Record of Decision for the Disposal and Reuse of Naval Air Station Cecil Field, Duval and Clay Counties, Florida

DEPARTMENT OF DEFENSE

Department of the Navy

Record of Decision for the Disposal and Reuse of Naval Air

Station Cecil Field, Duval and Clay Counties, Florida

SUMMARY: The Department of the Navy (Navy), pursuant to Section

102(c)(C) of the National Environmental Policy Act of 1969 (NEPA), 42

U.S.C. 4332(2)(C) (1994), and the regulations of the Council on

Environmental Quality that implement NEPA procedures, 40 CFR Parts

1500-1508, hereby announces its decision to dispose of Naval Air

Station (NAS) Cecil Field, which is located in Duval County and Clay

County, Florida.

Navy analyzed the impacts of the disposal and reuse of NAS Cecil

Field in an Environmental Impact Statement (EIS), as required by NEPA.

The EIS analyzed five reuse alternatives and identified the NAS Cecil

Field Final Base Reuse Plan dated February 1996 (Reuse Plan) as the

Preferred Alternative. The Preferred Alternative proposed to use the

base for aviation, industrial, commercial, forestry and conservation

activities; to develop public parks and recreational areas; and to

establish a natural resource corridor. The City of Jacksonville is the

Local Redevelopment Authority (LRA) for NAS Cecil Field. Department of

Defense Rule on Revitalizing Base Closure Communities and Community

Assistance (DoD Rule), 32 CFR 176.20(a).

Navy intends to dispose of NAS Cecil Field in a manner that is

consistent with the Reuse Plan. Navy has determined that the proposed

mixed land use will meet the goals of achieving local economic

redevelopment and creating new jobs, while limiting adverse

environmental impacts and ensuring land uses that are compatible with

adjacent property. This Record of Decision does not mandate a specific

mix of land uses. Rather, it leaves selection of the particular means

to achieve the proposed redevelopment to the acquiring entities and the

local zoning authorities.

Background: Under the authority of the Defense Base Closure and

Realignment Act of 1990 (DBCRA), Public Law 101-510, 10 U.S.C. 2687

note (1994), the 1993 Defense Base

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Closure and Realignment Commission recommended the closure of Naval Air

Station Cecil Field. This recommendation was approved by President

Clinton and accepted by the One Hundred Third Congress in 1993. The

base is scheduled to close on September 30, 1999.

Most of the property comprising NAS Cecil Field is located in the

southwestern part of Duval County, Florida, about 14 miles west of the

City of Jacksonville's downtown area. Duval County and the City of

Jacksonville have congruent geographic boundaries and a largely

consolidated government.

The Cecil Field property covers 40,354 acres and consists of nine

parcels that are owned or otherwise controlled by Navy through special

use permits and easements. The base's Main Station, located in Duval

and Clay Counties, covers about 9,336 acres of Navy-owned property.

Navy controls an additional 180 acres near the Main Station by way of

easements for air operations. The Yellow Water Weapons Area, located in

Duval County just north of the Main Station, covers about 8.118 acres

of Navy-owned property.

Outlying Landing Field (OLF) Whitehouse, located in Duval County

about seven miles north of the Main Station, covers about 1,907 acres

of Navy-owned property. Navy controls an additional 658 acres near OLF

Whitehouse by way of easements for air operations. The Pinecastle

Target Complex covers about 2,691 acres of Navy-owned property. Navy

controls an additional 17,409 acres by way of special use permits for

target range operations. Navy controls an additional three acres near

the ranges by way of easements that permit travel on access roads. The

Palatka Radar Site is located at the Kay Larkin Airport in Putnam

County and covers one acre controlled by way of a special use permit.

The last parcel, known as the Tactical Aircrew Training System, is

located in McIntosh County, Georgia. It covers about 51 acres of Navy-

owned property.

The Pinecastle Target Complex is composed of four parcels. The

Stevens Lake Range, located in Clay County about 20 miles south of

downtown Jacksonville, covers about 2,554 acres and is controlled by

way of a special use permit. The Rodman Range, located in Putnam County

about 50 miles south of downtown Jacksonville, covers about 2,690 acres

of Navy-owned property and two and one half acres that Navy controls

through easements. The Lake George Range, located in Putnam County and

Volusia County about 65 miles south of downtown Jacksonville, covers

about one acre of Navy-owned property, one half acre controlled through

easements, and about 8,960 acres that Navy controls by way of a special

use permit. The Pinecastle Range, located in Lake County and Marion

County about 80 miles south of downtown Jacksonville, covers about

5,895 acres that Navy controls by way of a special use permit.

The 1995 Defense Base Closure and Realignment Commission modified

in the 1993 Commission's recommendation by directing Navy to retain

certain properties associated with NAS Cecil Field in support of

operations at the nearby Naval Air Station Jacksonville. The 1995

Commission's recommendation was approved by President Clinton and

accepted by the One Hundred Fourth Congress in 1995.

The retained properties consist of 200 units of military family

housing situated on 252 acres in the southwest corner of the Yellow

Water Weapons Area; OLF Whitehouse; the Pinecastle Target Complex,

including the Stevens Lake Range, the Rodman Range, the Lake George

Range, and the Pinecastle Range; the Palatka Radar Site; and the

Tactical Aircrew Training System site.

