Record of Decision for Facilities Development Necessary to Support the Homeporting of a Nimitz-Class Aircraft Carrier at the Naval Station, Mayport, Florida

DEPARTMENT OF DEFENSE

Department of the Navy

Record of Decision for Facilities Development Necessary to

Support the Homeporting of a Nimitz-Class Aircraft Carrier at the Naval

Station, Mayport, Florida

Pursuant to section 102(2)C of the National Environmental Policy

Act (NEPA) of 1969 and the Council on Environmental Quality regulations

implementing NEPA procedures (40 CFR parts 1500-1508), the Department

of the Navy announces its findings relative to the analysis of the

facilities development necessary to support the homeporting of a

Nimitz-class aircraft carrier at Naval Station (NAVSTA), Mayport,

Florida. This analysis was required by the National Defense

Authorization Act for Fiscal Year 1993, because under existing carrier

force structure plans, all conventional carriers (CVs) will be replaced

by nuclear-powered carriers (CVNs) at the end of the CVs service life.

NAVSTA Mayport, which has long been a homeport for conventional

aircraft carriers, is currently homeport to the USS Kennedy. The

analysis evaluates the potential environmental impacts associated with

development of facilities to support possible CVN Homeporting at NAVSTA

Mayport in the year 2010.

A notice of intent was published in the Federal Register on October

7, 1993, indicating that Navy would prepare a Programmatic

Environmental Impact Statement (PEIS) evaluating the Facilities

Development Necessary To Support Potential Aircraft Carrier Homeporting

at the Naval Station, Mayport, Florida. A public scoping meeting was

held October 26, 1993 in Neptune Beach, Florida to determine the scope

of significant issues to be examined in the Draft PEIS (DPEIS). The

DPEIS was filed with the U.S. Environmental Protection Agency (EPA) on

March 15, 1996 and was distributed to agencies and officials of

federal, state, and local governments, citizen's groups and

associations, media, public libraries, and interested parties for

review and comment. The notice of filing and notice of public

availability appeared in the Federal Register on March 22, 1996. The

period of public review and comment on the DPEIS was from March 22,

1996 through May 13, 1996. A public hearing was held on April 24, 1996

in Neptune Beach, Florida. Comments on the DPEIS were received in three

forms: (1) Letters, (2) written comments received at the public

hearing, and (3) oral statements made at the hearing. Comments included

concerns regarding wildlife impacts, dredging impacts, water quality,

and housing impacts. Those comments and Navy responses were

incorporated into the Final PEIS (FPEIS), which was filed with the EPA

on March 7, 1997, and distributed for public review. The Notice of

Filing appeared in the Federal Register on March 14, 1997. The period

of public review on the FPEIS ended on April 14, 1997.

The PEIS evaluated the reasonable alternatives to implementing CVN

homeporting at NAVSTA Mayport and the potential environmental impacts

of new construction, facilities modification, dredging, and operation

of a CVN at NAVSTA Mayport. In addition to the various alternatives

discussed in the PEIS, a ``No Action'' alternative was evaluated. In

the ``No Action'' alternative, NAVSTA Mayport would not be evaluated as

a second potential East Coast CVN Homeport, thus leaving all CVNs

homeported in Norfolk, Virginia. This alternative was dismissed because

it fails to meet the requirements of Pub. L. 102-484 which requires

Navy to prepare a plan which could develop NAVSTA Mayport as a Nimitz-

Class aircraft carrier homeport.

NAVSTA Mayport has two conventionally-powered aircraft carrier

berthing wharves, Wharf C-1 and Wharf C-2, neither of which are

currently able to accommodate CVN draft, electrical, and maintenance

requirements. Wharf C-1 was eliminated from further evaluation because

it provides no berthing or infrastructure advantage over Wharf C-2 and

because Wharf C-2 has better opportunities for providing security.

