Record of Decision; Volunteer Army Ammunition Plant (VAAP) Proposed Disposal; Chattanooga, TN

[Federal Register Volume 64, Number 177 (Tuesday, September 14, 1999)]
[Notices]
[Pages 49805-49808]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-23808]


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GENERAL SERVICES ADMINISTRATION


Record of Decision; Volunteer Army Ammunition Plant (VAAP) 
Proposed Disposal; Chattanooga, TN

    Pursuant to Section 102(2)(c) of the National Environmental Policy 
Act (NEPA) of 1969, the Council on Environmental Quality Regulations 
(40 CFR Parts 1500-1508), and GSA Order PBS P 1095.4E,F,2, PBS 1096.4C, 
ADM 1020.1, GSA has prepared an Environmental Impact Statement (EIS) 
for this Proposal Disposal Action. The purpose of the EIS was to:
    Identify the alternatives considered including the Proposed 
Disposal Alternative;
    Solicit public comments through scoping and incorporate comments 
into the analysis and decision process;
    Identify potential impacts of the alternatives considered including 
direct, indirect and cumulative impacts;
    Disclose all potential impacts resulting from the alternatives 
considered;
    Identify measures to mitigate adverse impacts; and
    Incorporate the impacts from the alternatives considered and 
mitigation into the decision process.
    This Record of Decision (ROD) will communicate GSA's decision on 
implementing the Proposed Action, the basis for that decision, and 
identify mitigation measures to be implemented as part of the decision. 
The Draft and

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Final EIS documents are incorporated into this ROD by reference, and 
are available upon request from GSA.

Action

    This is the Record of Decision for the General Services 
Administration (GSA) Proposed Disposal of the 6,372-acre (approximate 
acreage) Volunteer Army Ammunition Plant (VAAP), also known as 
Volunteer, located in the City of Chattanooga, Tennessee. Special 
legislation will permit conveyance of 1033 acres directly to Hamilton 
County. GSA's action is the administrative act of transferring 
ownership of this property through one, or a combination of, disposal 
mechanisms. The Proposed Action does not include GSA control of the 
reuse of any property other than certain deed restrictions that GSA may 
record for the protection of human health and the environment or the 
protection of historical and archaeological resources. Some of the 
property may be transferred under early transfer authority and this 
would require approval from the Governor of Tennessee. Disposal 
mechanisms available to GSA include; transferring property to other 
Federal agencies; conveying property to state or local governments and 
institutions; and conveying the property to private entities.
    Disposal of the property by GSA would remove the property from 
Federal ownership except for any parcel that may be transferred to 
another Federal Agency. The property after transfer becomes subject to 
the City of Chattanooga and Hamilton County land use plans and taxing 
authority. All future development after transfer will be subject to 
local land-use controls. GSA has evaluated two alternatives as part of 
the EIS including the No-Action Alternative, and the Disposal 
Alternative.

Purpose and Need

    The purpose of the Proposed Action is to better utilize assets. The 
need for the Proposed Action is to eliminate Federal expenses on 
unneeded property, to free capital for higher priorities, and to return 
property to the private sector and the local taxing authority for 
beneficial reuse.
    The Department of Defense (DOD) screened the property against the 
needs of other DOD agencies and has determined Volunteer to be excess 
to the Department's needs. Having been determined to be excess by the 
DOD, the Army executed a Memorandum of Agreement (MOA) with GSA for the 
disposal of VAAP in accordance with the Federal Property and 
Administrative Services Act of 1949. GSA has screened the property for 
use by Federal civilian agencies and determined that the property is 
surplus to the needs of the Federal government.
    The property is currently underutilized, and under the Proposed 
Action, would become a productive asset for future growth and 
development within the local community. As part of the NEPA process, 
GSA consulted with the local community to promote a smooth transfer and 
productive reuse of the property.
    GSA issued a Draft EIS in April with publication in the Federal 
Register, and provided a 45-day public comment period that began on 
April 15, 1999. A final Public Meeting was held in Chattanooga on April 
29 soliciting comments on the Draft EIS.
    The Final EIS addressed comments received on the Draft and was 
released on July 30 for final comment. This comment period closed on 
August 30. GSA provided written notices of availability of these 
documents in the Federal Register, the Chattanooga Free Press, and 
through local libraries. GSA distributed approximately 250 copies of 
the Draft and Final EIS to Federal agencies, state and local 
governments, elected officials, the business community, and to 
interested parties.
    GSA made diligent efforts to solicit input from all potentially 
impacted parties, and GSA also made diligent efforts to keep the 
community fully informed during the NEPA process. This was accomplished 
using newspaper Public Notices, newsletter direct mailings, community 
meetings, written correspondence, Public Meetings, and through 
maintaining an open dialogue with representatives of the City of 
Chattanooga and Hamilton County. GSA communicated regularly and openly 
with the community to keep all parties fully informed during the 
process. The chronology of the scoping events is outlined in the Draft 
EIS I-C.