This Record Of Decision addresses the disposal and reuse of those

parts of NAS Cecil Field that are surplus to the needs of the Federal

Government. This property, located on the Main Station and at the

Yellow Water Weapons Area, covers about 17,202 acres of Navy-owned

property. Navy will transfer its interests in the easements to the

acquiring entities. These easements impose restrictions on 180 acres of

private property near the northeast corner of the Main Station. The

surplus property at the base contains about 175 buildings and

structures that provide about 2.9 million square feet of space.

The Main Station is located south of Normandy Boulevard (Duval

County Route 228), which separates the Main Station from the Yellow

Water Weapons Area. The Main Station contains four runways: two

parallel 8,000-foot runways and one 12,500-foot runway with a parallel

8,000-foot runway. There are eight hangars and associated aviation

maintenance and fueling facilities. The Main Station has administrative

offices, training facilities, personnel support facilities, medical

facilities, recreational areas, and 97 family housing units. It also

contains large areas of undeveloped forests, clearings, and wetlands.

The Yellow Water Weapons Area is located north of Normandy

Boulevard. It contains ordnance storage buildings, maintenance

facilities, barracks, personnel support facilities, and recreational

areas as well as the 200 family housing units retained by Navy. Most of

the Yellow Water Weapons Area consists of undeveloped forests,

clearings, and wetlands.

Navy published a Notice of Intent in the Federal Register on

January 25, 1995, announcing that Navy would prepare an EIS for the

disposal and reuse of NAS Cecil Field. On February 9, 1995, Navy held a

public scoping meeting at the Post of Snyder, Army National Guard

Center in Jacksonville, Florida, and the scoping period concluded on

March 11, 1995.

Navy distributed the Draft EIS (DEIS) to Federal, State, and local

governmental agencies, elected officials, community groups and

associations, and interested persons on April 25, 1997, and commenced a

45-day public review and comment period. During this period, Federal,

State, and local agencies, community groups and associations, and

interested persons submitted oral and written comments concerning the

DEIS. On May 27, 1997, Navy held a public hearing at the Army National

Guard Center to receive comments on the DEIS.

Navy's responses to the public comments were incorporated in the

Final EIS (FEIS), which was distributed to the public on October 16,

1998, for a review period that concluded on November 23, 1998. Navy

received three letters commenting on the FEIS.

Alternatives: NEPA requires Navy to evaluate a reasonable range of

alternatives for the disposal and reuse of this surplus Federal

property. In the FEIS, Navy analyzed the environmental impacts of five

reuse alternatives. Navy also evaluated a ``No Action'' alternative

that would leave the property in caretaker status with Navy maintaining

the physical condition of the property, providing a security force, and

making repairs essential to safety.

On July 19, 1993, the City of Jacksonville, acting as the LRA,

established the Base Conversion and Redevelopment Commission. City of

Jacksonville Executive Order 93-167. On December 19, 1994, the City of

Jacksonville renamed this body the Cecil Field Development Commission.

City of Jacksonville Executive Order 94-190. The Commission conducted

six public forums, held numerous meetings, and made several public

presentations where it solicited comments from the public concerning

the proposed reuse of NAS Cecil Field. On February 26, 1996, the

Commission completed the NAS Cecil Field Final Base Reuse Plan, and, on

April 22, 1997, the Jacksonville City Council approved the Reuse Plan.

City Council Resolution No. 97-329-A. On

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July 10, 1997, the City of Jacksonville dissolved the Cecil Field

Development Commission and assigned responsibility for redevelopment of

the base to the Jacksonville Economic Development Commission. City of

Jacksonville Executive Order 97-210.

The Reuse Plan, identified in the FEIS as the Preferred

Alternative, proposed a mix of land uses. The Preferred Alternative

would use the runways, hangars, and related maintenance buildings,

covering 2,013 acres, as an airport serving civilian general aviation

and military helicopter operations. This Alternative would use 3,453

acres for light industrial activities; 1,030 acres for heavy industrial

activities; 206 acres for commercial retail activities; 2,944 acres for

parks and recreational activities; 2,836 acres for forestry; and 640

acres for conservation purposes. The Preferred Alternative proposed to

reserve 4,080 acres for forest land for future expansion of the airport

facilities. The Preferred Alternative would also establish a Natural

and Recreation Corridor to protect wildlife and habitat. It will be

necessary to make extensive utility infrastructure and roadway

improvements to support the Reuse Plan's proposed redevelopment of

undeveloped property at Cecil Field.

On the Main Station's southern edge, the Preferred Alternative

proposed to use 640 acres as a conservation area. North and northeast

of this conservation area, the Preferred Alternative would reserve two

parcels, comprising about 4,080 acres of forest land, for future

expansion of the airport facilities. The four runways, located north of

the conservation area and between the two forestry parcels, would be

used for air operations. The eight hangars and related maintenance

buildings, located north and west of the runways, would be used for

aviation operations and support services. Some of the aviation

facilities would be used by helicopter units of the Florida National

Guard. Some buildings located north and west of the hangars and

maintenance buildings would be demolished to build new facilities for

use in heavy industries such as manufacturing and as shops for

assembling automotive and aviation parts.

The barracks, classrooms, and offices in the area north and west of

the hangars would be retained and used as a conference and training

center for private entities occupying buildings on the property. West

of this conference and training center, the property that presently

includes the Cecil Field golf course, Lake Fretwell, and Lake Newman

would be maintained as a recreational area. On the western edge of the

Main Station, the undeveloped property would be maintained as forest

land.