Three berthing alternatives were evaluated throughout the PEIS: Wharf

C-2, Wharf F (an industrial maintenance wharf), and a dual capability

concept where both Wharf C-2 and Wharf F are used. The dual capability

configuration was chosen as the preferred alternative because it offers

the most operational flexibility, allowing continued use of Wharf F as

an industrial rework facility, even when the carrier is in port.

New construction necessary to support the depot-level maintenance

requirements of a CVN homeported at NAVSTA Mayport would include a

depot-level maintenance facility (DMF). The DMF would comprise three

main components: Controlled Industrial Facility (CIF), Ship Maintenance

Facility (SMF), and Maintenance Support Facility (MSF). The DMF and its

surrounding areas would have to be capable of supporting a work force

of approximately 1,000 workers per day. This would include shipboard

workers, within the facility, and the project management team. The SMF

facility would house all non-controlled propulsion plant work, material

inspection and storage, and pure water production. Radiological work to

be performed at the DMF would occur in the CIF, while the MSF would

include the administrative functions.

Pierside improvements discussed in the PEIS would include required

modification to the two wharves considered for berthing of a CVN, Wharf

C-2 and Wharf F. Structural analysis of each wharf for the dredge depth

of 50 feet below Mean Lower Low Water (mllw), for the additional

loading introduced by a 100-ton mobile crane at the wharves, and for

more rigorous mooring standards were performed to assist in the wharf

improvements recommendations and the analysis results were summarized

in the PIES. Assessments of the existing infrastructure (utilities)

were also performed and the study results summarized in the PEIS.

[[Page 44955]]

The Jacksonville District U.S. Army Corps of Engineers (USACE)

completed a study in 1994 of dredged material disposal areas for the

Navy. The dredged material disposal alternatives considered for the

potential homeporting at NAVSTA Mayport included: (1) The Jacksonville

offshore dredged material disposal site (ODMDS), (2) diked upland

disposal, (3) beach nourishment, and (4) beneficial uses.

Sediment quality, sediment volume, and the practicality and

feasibility of disposal were considered during the evaluation of

dredged material disposal alternatives. The preferred alternative

method and site selected for the disposal of new work and maintenance

dredged material is the Jacksonville ODMDS. All other methods and sites

discussed in the USACE dredge study were dismissed as being too costly

or not feasible for the potential homeporting project. New work

dredging would utilize both hopper dredging and clam shell dredging

methods.

The ODMDS is located approximately five miles southeast of the

entrance marker for the Jacksonville Harbor Channel. An ODMDS Site

Management and Monitoring Plan (SMMP) prepared by EPA limits annual

dredged material disposal volumes to two million cubic yards (MCY).

Navy's plan to dispose of approximately 5.7 MCY in 18 months would

exceed this limitation. In order not to exceed the SMMP limits, the

Navy could extend the dredging work period to 36 months or more, or

should Navy wish to proceed with the 18 month disposal plan, the Navy

would have to conduct additional dispersion predictive model studies.

If the results of these model studies demonstrated that sufficient

dispersive characteristics could be achieved, the disposal volume

restriction on ODMDS could be waived or modified. Also, sediment

sampling and bioassay testing of dredged material is required by the

EPA prior to authorization of offshore disposal. Samples have been

taken from the Mayport turning basin and the entrance channel. The EPA

has reviewed the sediment and water quality analysis from these areas

and has concurred with the finding that the material is suitable for

ocean disposal in the Jacksonville ODMDS in accordance with the Marine

Protection Research and Sanctuaries Act. This concurrence is valid

through March 1999, contingent upon finalization of the SMMP,

therefore, if a future proposal is made to homeport a CVN at NAVSTA

Mayport, additional sediment characterization would be required.

Impacts from construction and operations of proposed facilities

were evaluated in the PEIS. Other impacts evaluated included those

associated with the increased CVN crew size and their dependents,

construction personnel, and maintenance facilities personnel. A summary

of the physical, biological, and socioeconomic impacts that would be

caused by the potential action follows.

