authorized procurement of environmental
consulting services to support the Port's implementation of the Lora Lake Apartments
Property remediation.