99-28646. Record of Decision for the Disposal and Reuse of Naval Air Warfare Center, Aircraft Division, Warminster, PA  

  • [Federal Register Volume 64, Number 211 (Tuesday, November 2, 1999)]
    [Notices]
    [Pages 59164-59171]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 99-28646]
    
    
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    DEPARTMENT OF DEFENSE
    
    Department of the Navy
    
    
    Record of Decision for the Disposal and Reuse of Naval Air 
    Warfare Center, Aircraft Division, Warminster, PA
    
    SUMMARY: The Department of the Navy (Navy), pursuant to Section 
    102(2)(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 
    Warfare Center, Aircraft Division, Warminster (NAWC), which is located 
    in Bucks County, Pennsylvania.
        Navy analyzed the impacts of the disposal and reuse of NAWC 
    Warminster in an Environmental Impact Statement (EIS), as required by 
    NEPA. The EIS analyzed four reuse alternatives and identified the 
    Proposed Reuse Plan, Naval Air Warfare Center, Bucks County, approved 
    on June 10, 1997, (Reuse Plan) as the Preferred Alternative. The 
    Preferred Alternative proposed to use the base for residential, 
    commercial, municipal, and assisted living activities; to provide low 
    income and homeless assistance services; to develop public parks and 
    recreational areas; and to build access roads. The Federal Lands Reuse 
    Authority of Bucks County (FLRA) is the Local Redevelopment Authority 
    (LRA) for NAWC Warminster. Department of Defense Rule on Revitalizing 
    Base Closure Communities and Community Assistance (DoD Rule), 32 CFR 
    176.20(a).
        Navy intends to dispose of NAWC Warminster 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, creating new jobs, and providing additional housing, 
    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 
    1991 Defense Base Closure and Realignment Commission recommended the 
    realignment of Naval Air Development Center, Warminster. This 
    recommendation was approved by President Bush and accepted by the One 
    Hundred Second Congress in 1991.
        As a result of the 1991 realignment, most of the Warminster 
    Development Center's aircraft systems research and development and test 
    and evaluation functions moved to Naval Air Warfare Center, Aircraft 
    Division, Patuxent River, Maryland. On January 1, 1992, the remaining 
    facilities, i.e., the inertial guidance laboratory (Building 108), the 
    navigation equipment laboratory (Building 125), the communications 
    systems laboratory (Building 138), the dynamic flight simulator 
    (Buildings 70 and 72), the family housing units, and the Oreland Open 
    Water Test Facility, a 15-acre non-contiguous site located about eight 
    miles southwest of NAWC Warminster in Montgomery County, Pennsylvania, 
    were renamed Naval Air Warfare Center, Aircraft Division, Warminster.
        The 1995 Defense Base Closure and Realignment Commission modified 
    the 1991 Commission's recommendation by directing Navy to close NAWC 
    Warminster, including the Oreland Open Water Test Facility. The 1995 
    Commission's recommendation was
    