Alternatives Considered

No-Action Alternative

    Under the No-action Alternative, the Federal Government would 
retain the property with continuing Federal ownership and maintenance 
responsibilities. However, because Volunteer is no longer operational 
or needed for its original purpose, this alternative would maintain the 
majority of the property as undeveloped. Existing leases would 
continue, and new leases would likely be negotiated. Tenant leases 
would remain in the industrial area of the site with access to the 
existing utility infrastructure and the transportation network. There 
are currently 21 tenant leases at Volunteer, which employ approximately 
300 people. Federal responsibilities would include the provision of a 
caretaker and expenses of upkeep for grounds and building maintenance, 
security, and utility services. In the absence of a productive Federal 
use for the property, the costs for continuous upkeep would represent 
an expense to the taxpayer, although some of this cost would be offset 
by tenant rents. However, the local community would not realize the 
benefits of this property returning to the local taxing authority for 
beneficial reuse.

Disposal Alternative

General Considerations
    The Disposal Alternative is the proposed action by the Federal 
Government. This is the GSA preferred alternative. The conveyance to 
local governments or institutions for reuse or sale would be 
accomplished in accordance with the Federal Property and Administrative 
Services Act. The Disposal Alternative would result in indirect and 
longer-term impacts that would occur over time. Indirect impacts are 
those that are ``reasonably foreseeable'' as long range consequences of 
the action. As defined in 40 CFR 1508.8, indirect impacts may include 
environmental impacts attributable to changes in population density and 
land uses that are induced by the Proposed Action.
    Land use scenarios (A, B, C and D) were developed in the 
preparation of the Draft and Final EIS in partnership with the City and 
County to provide a mechanism by which potential impacts from future 
site reuse could be evaluated. GSA worked closely with stakeholders 
that included the City of Chattanooga, Hamilton County, the Regional 
Planning Agency, Tennessee Department of Transportation, (TDOT), 
Tennessee Wildlife Resources Agency (TWRA) and other interested 
agencies to assess potential uses for the site. Because the local 
community will ultimately determine the use of this property through 
zoning ordinance, their input was critical to this process. The City of 
Chattanooga annexed the entire Volunteer site in April 1998.
    As part of GSA's analysis, land use scenarios were developed to 
provide likely combinations of land uses reflecting the needs of the 
community communicated during the NEPA scoping process. Land use 
Scenario D was developed for the Final EIS in response to both agency 
and public comments made on the Draft. Although