North of the heavy industrial area, on the southern side of

Normandy Boulevard, the Preferred Alternative would build commercial

facilities such as retail stores, banks and credit unions, and a United

States Post Office. East of this commercial area and north of the

aviation facilities, the Preferred Alternative would build new light

industrial facilities.

At the Yellow Water Weapons Area, north of Normandy Boulevard,

property in the eastern half and in the central part would be

redeveloped for light and heavy industrial activities. In the northwest

corner, the Preferred Alternative would maintain the undeveloped forest

land. In the southwest corner, the Preferred Alternative would provide

a recreational area. On the southern edge of the Yellow Water Weapons

Area, along Normandy Boulevard, the Preferred Alternative would build

facilities for commercial activities similar to those proposed for the

Main Station.

The property located in the western parts of the Main Station and

Yellow Water Weapons Area to be used for forestry, forestry reserve and

conservation purposes and about half of the parks and recreational area

would also be designated as a Natural and Recreation Corridor

(Corridor). This Corridor, covering about 6,306 acres, would connect

Carey State Forest north of the Yellow Water Weapons Area with Jennings

State Forest south of the Main Station. The Corridor would preserve

significant natural resources and enable wildlife to migrate between

these two State forests.

To establish and maintain the Corridor, the City of Jacksonville,

the Jacksonville Port Authority, Clay County, the Florida Department of

Environmental Protection, and the St. Johns River Water Management

District entered into a Memorandum Of Understanding (MOU) on March 13,

1998. This MOU recognizes that the western part of the base contains

significant natural resources and is more suited for conservation and

passive recreational activities. The MOU provides that the Corridor and

the two State forests will be managed uniformly as an integrated system

of wetlands and upland forests.

Navy analyzed a second ``action'' alternative, described in the

FEIS as Alternative Reuse Scenario (ARS) 1. In ARS 1, the acquiring

entity would own the property but would not prepare a redevelopment

plan for it. Instead, the acquiring entity would publicize the

availability of existing facilities on the Main Station for reuse. This

Alternative would not use the base's aviation facilities as a general

aviation airport and would dedicate the entire Yellow Water Weapons

Area, covering about 7,866 acres, to forestry use.

On the Main Station, ARS 1 proposed to use 158 acres, including

some of the aviation facilities in the developed area north and west of

the runways, for the Florida National Guard's helicopter operations.

This Alternative would use the remaining facilities covering 893 acres

at the Main Station for office and light industrial activities. South

of Normandy Boulevard and west of the developed area, this Alternative

proposed to use 573 acres for parks and recreational activities. These

activities would include use of the Cecil Field golf course and the

recreational areas at Lake Fretwell and Lake Newman. The remaining

7,712 acres in the western, southern and eastern parts of the Main

Station would be dedicated to forestry.

Navy analyzed a third ``action'' alternative, described in the FEIS

as ARS 2. In ARS 2, the acquiring entity would take only moderate

action to stimulate redevelopment of the base. Instead, redevelopment

would focus on using the existing facilities for civilian general

aviation and military helicopter operations and market-driven office

and light industrial activities. Most of the property, i.e., 11,737

acres, would be dedicated to forestry uses.

On the Main Station, ARS 2 proposed to use 1,833 acres for civilian

general aviation and military helicopter operations like those proposed

in the Preferred Alternative. The four runways, eight hangars and

related maintenance buildings would be used for aviation operations and

support services. North and west of the aviation facilities and

runways, ARS 2 proposed to use the remaining buildings on the Main

Station for office and light industrial activities. South of Normandy

Boulevard and west of the developed area, this Alternative would

provide a park and recreational area that would include use of the

Cecil Field golf course and the recreational areas at Lake Fretwell and

Lake Newman. The remaining Main Station property i.e., the western,

southern and eastern parts, would be maintained as undeveloped forest

land.

At the Yellow Water Weapons Area, ARS 2 proposed to use the

ordnance storage buildings, maintenance facilities, barracks, and

personnel support facilities in the center of the property for office

and light industrial activities. This Alternative would provide a park

and recreational area in

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the southwest corner. The remaining property in the Yellow Water

Weapons Area, i.e., the eastern, northern, and northwestern parts,

would be maintained as undeveloped forest land.

Navy analyzed a fourth ``action'' alternative, described in the

FEIS as ARS 3. In ARS 3, the acquiring entity would direct and market

the redevelopment of Cecil Field for non-aviation uses. Thus, all of

the aviation facilities would be modified to serve non-aviation

purposes or would be demolished. This Alternative proposed to build a

3,250-unit residential community on 3,437 acres in the eastern part of

the Main Station where the Preferred Alternative would reserve forest

land for future expansion of the airport.

On 786 acres west of this residential area, ARS 3 would use the

existing aviation facilities in the developed area for commercial

purposes. North of these businesses, ARS 3 proposed to build a 241-acre

business park. At the southern end of the Main Station, ARS 3 proposed

to maintain 2,291 acres of undeveloped forest land for conservation

purposes. North and northwest of this conservation area, ARS 3 proposed

to build manufacturing facilities.

South of Normandy Boulevard and west of the developed area, this

Alternative would provide a park and recreational area that would

include use of the Cecil Field golf course and the recreational areas

at Lake Fretwell and Lake Newman. South of Normandy Boulevard and north

of the residential area, ARS 3 would build commercial facilities such

as retail stores, banks and credit unions, and a United States Post

Office to support the residential community.