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    approved by President Clinton and accepted by the One Hundred Fourth 
    Congress in 1995. The base closed on September 30, 1996.
        With the exception of the Oreland facility, all of the property 
    comprising NAWC Warminster is located in the southern part of Bucks 
    County, Pennsylvania, about 18 miles north of Center City Philadelphia. 
    This property covers 824 acres and lies within three municipalities. 
    Most of the property, about 609 acres, is located in Warminster 
    Township. About 46 acres in the northwest corner of the base are 
    located in Ivyland Borough. The remaining 169 acres in the eastern part 
    of the base are located in Northampton Township. Navy controls an 
    additional 38 acres in Northampton Township by way of easements for air 
    operations. Disposal and reuse of the Oreland Open Water Test Facility 
    in Montgomery County were treated in a separate environmental analysis 
    and document.
        The base is oriented along an east-west axis with irregularly 
    shaped borders. It is bounded on the west by a Southeastern 
    Pennsylvania Transportation Authority railroad line; on the north by 
    Kirk Road, Newtown Road, and Bristol Road; on the east by New Road; and 
    on the southwest by Street Road. In the western part of the base, 
    Jacksonville Road crosses the property in a northeast-southwest 
    alignment and connects Kirk Road to Street Road. In the eastern part of 
    the base, Bristol Road crosses the property in a northwest-southeast 
    orientation, and Hatboro Road links Bristol Road to New Road.
        Navy will retain certain NAWC Warminster properties, i.e., six 
    single-family houses, 40 multi-family residential units, and related 
    support buildings that serve 205 military families. In August 1995, 
    Navy transferred these properties, covering 67 acres, to Naval Air 
    Station Joint Reserve base, Willow Grove, Pennsylvania.
        This Record Of Decision addresses the disposal and reuse of those 
    parts of NAWC Warminster that are surplus to the needs of the Federal 
    Government. This surplus property, covering 757 acres, contains about 
    162 buildings and structures that provide about 1.7 million square feet 
    of space. The base contains aviation facilities consisting of an 8,000-
    foot east-west runway, an aircraft parking apron covering about 11 
    acres, a hangar, an air traffic control tower, and a fire station. The 
    surplus property also contains research and development facilities, 
    laboratory facilities, industrial facilities, administrative offices, 
    personnel support facilities, medical facilities, and recreational 
    facilities.
        Navy expects to convey about 287 acres of surplus property in the 
    western part of the base to the Federal Lands Reuse Authority by way of 
    an economic development conveyance. Of that total, about 261 acres 
    located in Warminster Township, including the western end of the runway 
    and the main complex of buildings (Buildings 1, 2, and 3), will be 
    redeveloped as a business complex. About 26 acres located in Ivyland 
    Borough will be redeveloped as a residential area.
        The remaining 470 acres of surplus property have been or will be 
    conveyed by way of various kinds of public benefit conveyances. On 
    September 19, 1997, Navy assigned about 125 acres in the eastern end of 
    the base to the United States Department of the Interior for subsequent 
    conveyance to Northampton Township for use as parks and recreational 
    areas. Subsequently, about 32 of those 125 acres were made available 
    for construction of a school and related recreational facilities for 
    the Council Rock School District. On November 18, 1997, Navy assigned 
    about two acres at the northern tip of the eastern end of the base to 
    the United States Department of Education for subsequent conveyance to 
    Northampton Township for use as a fire fighter training facility.
        On January 7, 1998, Navy assigned about 38 acres in the eastern 
    part of the base to the United States Department of Health and Human 
    Services for subsequent conveyance to Northampton Township for use as 
    an assisted living facility for senior citizens. On October 27, 1998, 
    Navy assigned about two acres in the eastern end of the base to the 
    United States Department of Health and Human Services for subsequent 
    conveyance to Northampton Township. The Township will build a well on 
    this property to increase the capacity of its existing municipal water 
    system.
        On March 18, 1999, Navy assigned about 31 acres and the inertial 
    guidance laboratory (Building 108), located in the south central part 
    of the base, to the United States Department of Education for 
    subsequent conveyance to Pennsylvania State University for use as an 
    applied research laboratory.
        Navy will assign about 255 acres in the western and central parts 
    of the base to the United States Department of the Interior for 
    subsequent conveyance to Warminster Township for use as parks and 
    recreational areas, access roads and open space.
        Navy will assign nine acres and the base's wastewater treatment 
    plant in the western end of the base to the United States Department of 
    Health and Human Services for subsequent conveyance to the Warminster 
    Municipal Authority. Navy will assign about two acres in the western 
    part of the base adjacent to the dynamic flight simulator (Buildings 70 
    and 72) to the United States Department of Health and Human Services 
    for subsequent conveyance to Bucks County, which will build a facility 
    for its county coroner.
        Of the remaining six acres of surplus Federal property, Navy will 
    assign two acres to a private homeless assistance provider and four 
    acres to Bucks County. They will provide low income and homeless 
    assistance services in accordance with four legally binding agreements 
    between the FLRA and homeless assistance providers that were approved 
    by the United States Department of Housing and Urban Development.
        Navy published a Notice Of Intent in the Federal Register on 
    September 19, 1995, announcing that Navy would prepare an EIS for the 
    disposal and reuse of NAWC Warminster. On October 12, 1995, Navy held a 
    public scoping meeting at the Longstreth Elementary School in 
    Warminster, and the scoping period concluded on November 1, 1995.
        Navy distributed the Draft EIS (DEIS) to Federal, State, and local 
    agencies, elected officials, interested parties, and the general public 
    on January 3, 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 January 28, 1997, 
    Navy held a public hearing at the Warminster Township Building 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 December 24, 
    1998, for a review period that concluded on January 25, 1999. Navy 
    received two 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 four 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 February 1, 1995, the Board of Commissioners of Bucks County 
    established the Federal Lands Reuse Authority of Bucks County. Bucks
    