The St. Johns River entrance channel, the entrance channel to

NAVSTA Mayport, and the turning basin would be dredged to 50 feet below

mllw, plus two-foot overdredge, to accommodate the water depth

requirements for a CVN. The total volume of the dredged material would

be approximately 5.7 MCY. Dredging and dredged material disposal

operations would temporarily cause turbidity in the water. Navy would

comply with the provisions of Section 10 of the Rivers and Harbors Act

of 1899, Section 103 of the Marine Protection, Research, and

Sanctuaries Act of 1972, and Section 404 of the Clean Water Act, by

obtaining all required permits from the USACE, the Florida Department

of Environmental Protection (FDEP), and the St. John's River Water

Management District.

Construction activities would disturb approximately 20 acres of

land, some of which have been previously disturbed. Potential short-

term erosion would be minimized by implementing erosion control

measures as required by the National Pollutant Discharge Elimination

System (NPDES) General Permit for Construction Activity. Since more

than five acres would be disturbed for the construction, a Notice of

Intent (NOI) would be submitted to EPA, Region IV should a future

proposal be made. The NOI would describe preparation and implementation

of a Storm Water Prevention Plan. Accidental spills of hazardous

materials during construction and operation of facilities would be

contained, and remediated, following existing Navy contingency plans.

These measures and plans would also protect water resources in the

area.

Short-term impacts to local air quality would be expected from

operation of heavy construction equipment, including dredges. No

permanent deterioration of air quality would result from the associated

construction activities. Operation of the maintenance facilities would

produce welding fumes, cleaning solution fumes, and other emissions.

All sources would comply with the air regulations in the Florida

Administrative Codes. Emissions from dredging would possibly be above

de minimis levels for the ozone precursor nitrogen oxide

(NOX) and a conformity determination would be prepared if

Duval County is still classified as a maintenance area should the

project be proposed. Further mitigative measures such as extending the

work period to reduce annual emissions could be required as a result of

the analysis. Maintenance facilities would produce emissions from paint

booths and solvents. Emissions controls will be used as required by the

FDEP permits. Construction and operation of facilities would generate

noise in the waterfront area. Noise levels would be similar to existing

levels in this industrial area.

Wastewater from the CVN and maintenance facilities would be

discharged to existing shore facilities. The NAVSTA Mayport wastewater

treatment plant has capacity for the anticipated slight increase in

volume and would treat the water to permit standards before discharge.

Industrial/bilgewater (including oily wastewater) production is less

for a CVN than a CV and would be pretreated at the oily wastewater

treatment plant.

Four acres of existing landscaped vegetation would be removed

during construction. Open areas of the sites would be revegetated

following construction. Dredging would affect aquatic species, causing

some to relocate temporarily. The feeding areas of some birds would be

temporarily disturbed.

Plankton and benthos in the turning basin would be temporarily

affected by wharf construction and dredging. Dredged material disposal

at the ODMDS would also temporarily affect biological communities.

These communities would recover shortly after the activities. It is not

anticipated that threatened and endangered species would be adversely

affected by construction, dredging, or facilities operations.

Particular attention will be paid during dredging to safeguard marine

mammals (e.g., manatees and right whales) by controlling timing and

speeds, and by employing lookouts for early detection.

Should Navy pursue future homeporting of a CVN at NAVSTA Mayport,

coordination would occur with U.S. Fish and Wildlife Service, National

Marine Fisheries Service, EPA, FDEP and other state regulatory agencies

to effect full compliance with the Marine Protection, Research, and

Sanctuaries Act, Endangered Species Act, and the Fish and Wildlife

Coordination Act.

In accordance with section 106 of The National Historic

Preservation Act, potential impacts to historic and archeological

resources have been

[[Page 44956]]

evaluated. No known archeological or historic architectural sites are

documented in the proposed construction or facility improvement areas.