At the Yellow Water Weapons Area, ARS 3 proposed to build light

industrial facilities on 4,184 acres located in the northern and

eastern parts of the property. In the center of the property, at the

developed ordnance storage area, ARS 3 would use 1,574 acres for open

space. On the western side and in the southwest corner of the Yellow

Water property, ARS 3 proposed to build manufacturing facilities.

Navy analyzed a fifth ``action'' alternative, described in the FEIS

as ARS 4. This Alternative proposed aggressive redevelopment and

marketing of NAS Cecil Field for aviation and other industrial uses

similar to the Preferred Alternative. It proposed to use the runways,

hangars, and related maintenance buildings, covering 2,011 acres, as an

airport serving civilian general aviation and military helicopter

operations. This Alternative would use 3,362 acres for light industrial

activities; 1,029 acres for heavy industrial activities; 1,565 acres

for correctional facilities; 207 acres of commercial retail activities;

2,955 acres for parks and recreational activities; 980 acres for

forestry; and 641 acres for conservation purposes. It also proposed to

reserve 4,452 acres of forest land for future expansion of the airport

facilities.

At the southern end of the Main Station, ARS 4 proposed to use 641

acres as a conservation area. North and northeast of this conservation

area, ARS 4 would reserve two parcels, comprising 4,452 acres of forest

land, for future expansion of the airport facilities. The four runways,

located north of the conservation area and between the two forestry

parcels, would be used for air operations. The eight hangars and

related maintenance buildings, located north and west of the runways,

would be used for aviation operations and support services. Some of the

aviation facilities would be used by helicopter units of the Florida

National Guard. Some of the existing buildings located north and west

of the hangars and maintenance buildings would be demolished to build

new facilities for use in heavy industries such as manufacturing and as

shops for assembling automotive and aviation parts.

The barracks, classrooms, and offices in the area north and west of

the hangars would be retained and used as a conference and training

center for private entities occupying buildings on the property. West

of this conference and training center, the property that presently

includes the Cecil Field golf course, Lake Fretwell, and Lake Newman

would be maintained as a recreational area. This Alternative also

proposed to build light industrial facilities on property located west

of the recreational area that the Preferred Alternative would maintain

as forest land.

North of the heavy industrial area, on the southern side of

Normandy Boulevard, ARS 4 would build commercial facilities such as

retail stores, banks and credit unions, and a United States Post

Office. East of this commercial area and north of the aviation

facilities, ARS 4 would build new light industrial facilities.

In the center of the Yellow Water Weapons Area, ARS 4 proposed to

build a 1,439-acre State Corrections Facility and a 126-acre State

Juvenile Justice Facility. In the eastern half of the Yellow Water

Weapons Area, ARS 4 proposed to build heavy and light industrial

facilities. In the northwest corner, this Alternative would maintain

the undeveloped forest land. On the western side and in the southwest

corner, it would provide a park and recreational area. On the southern

edge of the property, along Normandy Boulevard, ARS 4 would build

facilities for commercial activities like those proposed for the Main

Station.

Environmental Impacts: Navy analyzed the direct, indirect, and

cumulative impacts of the disposal and reuse of this surplus Federal

property. The EIS addressed the impacts of the Preferred Alternative,

ARS 1 through ARS 4, and the ``No Action'' Alternative for each

alternative's effects on land use and aesthetics, topography, geology

and soils, terrestrial resources, water quality and hydrology, climate

and air quality, noise, socioeconomics and community services,

transportation, infrastructure and utilities, cultural resources, and

hazardous materials management and environmental contamination. This

Record Of Decision focuses on the impacts that would likely result from

implementation of the Reuse Plan, identified in the FEIS as the

Preferred Alternative.

The Preferred Alternative would not have any significant impact on

land use. While many areas at NAS Cecil Field are constrained by

features such as wetlands and wildlife habitats, there are also large

areas of land that are not restricted and could reasonably support new

development. An area of about 29 million square feet could be developed

without adversely affecting environmentally sensitive features such as

wetlands, wildlife habitat, environmental cleanup sites, the 100-year

floodplain, and archaeologically sensitive areas. Thus, the 3.9 million

square feet of new development proposed by the Reuse Plan would not

have an impact on land use.

The land uses proposed in the Preferred Alternative would be

generally compatible with each other. While the proposed heavy

industrial areas are not consistent with the adjacent parks and

recreational areas, the establishment of buffer zones between these

activities would minimize any such impact.

The land uses proposed in the Preferred Alternative would also be

generally compatible with adjacent off-base land uses. Although the

light industrial area in the eastern half of the Yellow Water property

would be adjacent to private property currently zoned for low density

residential and commercial land uses, the establishment of buffer zones

between these incompatible uses would minimize any such impact.

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The Preferred Alternative would not have any significant impact on

aesthetic resources because it would not alter the overall aesthetic

character of NAS Cecil Field. Indeed, the Reuse Plan calls for the

removal of structures and utilities that would not be used and the

preservation of existing positive visual features such as the tall pine

trees that constitute the dominant aesthetic characteristic of the

undeveloped areas.

The Preferred Alternative would not have any significant impact on

soils and would not have any impact on local or regional geological

resources or topography. Disturbance of soils by compaction, rutting,

and erosion would be limited to those areas that would be redeveloped.

These impacts would be temporary and can be minimized during

construction by the use of standard soil erosion and sedimentation

control measures such as the use of the hay bales and silt fences.