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    County Ordnance No. 89. The FLRA would prepare a reuse plan for the 
    NAWC Warminster property to be available as a result of the 1991 round 
    of Defense Base Closures and Realignments. In March 1995, the FLGA 
    adopted a proposed reuse plan entitled Naval Air Warfare Center, Bucks 
    County, Pennsylvania, Reuse Plan. Navy identified this initial reuse 
    plan as the Preferred Alternative in the DEIS dated December 1996. In 
    1997, the FLRA changed its reuse plan and incorporated those parts of 
    the base that Navy had retained under the 1991 realignment but 
    subsequently declared surplus as a result of the 1995 closure decision. 
    The FLRA adopted the Proposed Reuse Plan, Naval air Warfare Center, 
    Bucks County, Pennsylvania, as its final plan on June 10, 1997. FLRA 
    Resolution No. 25-97.
        The Reuse Plan, identified in the FEIS as the Preferred 
    Alternative, proposed a mix of land uses. The Preferred Alternative, 
    proposed a mix of land uses. The Preferred Alternative would use 26 
    acres for residential purposes; 292 acres for a business complex; 38 
    acres for an assisted living facility; 13 acres for public health and 
    safety facilities; six acres for low income and homeless assistance 
    services; 18 acres for access roads and open space; and 370 acres for 
    parks and recreational activities. This Alternative would not use the 
    runway for aviation activities. It will be necessary to make extensive 
    utility infrastructure and roadway improvements to support the Reuse 
    Plan's proposed redevelopment of NAWC Warminster.
        The Preferred Alternative would use 68 acres west of Jacksonville 
    Road for commercial activities. Within these 68 acres on the western 
    end of the property, this Alternative proposed to use the main complex 
    (Buildings 1, 2, and 3) and the dynamic flight simulator (Buildings 70 
    and 72) for research and development in ways similar to Navy's 
    historical uses of those buildings. In the southeastern part of this 
    area, the Preferred Alternative proposed to use the dispensary 
    (Building 16) for low income and homeless assistance services.
        East of Jacksonville Road and north of Street Road, the Preferred 
    Alternative would build a 187-acre business complex providing about 1.5 
    million square feet of new construction. The Preferred Alternative 
    would use part of the runway to build new access roads to serve this 
    business complex. In the northern part of the complex, this Alternative 
    would use the base's fire station as a municipal fire station. In the 
    southeastern part of this complex, the aircraft flight equipment 
    laboratory (Building 80) would be used for low income and homeless 
    assistance services.
        In Ivyland Borough, north of the proposed business complex, east of 
    Jacksonville Road, and southwest of Kirk Road, the Preferred 
    Alternative proposed to build a 26-acre single-family residential 
    complex adjacent to the officers housing retained by Navy. This 
    residential complex would provide between 150 and 200 new homes.
        The central part of the base, east of the business complex and 
    southwest of Bristol Road, would be reserved for parks and recreational 
    activities. This area would cover the eastern part of the runway. The 
    parks and recreational areas would extend northwest to the new 
    residential complex and southwest along the 187-acre business complex 
    to the southern boundary of the property. The Preferred Alternative 
    would use Quarters A and Quarters B here for low income and homeless 
    assistance services.
        South of the parks and recreational areas and adjacent to the 
    enlisted housing retained by Navy, the Preferred Alternative proposed 
    to use 37 acres for another business complex that would include use of 
    the inertial guidance laboratory (Building 108) in a manner similar to 
    Navy's historical use of that building.
        On 125 acres at the eastern end of the base in Northampton 
    Township, the Preferred Alternative would develop parks and 
    recreational areas. On two acres at the northern tip of the eastern end 
    of the base, this Alternative would build a fire station. At the 
    eastern end of the base, it would build a municipal drinking water well 
    and pump facility. On the remaining surplus property, north of Hatboro 
    Road, it would build as assisted living facility on 38 acres that would 
    support about 500 senior residents.
        Navy analyzed a second ``action'' alternative, described in the 
    FEIS as the University/Institutional Alternative. This Alternative was 
    identified in the DEIS as the Preferred Alternative and reflects the 
    FLRA's March 1995 reuse plan. The University/Institutional Alternative 
    proposed land uses similar to those in the Reuse Plan, but provided 
    more intense development and less parks and recreational areas.
        West of Jacksonville Road, the University/Institutional Alternative 
    would use 46 acres to develop a business complex. This Alternative also 
    proposed to use the dynamic flight simulator (Buildings 70 and 72) for 
    research and development in a manner similar to Navy's historical use 
    of those buildings. Additionally, it proposed to build university and 
    institutional facilities on 12 acres west of Jacksonville Road. On 
    these 12 acres, the navigation equipment laboratory (Building 125) and 
    the communications systems laboratory (Building 138) would also be used 
    for university and institutional activities. This Alternative proposed 
    to use Building 16 west of Jacksonville Road for low income and 
    homeless assistance services.
        On 159 acres east of Jacksonville Road, the University/
    Institutional Alternative would build an industrial and business 
    complex providing 1,850,000 square feet of new construction. On the 
    southern end of this complex, it proposed to build a 50,000 square foot 
    hotel and conference center on ten acres facing Street Road. On the 
    northern edge of the complex, this Alternative would use the base's 
    fire station as a municipal fire station. In the southeastern part of 
    the complex, this Alternative proposed to use Building 80 for low-
    income and homeless assistance services. It would also maintain open 
    space along the boundary between the hotel and Building 80.
        In Ivyland Borough, north of the business complex, east of 
    Jacksonville Road, and southwest of Kirk Road, the University/
    Institutional Alternative proposed to build a 26-acre single-family 
    residential complex adjacent to the officers housing retained by Navy. 
    This residential complex would provide between 150 and 200 new homes.
        East of this residential area and south of Kirk Road, the 
    University/Institutional Alternative would provide 25 acres for 
    municipal purposes. This Alternative would also use parts of the runway 
    and aircraft parking apron to build new access roads.
        The central part of the base, east of the industrial/business 
    complex and the municipal area and south of Kirk Road, Newtown Road, 
    and Bristol Road, would be reserved for parks and recreational 
    activities. This area would cover the eastern part of the runway. The 
    University/Institutional Alternative would use Quarters A and Quarters 
    B here for low income and homeless assistance services.
        The University/Institutional Alternative would use the inertial 
    guidance laboratory (Building 108), located south of the parks and 
    recreational areas and adjacent to the enlisted housing retained by 
    Navy, in a manner similar to Navy's historical use of that building. 
    Northeast of the laboratory, this Alternative would use 84 acres to 
    build an educational complex serving about 2,000 students.
    