No historic or archeological sites are expected to be encountered

during the dredging activity; however, should sites or artifacts be

encountered during dredging, the activities would cease and site

inspections would be performed. The State of Florida Historic

Preservation Officer has concurred with this analysis.

A CVN has a crew size of 3,217 persons which is 102 persons more

than that of a CV. The potential increase in personnel and dependents

from replacing an existing CV with a CVN would be approximately 217

persons. Most of the additional crew would live aboard the carrier. On-

base family housing resources are anticipated to remain at full

occupancy, and the additional personnel with families would probably

seek housing in residential areas near NAVSTA Mayport.

The maintenance facilities would employ approximately 1,000 workers

during a six month maintenance availability. These employees would live

in rental housing (apartments, hotels, motels, and other). This would

have a positive economic effect on the temporary housing market.

Most of the utilities requirements of the carrier can be supplied

by the existing infrastructure within the station. Additional

electrical substations and connections to wharf outlets would be

required. NAVSTA Mayport can supply the additional water supply

requirement of 32,000 gallons per day (GPD), and wastewater treatment

facilities have approximately 0.7 million gallons per day (MGD)

available capacity.

Approximately 15,000 pounds per year of hazardous waste would be

generated from CVN activities in port, approximately the same amount as

for a CV. The waste storage facility on base has adequate capacity to

store the waste. Construction of maintenance facilities located

southwest of Wharf F could impact a contaminated site [Solid Waste

Management Unit (SWMU #23)]. Should this occur, an additional

investigation and possible cleanup may be required.

A minor increase in vehicle trips would result from homeporting the

CVN, and these would be distributed throughout the area. Roadway

improvements to Mayport Road and Atlantic Boulevard proposed by the

Jacksonville Transportation Authority would improve levels of service

on area roadways. The proposed Wonderwood Expressway would also improve

access in the area of the Naval Station.

Pursuant to Executive Order 12898, Environmental Justice, potential

environmental and economic impacts on minority and low-income persons

and communities were assessed. No disproportionate concentrations of

minority or low-income populations were identified in the area of

impact of the potential facilities and operations. Additionally, Navy

has ensured that opportunities for community participation (including

minority and low-income persons and populations) in the NEPA process

have been provided.

The population increase associated with CVN homeporting would place

minor additional demands on housing and community services, such as

police, fire, recreation, and education. These effects would be a small

part of the total impact from projected population increases in the

Jacksonville area from other (non-Navy) causes.

The completion of this PEIS fulfills the Navy requirements to

analyze NAVSTA Mayport as a second East Coast homeport for a Nimitz-

Class aircraft carrier as required by Public Law 102-484. The analysis

presented in the PEIS and supporting studies indicate that NAVSTA

Mayport is a feasible homeport site should the Navy define such a need

in the future providing the identified construction, renovations, and

dredging can be accomplished.

Should the Navy decide to pursue facilities development necessary

to support a CVN at NAVSTA Mayport, additional NEPA analysis would be

conducted defining the action as then proposed. If the proposed

dredging would occur after March 1999, bioassay analysis will be

required for all new work dredged material. Also, should the Navy

exceed the OSMDS SMMP annual dredged material disposal limits of two

million cubic yards per year, dispersion modeling will need to be

performed to determine if the annual disposal volume limit on the OSMDS

site may be modified or waived. Finally, a conformity determination for

the ozone precursor NOX would be prepared if Duval County

were still classified as a maintenance area when the project was

proposed.

Questions regarding the Environmental Impact Statement prepared for

this action may be directed to Southern Division, Naval Facilities

Engineering Command, P.O. Box 190010, North Charleston, South Carolina

29419-9010 (Attn: Mr. Ronnie Lattimore, Code 064RL), telephone (803)

820-5888.

Dated: August 19, 1997.

Duncan Holaday,

Deputy Assistant Secretary of the Navy, (Installations and Facilities).

[FR Doc. 97-22492 Filed 8-22-97; 8:45 am]

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