The Preferred Alternative would not have any significant impact on

upland vegetation and wildlife. Although the proposed construction

would result in some loss of vegetation and associated wildlife

habitat, these impacts would be limited to the areas under

construction. They can be minimized by retaining surrounding native

vegetation and maintaining connections between habitats. The Natural

and Recreation corridor will provide protection for most of the

wildlife habitat.

The Preferred Alternative would not have any significant impact on

wetland vegetation and wildlife. The non-wetland areas available for

redevelopment can accommodate the proposed new construction without

encroaching on existing wetlands. Most of the existing wetlands are

located in the northwest corner of the Yellow Water Weapons Area, which

would be maintained as forest land and placed in the Natural and

Recreation Corridor. Another large area of wetlands located on the Main

Station in the forest land east of the runways would be reserved for

future airport expansion. Further redevelopment plans that may affect

wetlands would be subject to the regulations that implement Section 404

of the Clean Water Act, 33 U.S.C. 1344 (1994). These regulations are

set forth at 33 CFR Part 323 and are enforced by the United States Army

Corps of Engineers.

The Preferred Alternative would not have any significant impact on

endangered, threatened, or other species protected under Federal and

State laws. Pursuant to Section 7 of the Endangered Species Act of 1973

(ESA), 16 U.S.C. 1536 (1994), Navy conducted a biological assessment to

determine the presence of Federally-listed endangered and threatened

species. Although not required by Section 7 of ESA, Navy also included

in this assessment those species that are identified as endangered,

threatened, or of concern under Florida law.

No Federally-listed endangered or threatened species were found to

be present at NAS Cecil Field. The assessment demonstrated, however,

that the base provides suitable habitat for one mammal, three birds,

five reptiles and amphibians, and nine plant species that are either

endangered, threatened, or otherwise protected under Federal and State

laws. The habitats suitable for 13 of these 18 species are located in

wetlands that would be avoided during implementation of the Preferred

Alternative. As discussed earlier, the impact on habitats would be

limited to the particular areas under construction and can be mimized

by retaining surrounding native vegetation and maintaining connections

between habitats.

Based upon the findings of the biological assessment, Navy

determined that the disposal and reuse of Cecil Field would not have

any adverse effect on Federally-listed endangered or threatened

species. In a letter dated August 20, 1998, the United States Fish And

Wildlife Service concurred in Navy's determination.

Additionally, the City of Jacksonville amended the Jacksonville

2010 Comprehensive Plan to require a survey that would ascertain the

presence of Federally and State-listed species in all areas proposed

for redevelopment. This Plan is the local development plan required by

Florida law to ensure that future development is consistent with the

long range goals, objectives, and policies guiding social, economic,

and physical growth of the State. Fla. Stat. Secs. 163.3161-3244

(1997). If the survey reveals the presence of Federally or State-listed

species, the City will require the developer to prepare a habitat

management plan that describes the manner in which the Federally or

State-listed species will be protected from the impacts of the proposed

redevelopment.

The Preferred Alternative would not have any significant impact on

water quality. The closure of Cecil Field's wastewater treatment plant

and replacement by the City of Jacksonville's wastewater system would

improve water quality by eliminating the treated discharge that

previously flowed into Rowell Creek. However, stormwater discharges

from new industrial activities, roadways and parking areas and from

routine operations and maintenance in the developed areas (such as the

application of herbicides and pesticides) could have adverse impacts on

the surface water quality of Rowell Creek, Sal Taylor Creek, Yellow

Water Creek, Lake Fretwell, and Lake Newman. In accordance with

Federal, State, and local laws and regulations, the acquiring entities

will implement stormwater management practices to minimize these

potential impacts.

The Preferred Alternative would not have any significant impact on

the availability or quality of groundwater. The groundwater under NAS

Cecil Field does not contribute to the Floridian Aquifer, which is the

main source of drinking water for Duval County.

The Preferred Alternative would not have any significant impact on

surface water hydrology. There would be no realignment of streams or

physical alternation of wetlands during construction, other than

alterations that would enhance the wetlands system in the Corridor.

The Preferred Alternative would not have any significant impact on

local or regional climatic conditions. The regional climate would not

change as a result of implementing the proposed Reuse Plan.

The Preferred Alternative would not have any significant impact on

air quality. The base is located in an ozone maintenance area, which is

defined by the Clean Air Act, 42 U.S.C. 7401-7671q (1994), as a

transition between non-attainment and attainment status for common air

pollutants. The base is in attainment for all other common air

pollutants. Ozone, commonly known as smog, is produced when volatile

organic compounds and nitrogen oxides react in the atmosphere, and

emissions of these pollutants would decrease under the Reuse Plan.

However, emissions of two other common air pollutants, carbon monoxide

and small particulate matter, may increase under the Reuse Plan.

Carbon monoxide is produced by the burning of fossil fuels.

Compared with pre-closure levels, the Reuse Plan projects that annual

emissions of carbon monoxide would increase by 407 tons, largely as the

result of increased vehicular traffic moving to and from the property.

This constitutes an insignificant increase in carbon monoxide emissions

(less than 0.2 percent) in the Jacksonville area.

Small particulate matter is caused by activities that generate

smoke and dust. Emissions from particulate matter would temporarily

increase from 25 to 107 tons per year as the result of construction

activities. Developers of future facilities would be responsible for

obtaining the required air permits and complying with Federal, State,

and local laws and regulations governing air

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pollution. These regulations prescribe pre-construction review; impose

emission and control technology standards; and require construction and

operating permits.