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        On 125 acres at the eastern end of the base in Northampton 
    Township, the University/Institutional Alternative would develop parks 
    and recreational areas. On the northern and eastern tips of the eastern 
    end of the property, this Alternative would provide five acres for 
    municipal uses. On the remaining surplus property, north of Hatboro 
    Road, it would build an assisted living facility on 38 acres that would 
    support about 500 senior residents.
        Navy analyzed a third ``action'' alternative, described in the FEIS 
    as the Residential Alternative. Under this Alternative, the property 
    east of Jacksonville Road would be developed for residential uses and 
    recreational facilities.
        West of Jacksonville Road, the Residential Alternative would use 46 
    acres to develop a business complex. This Alternative also proposed to 
    use the dynamic flight simulator (Buildings 70 and 72) for research and 
    development in a manner similar to Navy's historical use of those 
    buildings.
        Additionally, it proposed to use 12 acres and Buildings 125 and 138 
    for university and institutional activities. This Alternative also 
    proposed to use Building 16 west of Jacksonville Road for low income 
    and homeless assistance services.
        On 65 acres east of Jacksonville Road, the Residential Alternative 
    would build an industrial and business complex providing about 636,000 
    square feet of new construction. Northeast of the complex, this 
    Alternative would use the base's fire station as a municipal fire 
    station.
        In Ivyland Borough, northeast of the business complex, east of 
    Jacksonville Road, and southwest of Kirk Road, the Residential 
    Alternative proposed to build a 26-acre single-family residential 
    complex adjacent to the officers housing retained by Navy. This 
    residential complex would provide about 175 new homes. East of the 
    residential area and the industrial/business complex, the Residential 
    Alternative would develop parks and recreational areas.
        In the central part of the base, east of the parks and recreational 
    areas and southwest of Bristol Road, the Residential Alternative would 
    build a 250-acre golf course and residential community consisting of 
    400 residential units. This area would cover the eastern part of the 
    runway. This Alternative would use Quarters A and Building 80 here for 
    low income and homeless assistance services.
        Southwest of the golf course community and east of the industrial 
    and business complex and parks and recreational areas, the Residential 
    Alternative would reserve open space. South of the golf course 
    community, this Alternative would develop additional parks and 
    recreational areas. This Alternative would use Quarters B here for low 
    income and homeless assistance services. South of the golf course 
    community, between the additional parks and recreational areas and the 
    enlisted housing retained by Navy, it would use the inertial guidance 
    laboratory (Building 108) in a manner similar to Navy's historical use 
    of that building.
        On 125 acres at the eastern end of the base in Northampton 
    Township, the Residential Alternative would develop additional parks 
    and recreational areas. On the remaining surplus property, north of 
    Hatboro Road, this Alternative would build an assisted living facility 
    on 38 acres that would support about 500 senior residents.
        Navy analyzed a fourth ``action'' alternative, described in the 
    FEIS as the Aviation Alternative. Using 3,800 feet of the 8,000-foot 
    runway, this Alternative would develop a general aviation airport on 
    168 acres. The airport would support single engine and twin engine 
    propeller aircraft and light cargo turboprop aircraft. By the year 
    2010, projected air operations for this airport could range from 20,400 
    to 215,500 general aviation operations annually.
        The remainder of the surplus property would be dedicated to uses 
    compatible with a general aviation airport. These uses would include 58 
    acres for a business complex; 284 acres for industrial and commercial 
    activities; ten acres for a hotel and conference center; 162 acres for 
    parks and recreational activities; and 41 acres for access roads and 
    open space. This Alternative would develop more intense industrial, 
    research and development, and aviation activities than the other reuse 
    alternatives.
        West of Jacksonville Road, the Aviation Alternative would build a 
    business complex on 58 acres. This Alternative proposed to use the 
    dynamic flight simulator (Buildings 70 and 71) for research and 
    development in a manner similar to Navy's historical use of those 
    buildings. It also proposed to use Building 16 west of Jacksonville 
    Road for low income and homeless assistance services.
        East of Jacksonville Road, north and east of the runway, and 
    southwest of Bristol Road, the Aviation Alternative would use 284 acres 
    to develop a 4,900,000 square foot industrial and business complex. 
    This Alternative would use Quarters A here for low income and homeless 
    assistance services. South of the runway, the Alternative would use 77 
    acres to support aviation operations with hangars, maintenance 
    facilities, and aircraft tiedown areas. It would also use seven acres 
    here to build a passenger terminal.
        On the southern end of the property, south of the aviation support 
    facilities, this Alternative proposed to build a 50,000 square foot 
    hotel and conference center on ten acres facing Street Road. East of 
    the passenger terminal, it would use Building 80 and Quarters B for low 
    income and homeless assistance services. This Alternative would 
    maintain open space along the boundary between the hotel and Building 
    80.
        South of the industrial and business complex, between the aviation 
    support facilities and the enlisted housing retained by Navy, the 
    Aviation Alternative would use the inertial guidance laboratory 
    (Building 108) in a manner similar to Navy's historical use of that 
    building. On 162 acres at the eastern end of the base in Northampton 
    Township, this Alternative would develop parks and recreational 
    activities.
    