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the analysis of direct impacts from the Disposal Alternative is 
relatively straightforward and consistent regardless of the potential 
land use scenarios, the analysis of indirect impacts requires 
consideration of each respective scenario.
    Identifying and evaluating potential indirect impact for each 
scenario involves a certain amount of speculation and assumptions 
because type, timetable, and location of future development at 
Volunteer is not known. To conduct a thorough analysis of reasonably 
foreseeable impacts resulting from disposal and development, GSA 
established criteria to identify and evaluate potential impacts as 
discussed below.
    It will take several decades for the entire property to achieve 
complete reuse, and it is not possible to evaluate impacts accurately 
over such a timeframe. GSA in consultation with the local governments 
determined that a five to fifteen-year timeframe was a ``reasonably 
foreseeable'' period within which impacts would be identified and 
assessed. This decision was based on reasonably foreseeable land uses 
that could be implemented near the latter part of this timeframe. For 
example, two of the development scenarios include a municipal landfill 
that would not be opened for 10 to 12 years.
    The local governments will develop zoning for the Volunteer 
property and will be the legal authority for reviewing and approving 
plans for future development after Federal disposal. Therefore, the 
local and state governments were determined to be the guiding source 
for data and assumptions related to potential future activity during 
the five to fifteen-year time frame.
    It is important to note that GSA's role in the disposal process is 
strictly to conduct the real estate transaction(s) and perform the 
various related functions required under Federal law. The GSA has no 
financial, material, or other interest in the future use of the land 
after disposal. More expressly, GSA is not advocating any particular 
conceptual or proposed reuse options for Volunteer. GSA analyzed 
competing land use proposals and the issues associated with these 
potential uses through the development of potential land use scenarios.
Key Land Use Proposals
    The VAAP property consists of two dissimilar halves. The western 
half is a broad valley where the bulk of the former TNT manufacturing 
facilities was located. The eastern half of the property is primarily 
undeveloped with the exception of earthen covered ammunition bunkers 
dispersed throughout the hilly terrain. Due to the constraints imposed 
on future uses of the western half and existing contamination in this 
area, all three potential land use scenarios proposed by the local 
community generally include the same set of compatible uses (primarily 
industrial) for the western half. Potential land use scenarios for the 
eastern half of VAAP offer greater diversity in future uses.
    The three initial land use scenarios are summarized in Chapter II 
Section 3 of the DEIS. Scenario D is summarized in Appendix F-3 of the 
Final. Each of the scenarios calls for a particular mix of future land 
uses. However, because of specific expressions of interest by the local 
Cooperating Agencies, key features have been identified which are 
included in one or more of the potential scenarios developed. These key 
features, or proposed uses, include the following: a large premiere 
industrial site; industrial development areas; a new I-75 interchange 
and access roads; mixed use sites; educational facilities; Army Reserve 
facilities; Police/Fire Training Center; a solid waste municipal 
landfill; residential areas; active recreation areas; an Equestrian 
Center; opportunity sites; open spaces; passive recreation; wildlife 
habitat; and public use areas. These key features are summarized in 
Chapter II Section B.2. of the DEIS and Appendices F-3 and F-4.
Four Potential Land Use Scenarios Developed
    Three potential land use scenarios (A, B, and C) are illustrated in 
Exhibits II-2 through II-4 of the Draft EIS, with the legend for all 
three in Exhibit II-1 of the Draft. Scenario D was developed for the 
Final and is discussed in text and tables. Exhibit E-2 of the Final 
summarizes the acreage allocated to proposed uses for each scenario, 
and the percentage of the site devoted to each land use.
    In order to evaluate traffic impacts and the need for 
transportation improvements, a phasing plan was developed for 5, 10, 
and 15 year planning horizons for each land use scenario. In general, 
the four scenarios are illustrated in the Draft and Final EIS with key 
features are summarized as follows:
Scenario A
    Scenario A does not include residential development areas or the 
Equestrian Center. It provides a 490-acre site for a proposed sanitary 
landfill. It also provides the second largest amount of acreage for 
open space and passive recreation in the eastern half of VAAP among the 
four scenarios.
Scenario B
    Scenario B does not include the landfill, the Police/Fire Training 
Center, the Equestrian Center, or the opportunity sites. It provides 
the largest amount of space for residential development located in the 
eastern half of the site.
Scenario C
    Scenario C includes a 490-acre landfill site, the Police/Fire 
Training Center, the Equestrian Center, with only about half the 
acreage for residential development compared to Scenario B.
Scenario D
    Scenario D does not include residential use areas, the landfill, 
opportunity sites, the Police/Fire Training Center, or the Equestrian 
Center. It provides the largest amount of open space for passive 
recreation among the four scenarios, retaining the entire eastern half 
of VAAP in its current state.
    Scenarios A, B, and C assume that a new I-75 interchange would be 
constructed to serve VAAP and as a connector to State Route 58. 
Scenario D does not include the interchange and therefore development 
opportunities for the site are severely limited. This is clearly 
demonstrated by the tables in Appendix F-4 of the Final, which show 
that the absorption rates for the industrial land are less than 40% for 
Scenario D, as compared to Scenarios A, B, and C. Scenario D is very 
similar to the No Action Alternative because of the limitations to 
potential reuse if additional access to I-75 is not provided.