Section 176(c) of the Clean Air Act, 42 U.S.C. 7506 (1994),

requires Federal agencies to review their proposed activities to ensure

that these activities do not hamper local efforts to control air

pollution. Section 176(c) prohibits Federal agencies from conducting

activities in air quality areas, such as Jacksonville, that are in

maintenance status for one or more of the national standards for

ambient air quality, unless the proposed activities conform to an

approved implementation plan. The United States Environmental

Protection Agency regulations implementing Section 176(c) recognize

certain categorically exempt activities. Conveyance of title to real

property and certain leases are categorically exempt activities. 40 CFR

93.153(c)(2)(xiv) and (xix). Therefore, the disposal of NAS Cecil Field

will not require Navy to conduct a conformity determination.

The Preferred Alternative would not have any significant impact on

noise. Exposure to noise from aircraft operations would be

substantially less than when the Air Station was operating. This

decrease results from the reduction from 175,168 annual jet aircraft

operations before closure of the Air Station to 50,000 annual jet

aircraft operations proposed under the Preferred Alternative. In

addition, the aircraft that would use the airfield under the Preferred

Alternative would make less noise than the Navy aircraft such as the F/

A-18 jets that currently operate at NAS Cecil Field.

During reuse, a gradual increase in ambient noise levels from other

sources would likely occur. This increase would arise out of industrial

operations, traffic, and the operation of heavy equipment during

construction. The absence of any nearby concentrations of sensitive

noise receptors such as residences, hospitals and churches would

minimize the impact of this gradual increase in ambient noise.

The Preferred Alternative would have minor impacts on the

population and demographics of Duval County and Clay County. The

proposed redevelopment would increase employment opportunities, but

recruitment of employees from outside local counties is not likely

because the demand for new employees would be gradual. Therefore, it is

unlikely that there would be an increase in the local population as a

result of implementing the Preferred Alternative.

The Preferred Alternative is projected to create 3,199 direct jobs

and 3,528 indirect jobs that would generate about $78 million in direct

payroll earnings and $67 million in indirect earnings. The total

assessed value of taxable property after the redevelopment of Cecil

Field would reach nearly $100 million. As a result, the Preferred

Alternative would generate an estimated $2.16 million in annual

property tax revenues.

The Preferred Alternative would have no significant impact on local

and regional housing markets and would have positive impacts on local

school systems. There would be fewer school age children residing in

the area than when NAS Cecil Field was an active base, and property tax

revenues that support local school systems would increase as property

previously owned by the Federal Government became taxable.

The Preferred Alternative could have minor adverse impacts on

police, fire, and emergency services in the City of Jacksonville. The

conveyance of NAS Cecil Field from Navy ownership would increase the

geographic area served by local police, fire, and ambulance units.

Consequently, manpower and equipment requirements would increase. The

equipment requirements, however, could be offset by conveyance of the

base's public safety buildings and equipment such as police stations,

firehouses, and certain vehicles to the City of Jacksonville.

Additionally, implementation of the Preferred Alternative would

increase local government revenues by expanding the property tax base.

The Preferred Alternative would increase the number of recreational

facilities in the Jacksonville area. Under the Preferred Alternative,

the Cecil Field golf course, Lake Fretwell, Lake Newman, and most of

the base's athletic fields and other recreational areas and facilities

would be made available to the public. The remaining athletic fields,

located in that part of the Main Station proposed for heavy industrial

activities, would not be used for recreational purposes.

The Preferred Alternative would not have any significant impact on

transportation. By the year 2010, there would be about 24,359 average

daily trips. This constitutes an increase of about 10,000 average daily

trips over the conditions that prevailed when the base was active. The

roadways that would experience traffic increases would be Chaffee Road,

Normandy Boulevard, and 103rd Street. These increases would likely

occur between the years 1999 and 2010 and would be addressed by

improvements to the regional roadway network planned by the City of

Jacksonville and the State of Florida.

After NAS Cecil Field closes, the current mass transit service may

be canceled or limited because of insufficient ridership. Future mass

transit service to the Cecil Field property would likely be based upon

the demand for such service.

The Preferred Alternative would have minor adverse impacts on

utilities. While the Reuse Plan proposes to make extensive improvements

to the existing water and sewer systems, these improvements would

likely be made in the course of new construction.

The Preferred Alternative proposed to connect NAS Cecil Field's

water distribution and sewage collection systems to the City of

Jacksonville's systems. After closure of the base, stormwater

management would remain subject to Federal, State, and local laws and

regulations. The acquiring entity and/or the developers of the property

would be responsible for installing adequate drainage facilities.

The long term demand for natural gas would require expansion of the

existing natural gas distribution system to serve the redeveloped

areas. The existing 16-inch gas transmission line, located at the

entrance to the Air Station, is adequate to accommodate the increased

demand likely to occur under the Preferred Alternative.

The long term demand for electrical power would require expansion

of the existing electrical distribution system to serve the redeveloped

areas. It would be necessary to upgrade the existing distribution

system to meet the local electrical authority's standards for electric

meters in order properly to charge customers for electric utility

service.

Under the Preferred Alternative, the existing centralized steam

generation plant and the aboveground steam lines would not be used.

Instead, auxiliary boilers served by existing natural gas lines may be

used, and other electric or gas heating systems may be installed.