    Environmental Impacts
    
        Navy analyzed the direct, indirect, and cumulative impacts of the 
    disposal and reuse of this surplus Federal property. The EIS addressed 
    impacts of the Preferred Alternative, the University/Institutional 
    Alternative, the Residential Alternative, the Aviation Alternative, and 
    the ``No Action'' Alternative for each alternative's effects on land 
    use, socioeconomics, community services, transportation, air quality, 
    noise, infrastructure, cultural resources, natural resources, and 
    petroleum and hazardous substances. 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 an significant impact on 
    land use. Implementation of the Preferred Alternative would result in 
    the continuing use and further development of the property as a 
    technology research and development center. There would be more 
    commercial, industrial, and office activities, additional housing (for 
    single-family) and assisted living), various municipal activities, and 
    extensive parks and recreational areas.
        The existing airfield would not be used, and parts of the runway 
    would be converted into roadways and parking areas. Access to the 
    property would be gained from the existing roadway network of 
    Jacksonville Road, Street
    
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    Road, Kirk Road, Newton Road, Bristol Road, Hatboro Road, and New Road.
        The land uses proposed in the Preferred Alternative would be 
    generally compatible with each other and with adjacent off-base land 
    uses. However, development of the new facilities and activities would 
    result in a substantial increase in use of the property's open space 
    and a significant change from the existing airfield to various proposed 
    uses. Zoning changes will be required for the assisted living facility, 
    the parks and recreational areas, the firehouse, and the municipal 
    well. In Ivyland Borough, it would be necessary to rezone the proposed 
    site of the Reuse Plan's 150 to 200 housing units to accommodate the 
    resultant increase in residential density.
        The Reuse Plan would not have any significant impact on the 
    socioeconomics of the surrounding area. The Preferred Alternative would 
    build 150 to 200 new homes in that part of NAWC Warminster located in 
    Ivyland Borough, providing housing for an additional 400 to 600 
    persons. The proposed 250,000 square foot assisted living facility 
    would provide housing for about 500 senior residents.
        By the year 2010, this Alternative would create about 6,850 direct 
    jobs and 7,504 indirect jobs that would generate about $181 million in 
    direct payroll earnings and $151 million in indirect earnings. The 
    Preferred Alternative would also generate an estimated $1.305 million 
    annually in property tax revenue.
        The Preferred Alternative would not have any significant impact on 
    community services. By the year 2010, the Preferred Alternative would 
    generate an increase of 1,610 school age children living in the area. 
    Since this increase in student population would not be reached until 
    the year 2010, there is sufficient time for local school districts to 
    prepare for this impact from the reuse of NAWC Warminster as well as 
    other unrelated demographic changes in the region. Additionally, 
    property tax revenues that support local school systems would increase 
    as property previously owned by the Federal Government became taxable.
        The redevelopment of NAWC Warminster would increase the demand on 
    local communities for fire and police protection services. Closure of 
    the Navy fire station on the base resulted in dissolution of the mutual 
    aid agreements among local fire departments. Thus Warminster Township 
    is considering hiring full-time fire department employees to supplement 
    the volunteers who currently provide fire protection services. It would 
    also be necessary for Ivyland Borough to expand its fire and police 
    protection services to accommodate the redevelopment of NAWC 
    Warminster. However, implementation of the Preferred Alternative would 
    increase local government revenues by expanding the property tax base, 
