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

[Federal Register Volume 64, Number 106 (Thursday, June 3, 1999)]
[Notices]
[Pages 29844-29851]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14005]


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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

[[Page 29845]]

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

[[Page 29847]]

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.

[[Page 29848]]

    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

[[Page 29849]]

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]
BILLING CODE 3810-FF-M