Implementation of the Preferred Alternative would not have any

significant impact on the management of solid waste. When fully

implemented, the Preferred Alternative would generate about 150,000

tons of solid waste annually. This constitutes a 50 percent reduction

in the amount of solid waste compared with the amount generated before

closure of the base.

The Preferred Alternative would not have any significant impact on

cultural resources. Pursuant to Section 106 of the National Historic

Preservation Act of 1988, 16 U.S.C. 470f (1994), Navy

[[Page 29850]]

conducted a cultural resource assessment of NAS Cecil Field. Navy

evaluated all of the buildings and structures at Cecil Field and

determined that none was eligible for listing on the National Register

of Historic Places. In a letter dated October 9, 1996, the Florida

State Historic Preservation Officer (SHPO) concurred in the Navy's

determination.

There are no known archaeological sites at NAS Cecil Field.

However, the cultural resource assessment identified 15

archaeologically sensitive areas in certain parts of NAS Cecil Field

that are on the surplus Federal property. Thirteen archaeologically

sensitive areas are located in parts of the Main Station and the Yellow

Water Weapons Area that would be used for conservation, forestry, parks

and recreational activities. Two archaeologically sensitive areas are

located on that part of the Yellow Water Weapons Area where light

industrial facilities would be built. Depending upon the location and

design of particular redevelopment projects, these two archaeologically

sensitive areas could be adversely affected by construction activities.

Navy has completed consultation pursuant to Section 106 of the

National Historic Preservation Act with the Advisory Council on

Historic Preservation and the Florida State Historic Preservation

Officer. These consultations identified measures that the acquiring

entities must take to avoid or mitigate adverse effects on the

archaeologically sensitive areas. The measures are set forth in a

Programmatic Agreement entered into by Navy, the Advisory Council on

Historic Preservation, and the Florida State Historic Preservation

Officer, dated January 22, 1997. This Programmatic Agreement requires

recipients of the property to obtain written permission from the SHPO

before undertaking any activities that would disturb the ground at

these 15 archaeologically sensitive areas.

The Preferred Alternative would not have any significant impact on

the management of hazardous materials and hazardous waste. The quantity

of hazardous materials used, stored, and disposed of, and the quantity

of hazardous waste generated on the property would be less under the

Preferred Alternative than during Navy's use of the Cecil Field

property. Hazardous materials used and hazardous waste generated under

the Preferred Alternative will be managed in accordance with Federal

and State laws and regulations.

Implementation of the Preferred Alternative would not have any

impact on existing environmental contamination at NAS Cecil Field. Navy

will inform future property owners about the environmental condition of

the property and may, where appropriate, include restrictions,

notifications, or covenants in deeds to ensure the protection of human

health and the environment in light of the intended use of the

property.

Executive Order 12898, Federal Actions to Address Environmental

Justice in Minority Populations and Low-Income Populations, 3 CFR 859

(1995), requires that Navy determine whether any low-income and

minority populations will experience disproportionately high and

adverse human health or environmental effects from the proposed action.

Navy analyzed the impacts on low-income and minority populations

pursuant to Executive Order 12898. The FEIS addressed the potential

environmental, social, and economic impacts associated with the

disposal of NAS Cecil Field and subsequent reuse of the property under

the various proposed reuse scenarios. Minority and low-income

populations residing within the region will not be disproportionately

affected.

Navy also analyzed the impacts on children pursuant to Executive

Order 13045, Protection of Children from Environmental Health Risks and

Safety Risks, 3 CFR 198 (1998). Under the Preferred Alternative, the

largest concentration of children would be present in the recreational

areas. The Preferred Alternative would not impose any disproporationate

environmental health of safety risks on children.

Mitigation: Implementation of Navy's decision to dispose of NAS

Cecil Field does not require Navy to implement any mitigation measures.

Navy will take certain actions to implement existing agreements and

regulations. These actions were treated in the FEIS as agreements or

regulatory requirements rather than as mitigation.

The FEIS identified and discussed those actions that will be

necessary to mitigate impacts associated with the reuse and

redevelopment of NAS Cecil Field. The acquiring entitites, under the

direction of Federal, State, and local agencies with regulatory

authority over protection resources, will be responsible for

implementing necessary mitigation measures.

Comments Received on the FEIS: Navy received comments on the FEIS

from the United States Environmental Protection Agency, the Federal

Aviation Administration, and the Florida Department of Community

Affairs. These comments concerned issues already discussed in the FEIS

and do not require further clarification.

Regulations Governing the Disposal Decision: Since the proposed

action contemplates a disposal under the Defense Base Closure and

Realignment Act of 1990 (DBCRA), Public Law 101-510, 10 U.S.C. 2687

note (1994), Navy's decision was based upon the environmental analysis

in the FEIS and application of the standards set forth in the DBCRA,

the Federal Property Management Regulations (FPMR), 41 CFR Part 101-47,

and the Department of Defense Rule on Revitalizing Base Closure

Communities and Community Assistance (DoD Rule), 32 CFR Parts 174 and

175.

Section 101-47.303-1 of the FPMR requires that disposals of Federal

property benefit the Federal Government and constitute the ``highest

and best use'' of the property. Section 101-47.4909 of the FPMR defines

the ``highest and best use'' as that use to which a property can be put

that produces the highest monetary return from the property, promotes

its maximum value, or serves a public or institutional purpose. The

``highest and best use'' determination must be based upon the

property's economic potential, qualitative values inherent in the

property, and utilization factors affecting land use such as zoning,

physical characteristics, other private and public uses in the

vicinity, neighboring improvements, utility services, access, roads,

location, and environmental and historic considerations.