    and these revenues would assist in expanding fire and police protection 
    services.
        The Preferred Alternative would increase the number of recreational 
    facilities in the region. Under this Alternative, additional passive 
    recreational resources, such as nature and picnic areas and athletic 
    fields, would be available to the public.
        The Preferred Alternative would have a significant impact on 
    transportation. By the year 2010, this Alternative would generate about 
    15,370 average daily trips. The traffic generated by the Reuse Plan 
    would cause considerable delays at eight intersections in the vicinity 
    of NAWC Warminster. Six of these intersections would operate at 
    unacceptable levels of service during peak commuting hours. 
    Implementing mitigation measures, such as signal modifications, 
    additional lanes, staggered work hours, and ride sharing, could reduce 
    the traffic impacts. Even with these improvements, however, there would 
    be significant impacts at certain intersections for which mitigation is 
    not feasible.
        The Preferred Alternative would not have any significant impact on 
    air quality. The base is located in a severe nonattainment area for 
    ozone as regulated by the Clean Air Act, 42 U.S.C. 7401-7671a (1994). 
    Ozone, commonly known as smog, is produced when volatile organic 
    compounds and nitrogen oxides react in the atmosphere. The base is in 
    attainment for all other common air pollutants regulated under the 
    Clean Air Act. However, emissions of one common air pollutant, carbon 
    monoxide (CO), would increase under the Reuse Plan.
        Carbon monoxide is produced by the burning of fossil fuels. As a 
    result of increased vehicular traffic moving to and from the property, 
    the annual emissions of CO would increase under the Reuse Plan. 
    Nevertheless, there would be no violation of the national standards for 
    carbon monoxide.
        The impact on air quality that could arise from sources of 
    stationary emissions, such as heating units, would depend upon the 
    nature and extent of activities conducted on the property. Developers 
    of future facilities would be responsible for obtaining the required 
    air permits and for complying with Federal, State and local laws and 
    regulations governing air pollution. Temporary impacts on air quality 
    resulting from construction activities would not be significant.
        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 Bucks County that do not meet 
    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 NAWC Warminster will not require Navy to 
    conduct a conformity determination.
        The Preferred Alternative would not have any significant impact on 
    noise. During reuse, a gradual increase in ambient noise levels would 
    arise out of the increased vehicular traffic. At four of the six sites 
    analyzed, noise increases in the early morning hours would be 
    perceptible to the human ear, i.e., greater than three decibels. 
    However, the existing noise levels near the residential areas are 
    typical of a suburban neighborhood and are already high.
        The Preferred Alternative would not have any significant impact on 
    infrastructure and utilities. It would be necessary gradually to 
    replace and upgrade the electrical distribution system. The Reuse 
    Plan's projected daily demand for potable water would exceed Navy's 
    historical usage and would require additional sources of water. It 
    would be necessary to extend the Warminster Municipal Authority's water 
    distribution system to the base and incorporate a drinking water well 
    on the base into that system.
        The proposed redevelopment of NAWC Warminster would require an 
    increase in wastewater treatment capacity. The acquiring entities could 
    use the base's wastewater treatment plant to provide adequate treatment 
    capacity for the proposed redevelopment of NAWC Warminster. When 
    operating this plant, they would be subject to the requirements of the 
    National Pollutant Discharge Elimination System (NPDES) permit program. 
    Similarly, stormwater must be managed in accordance with Federal, 
    State, and local laws and regulations.
    
