[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