After Federal property has been conveyed to non-Federal entities,

the property is subject to local land use regulations, including zoning

and subdivision regulations, and building codes. Unless expressly

authorized by statute, the disposing Federal agency cannot restrict the

future use of surplus Government property. As a result, the local

community exercises substantial control over future use of the

property. For this reason, local land use plans and zoning affect

determination of the ``highest and best use'' of surplus Government

property.

The DBCRA directed the Administrator of the General Services

Administration (GSA) to delegate to the Secretary of Defense authority

to transfer and dispose of base closure property. Section 2905(b) of

the DBCRA directs the Secretary of Defense to exercise this authority

in accordance with GSA's property disposal regulations, set forth in

Part 101-47 of the FPMR. By letter dated December 20, 1991, the

Secretary of Defense delegated the authority to transfer and dispose of

[[Page 29851]]

base closure property closed under the DBCRA to the Secretaries of the

Military Departments. Under this delegation of authority, the Secretary

of the Navy must follow FPMR procedures for screening and disposing of

real property when implementing base closures. Only where Congress has

expressly provided additional authority for disposing of base closure

property, e.g., the economic development conveyance authority

established in 1993 by Section 2905(b)(4) of the DBCRA, may Navy apply

disposal procedures other than those in the FPMR.

In Section 2901 of the National Defense Authorization Act for

Fiscal Year 1994, Public Law 103-160, Congress recognized the economic

hardship occasioned by base closures, the Federal interest in

facilitating economic recovery of base closure communities, and the

need to identify and implement reuse and redevelopment of property at

closing installations. In Section 2903(c) of Public Law 103-160,

Congress directed the Military Departments to consider each base

closure community's economic needs and priorities in the property

disposal process. Under Section 2905(b)(2)(E) of the DBCRA, Navy must

consult with local communities before it disposes of base closure

property and must consider local plans developed for reuse and

redevelopment of the surplus Federal property.

The Department of Defense's goal, as set forth in Section 174.4 of

the DoD Rule, is to help base closure communities achieve rapid

economic recovery through expeditious reuse and redevelopment of the

assets at closing bases, taking into consideration local market

conditions and locally developed reuse plans. Thus, the Department has

adopted a consultative approach with each community to ensure that

property disposal decisions consider the LRA's reuse plan and encourage

job creation. As a part of this cooperative approach, the base closure

community's interests, as reflected in its zoning for the area, play a

significant role in determining the range of alternatives considered in

the environmental analysis for property disposal. Furthermore, Section

175.7(d) (3) of the DoD Rule provides that the LRA's plan generally

will be used as the basis for the proposed disposal action.

The Federal Property and Administrative Services Act of 1949, 40

U.S.C. 484 (1994), as implemented by the FPMR, identifies several

mechanisms for disposing of surplus base closure property: by public

benefit conveyance (FPMR Sec. 101-47.303-2); by negotiated sale (FPMR

Sec. 101-47.304-9); and by competitive sale (FPMR 101-47.304-7).

Additionally, in Section 2905(b)(4), the DBCRA established economic

development conveyances as a means of disposing of surplus base closure

property. The selection of any particular method of conveyance merely

implements the Federal agency's decision to dispose of the property.

Decisions concerning whether to undertake a public benefit conveyance

or an economic development conveyance, or to sell property by

negotiation or by competitive bid, are left to the Federal agency's

discretion. Selecting a method of disposal implicates a broad range of

factors and rests solely within the Secretary of the Navy's discretion.

Conclusion: The LRA's proposed reuse of NAS Cecil Field, reflected

in the Reuse Plan, is consistent with the requirements of the FPMR and

Section 174.4 of the DoD Rule. The LRA has determined in its Reuse Plan

that the property should be used for several purposes, including

aviation, industrial, commercial, forestry, conservation, parks and

recreation. The property's location, physical characteristics, and

existing infrastructure as well as the current uses of adjacent

property make it appropriate for the proposed uses.

The Preferred Alternative responds to local economic conditions,

promotes rapid economic recovery from the impact of the Air Station's

closure, and is consistent with President Clinton's Five-Part Plan for

Revitalizing Base Closure Communities, which emphasizes local economic

redevelopment and creation of new jobs as the means to revitalize these

communities. 32 CFR Parts 174 and 175, 59 FR 16123 (1994).

Although the ``No Action'' Alternative has less potential for

causing adverse environmental impacts, this Alternative would not take

advantage of the property's location, physical characteristics, and

infrastructure or the current uses of adjacent property. Additionally,

it would not foster local economic redevelopment of the Cecil Field

property.

The acquiring entities, under the direction of Federal, State, and

local agencies with regulatory authority over protected resources, will

be responsible for adopting practicable means to avoid or minimize

environmental harm that may result from implementing the Reuse Plan.

Accordingly, Navy will dispose of Naval Air Station Cecil Field in

a manner that is consistent with the City of Jacksonville's Reuse Plan

for the property.

Dated: May 19, 1999.

William J. Cassidy, Jr.,

Deputy Assistant Secretary of the Navy (Conversion and Redevelopment).

[FR Doc. 99-14005 Filed 6-2-99; 8:45 am]

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