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    Thus, the acquiring entities would be responsible for constructing 
    adequate drainage facilities.
        The Preferred Alternative would generate about three tons of solid 
    waste per day more than Navy did when the base was operational. There 
    is adequate disposal capacity to accommodate this increase in waste, 
    and no significant impact is likely.
        The Preferred Alternative would not have any significant impact on 
    cultural resources. Pursuant to Section 106 of the National Historic 
    Preservation Act, 16 U.S.C. 470f (1994), Navy performed a cultural 
    resource survey and determined that seven structures are eligible for 
    listing on the National Register of Historic Places. In a letter dated 
    May 6, 1998, the Pennsylvania State Historic Preservation Officer 
    (SHPO) stated that only three of the seven structures satisfied 
    eligibility requirements. The three structures at NAWC Warminster 
    determined to be eligible for listing on the Register are the inertial 
    guidance laboratory (Building 108), the ejector seat test facility 
    (Structure 361), and the centrifuge (Building 70). The Reuse Plan 
    proposes to use the inertial guidance laboratory and the centrifuge in 
    ways similar to Navy's historical uses. The ejector seat test facility 
    will be used to support communications antennas.
        There are no known archaeological sites at NAWC Warminster that are 
    eligible for listing on the National Register. However, the cultural 
    resource survey identified archaeologically sensitive areas within 
    parts of NAWC Warminster proposed for disposal and reuse, i.e., at 
    Quarters A and Quarters B. Depending upon the location and design of 
    particular redevelopment projects, potential archaeological resources 
    in these areas could be 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 Pennsylvania State Historic Preservation 
    Officer. These consultations identified measures that the acquiring 
    entities must take to avoid or mitigate adverse impacts on the eligible 
    structures and the archaeologically sensitive areas. These measures 
    were set forth in a Programmatic Agreement among Navy, the Advisory 
    Council on Historic Preservation, and the Pennsylvania State Historic 
    Preservation Officer, dated December 9, 1998. This Programmatic 
    Agreement requires the incorporation of restrictive deed covenants for 
    each of the structures in the documents conveying the property. These 
    covenants require subsequent owners of the property to obtain written 
    permission from the SHPO before undertaking any alterations to the 
    three eligible structures and before engaging in any activities that 
    would disturb the ground in the archaeologically sensitive areas.
        The Preferred Alternative would not have any significant impact on 
    upland vegetation and wildlife. The existing vegetation in the vicinity 
    of the runway, taxiways, and developed areas consists largely of 
    maintained lawns and ornamental and naturally occurring trees and 
    shrubs. The redevelopment of these areas would reduce the vegetation in 
    these low value habitats. Navy did not actively use the property east 
    of the runway when the base was operational and leased it for farming. 
    The proposed redevelopment of this area would result in a change from 
    agricultural activities to parks and recreational uses.
        Navy determined that there were no Federally-listed threatened or 
    endangered species at NAWC Warminster as defined by the Endangered 
    Species Act of 1973, 16 U.S.C. 1531-1544 (1994). Therefore, the 
    disposal and reuse of NAWC Warminster would not have any adverse effect 
    on Federally-listed threatened or endangered species. In letters dated 
    September 14, 1995 and November 21, 1995, the United States Fish and 
    Wildlife Service concurred in Navy's determination.
        There are several freshwater wetlands on the base that cover about 
    three acres. The Reuse Plan did not provide detailed site plans for the 
    proposed redevelopment. Thus, the impact on these wetlands cannot be 
    fully assessed. Future redevelopment plans that may affect wetlands 
    will be subject to the wetland 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. Implementation of the Preferred Alternative 
    would not have any impact on floodplains, because NAWC Warminster does 
    not lie within 100-year or 500-year floodplains.
        The Preferred Alternative would not have any significant impact on 
    the environment as a result of the use of petroleum products or the use 
    or generation of hazardous substances by the acquiring entities. 
    Hazardous materials used and hazardous waste generated by the Reuse 
    Plan 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 NAWC Warmister. Navy 
    will inform future property owners about the environmental condition of 
    the property and may, when 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 NAWC Warminster and subsequent reuse of the property under 
    the various proposed alternatives. Minority and low income populations 
    residing within the region would not be disproportionately affected. 
    Indeed, the employment opportunities, housing and public services 
    generated by implementing the Reuse Plan would have beneficial effects.
        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 residential 
    and recreational areas. The Preferred Alternative would not pose any 
    disproportionate environmental health or safety risks to children.
    