Environmental Consequences and Mitigation

    Based on the analysis contained in the EIS, there were no 
potentially significant environmental impacts identified from either 
the Proposed Action or the No Action except for those discussed in this 
ROD. The primary mitigation measures for the impacts from this action 
were identified during the scoping process and the preparation of the 
EIS. The partnership formed between the City and County governments and 
GSA during the planning for this disposal provided ongoing input for 
the preparation of the EIS. This EIS process solicited ideas from the 
community for the property's reuse and facilitated the development of 
combinations of proposed uses from which to analyze potential impacts. 
The result was the development of four basic land use plans that will 
provide the

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local community a long-range planning tool for use as it develops its 
reuse strategy.
    Three additional site considerations and potential impacts will be 
mitigated through processes required as discussed below. First, the 
entire Volunteer property is listed as a State of Tennessee Superfund 
Site. The Army is currently investigating and cleaning the contaminated 
areas as part of their legal responsibility under the Installation 
Restoration (IR) program and under RCRA as described in Chapter III.B.7 
in the Draft. This process requires close coordination with regulatory 
agencies and with the public. A Restoration Advisory Board has been 
established and is holding regular meetings that are open to the 
public. GSA's proposed disposal would have no effect on the status of 
the site investigation and cleanup efforts being conducted under the IR 
and RCRA programs. Some of this property may be transferred under early 
transfer authority and would require approval of the Governor. This 
process is explained in detail in the Draft EIS pages 1-11 to 1-12.
    Secondly, two of the proposed scenarios include a 490-acre site for 
a sanitary landfill. Should the local community elect to proceed with 
this option, an extensive permitting process and public notification 
process would be mandatory. This would require extensive engineering 
and design studies, a closure plan, and permitting under Tennessee Rule 
1200-1-7 Solid Waste Processing and Disposal Facilities. This required 
process would solicit additional community participation and the 
permitting requirements would serve to mitigate potential adverse 
impacts to the natural and human environment.
    Third, three of the scenarios developed propose a new I-75 traffic 
interchange at VAAP. An Interchange Justification Report for this 
interchange would be required pursuant to Federal Highway 
Administration (FHA) regulations. This report would be prepared by 
Tennessee Department of Transportation (TDOT) and submitted to FHA for 
approval. An environmental assessment would be required along with 
site-specific studies and public involvement, which would serve to 
mitigate impacts from the development of a new interchange at VAAP.
    The NEPA process itself and the joint development of a series of 
land use scenarios became the major mitigation measure that will serve 
to minimize the impacts to the natural and human environment. GSA 
consulted with other State and Federal Agencies to identify impacts and 
develop mitigation measures. Neither the disposal alternative nor the 
no-action alternative was considered to be environmentally preferred 
over the other. Potential impacts to the natural and human environment 
were found to be not significant after mitigation. This is documented 
in both the Draft and the Final EIS by reference, and a summary of 
mitigation by the Agency is attached as part of this ROD.

Rationale for Decision

    1. As part of GSA's environmental review, GSA conducted extensive 
public scoping with the local community to identify potential impacts 
and concerns that would result from proceeding with the proposed 
disposal action.
    2. Issues that were identified by the community through Public 
Meetings and correspondence and were addressed in both the Draft and 
the Final Environmental Impact Statements released for public comment 
and review. Issues were addressed in the NEPA documents and all 
comments and GSA responses are incorporated into the documents as part 
of the official record.
    3. GSA consulted with other government agencies including local, 
State, and Federal Agencies, to solicit their input on the proposed 
disposal. All issues identified and responses provided are presented in 
the Draft and Final documents.
    4. The development of proposed reuses for the Volunteers property 
enabled potential uses to be identified and impacts to be analyzed. The 
EIS process provided a tool by which potential impacts were identified 
and mitigation measures developed. No significant impacts to the 
natural or human environment were identified from this proposed 
disposal action.
    5. Potential impacts have been identified and mitigation measures 
selected that will minimize the impacts from this disposal action. GSA 
has consulted with other Agencies in the development of mitigation 
measures. GSA will institute the identified mitigation measures and 
will consult with other Agencies to insure that mitigation measures are 
implemented.
    6. Should potentially significant impacts be later identified that 
may reach significant levels, GSA will prepare supplementary 
documentation as mitigation as required by the National Environmental 
Policy Act.
    Therefore, having given consideration to all of the factors 
discovered during the 12 month environmental review process, it is 
GSA's decision to proceed with the Proposed Action: Disposal of the 
Volunteer Army Ammunition Plant based on the Federal Property and 
Administrative Services Act of 1949 as amended.

    Dated: August 30, 1999.
Phil Youngberg,
Regional Environmental Manager, Southeast Sunbelt Region, General 
Services Administration.
[FR Doc. 99-23808 Filed 9-13-99; 8:45 am]
BILLING CODE 6820-23-M