    Mitigation
    
        Implementation of Navy's decision to dispose of NAWC Warminster 
    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 NAWC Warminster. The acquiring entities, under the 
    direction of Federal, State, and local agencies with regulatory 
    authority over protected resources, will be responsible for 
    implementing necessary mitigation measures.
    
    [[Page 59170]]
    
    Comments Received on the FEIS
    
        Navy received comments on the FEIS from one Federal agency, the 
    United States Environmental Protection Agency (Region III), and one 
    local agency, the Warminster Municipal Authority. All of the 
    substantive comments concerned issues discussed in the FEIS. Those 
    comments that require clarification are addressed below.
        The comments of the Environmental Protection Agency's Region III 
    concerned background information in Section 3 of the FEIS regarding 
    Navy's Installation Restoration Program at NAWC Warminster. Navy's 
    responses to these comments are being provided to Region III in the 
    separate regulatory process prescribed for Installation Restoration 
    Programs by the Comprehensive Environmental Response, Compensation and 
    Liability Act of 1980, U.S.C. 9601-9675 (1994).
        The Warminster Municipal authority commented that the analysis in 
    Section 4 of the FEIS incorrectly stated that extending the Authority's 
    potable water distribution system to the base would provide an adequate 
    supply of water for redevelopment. The Municipal Authority stated that 
    it would also be necessary to draw upon a drinking water well on the 
    base to provide an adequate supply of potable water for redevelopment. 
    As discussed earlier, Navy acknowledges that a drinking water well on 
    the base must be incorporated into the Authority's water distribution 
    system to provide an adequate supply of potable water for the proposed 
    redevelopment of NAWC Warminster.
        The Municipal Authority also commented that the analysis in Section 
    4 of the FEIS incorrectly concluded that its wastewater treatment plant 
    has sufficient capacity to treat wastewater generated under the 
    Preferred Alternative. As discussed earlier, Navy acknowledges that 
    additional wastewater treatment capacity would be required to support 
    the proposed redevelopment of NAWC Warminster.
    
    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 
    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 Service 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
    
    [[Page 59171]]
    
    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 NAWC Warminster, 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 various purposes including residential, 
    commercial, municipal, assisted living, low income and homeless 
    assistance, and parks and recreational activities. 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 Reuse Plan responds to local economic conditions, promotes 
    rapid economic recovery from the impact of the closure of NAWC 
    Warminster, 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 16,123 
    (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 NAWC Warminster 
    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 the surplus Federal property at 
    Naval Air Warfare Center, Aircraft Division, Warminster, Pennsylvania, 
    in a manner that is consistent with the Federal Lands Reuse Authority 
    of Bucks County's Reuse Plan for the property.
    
        Dated: October 15, 1999.
    William J. Cassidy, Jr.,
    Deputy Assistant Secretary of the Navy (Conversion And Redevelopment).
        Dated: October 27, 1999.
    J.L. Roth,
    Lieutenant Commander, Judge Advocate General's Corps, U.S. Navy, 
    Federal Register Liaison Officer.
    [FR Doc. 99-28646 Filed 11-1-99; 8:45 am]
    BILLING CODE 3810-FF-M
    
    
    

Document Information

Published:
11/02/1999
Department:
Navy Department
Entry Type:
Notice
Document Number:
99-28646
Pages:
59164-59171 (8 pages)
PDF File:
99-28646.pdf
CFR: (1)
41 CFR 101-47.304-9)