[Federal Register Volume 62, Number 133 (Friday, July 11, 1997)]
[Notices]
[Pages 37259-37266]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-18135]


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GENERAL SERVICES ADMINISTRATION


Final Record of Decision

AGENCY: General Services Administration, in cooperation with Food and 
Drug Administration, Assistance from Leo A Daly Greenhorne and O'Mara, 
Inc.

DIRECT INQUIRIES TO: Mr. Jag Bhargava, Development Director, General 
Services Administration, National Capital Region, 7th and D Streets, 
S.W., Washington, DC 20407, (202) 708-6570.

Abstract

June, 1997

SUPPLEMENTARY INFORMATION:

    This Record of Decision formally documents the intent of the 
General Services Administration and the U.S. Food and Drug 
Administration to construct new consolidated, state-of-the-art 
facilities for the U.S. Food and Drug Administration at the former 
Naval Surface Warfare Center at White Oak in Montgomery County, 
Maryland. This Record of Decision summarizes the impacts of the 
proposed development and proposed mitigation measures which are 
detailed in the Final Environmental Impact Statement. Specific 
mitigation plans will be developed during the design stage and will 
consist of those strategies identified in the Final EIS.
    Pursuant to Section 102(2)(c) of the National Environmental Policy 
Act (NEPA), the Council on Environmental Quality (CEQ) Regulations (40 
CFR Part 1500 and 1508), and the General Services Administration (GSA) 
Handbook, PBS Preparation of Environmental Assessments and 
Environmental Impact Statements (PBS P 1095.4B), GSA, in its role as 
manager of federal government real estate and

[[Page 37260]]

space planning, announces its Record of Decision regarding locating the 
proposed consolidation of the Headquarters component of the U.S. Food 
and Drug Administration (FDA) at the former Naval Surface Warfare 
Center at White Oak in Montgomery County, Maryland. GSA will develop 
the White Oak site with approximately 2,111,421 gross square feet of 
offices, laboratories and support facilities for approximately 5,947 
employees and 500 visitors per day.

I. The Purpose of and Need for the Proposed Action

Purpose of the Proposed Action

    The purpose of the proposed action is to provide new, consolidated, 
state-of-the-art facilities for the headquarters component of FDA on 
one location in Montgomery County, Maryland. The White Oak site would 
be used to consolidate the Office of the Commissioner, the Center for 
Drug Evaluation and Research, the Center for Devices and Radiological 
Health, and the Center for Biologics Evaluation and Research, the 
Center for Devices and Radiological Health, and the Center for 
Biologics Evaluation and Research. (The Center for Veterinary Medicine 
and the Center for Food Safety and Applied Nutrition would be in 
separate locations in Prince George's County, Maryland, and have been 
addressed in separate environmental documents.)

Background of the Proposed Action

    In 1990, Congress passed the FDA Revitalization Act, which 
authorized the Secretary of Health and Human Services and the 
Administrator of the GSA to plan, design, and construct a consolidated 
facility for FDA. In the Fiscal Year 1992 Appropriation of funding for 
the FDA consolidation, Congress directed that the new facilities 
supporting FDA be constructed on two sites. The directive of the 
Appropriation split the consolidation between two counties in Maryland. 
In May of 1995, the U.S. Congress rescinded the funding for the FDA 
consolidation in Montgomery County. In order to reinstate the funding, 
GSA and FDA developed a revised program to (1) reduce the size and 
cost, (2) reduce the construction budget, (3) utilize a smaller site, 
and (4) find a less remote, more developed location, for the proposed 
action.

Need for the Proposed Action

    The Headquarters components of FDA are current housed in more than 
40 federally-owned or leased buildings at 18 locations throughout the 
Washington D.C. Metropolitan area. The dispersed locations of the FDA 
have created both administrative and operational inefficiencies, 
including duplication of services. The fragmentation of and distance 
between FDA's metropolitan facilities, coupled with inadequate parking 
at several facilities, make travel between the various components 
inefficient. Also, many of the buildings occupied by FDA are old, in 
poor condition, and overcrowded.
    The proposed action is needed to provide a consolidated facility 
for FDA. The consolidation would improve administrative and operational 
efficiency and would facilitate communication and interaction among 
staff. The proposed action would provide state-of-the-art laboratories 
and buildings for FDA. The facilities would provide flexibility for FDA 
to quickly and economically respond to changing priorities and programs 
and advances in science and technology through modular planning and 
systems flexibility. The new facilities would improve safety and reduce 
potential hazards through careful design of the laboratories, animal 
rooms, offices, and support spaces, including adequate processing and 
storage areas for wastes.
    The new facilities would improve energy efficiency through heat 
recovery strategies, central power plant efficiencies, site placement 
and landscaping, and an efficient building envelop, form, and 
operation.
    The consolidation of the FDA Headquarters at new state-of-the-art 
facilities would provide a quality workplace environment that would 
promote creativity and productivity and facilities communication among 
staff. A quality workplace environment would also improve FDA's 
opportunities to recruit and retain high quality employees.

II. Alternatives Considered

Description of the Proposed Action

    The FDA Consolidation within Montgomery County would consist of 
constructing approximately 2,111,421 gross square feet (gsf) [190,028 
square meters (m2)] of offices, laboratories, and support 
facilities for approximately 5,947 employees and 500 visitors per day.
    The Office of the Commissioner would have its own office building 
and each of the centers of FDA Headquarters would have its own research 
laboratory facilities, in separate structures, to support its 
regulatory mission. Shared support facilities proposed for the FDA 
consolidation are listed bellow:
     Agency Crisis Center.
     Auditorium.
     Broadcast Studio.
     Child-Care Center.
     Computer Center.
     Credit Union.
     Custodial Services.
     Employee Assistance.
     Food Services.
     Health Center.
     Library and Resource Center.
     Mailing Center.
     Maintenance Shop.
     Security/Guard Station.
     Shipping and Receiving.
     Training Center.
     Visitor Center.
     Warehouse.
     Waste Storage.
    The laboratory portion of the facility would house research 
laboratories, laboratory support, and offices for the scientists. In 
order to provide efficient design, the laboratories would likely be 
medium-rise structures.
Naval Surface Warfare Center at White Oak
    The Naval Surface Warfare Center at White Oak in Silver Spring, 
Maryland is the Selected Alternative for the proposed FDA 
consolidation. The site has been used by the Navy for research, 
development, testing, and evaluation since 1946. The Defense Base 
Closure and Realignment Act of 1995 mandated that the Navy close the 
White Oak base. The site encompasses 670 acres (268 hectares). The most 
concentrated area of development would be on the western portion of the 
site. The site layout would maximize the conservation of existing 
wetlands, stream valleys, forested areas, and steep slopes. The 
proposed facilities would include a compact layout, utilizing medium-
rise buildings clustered on approximately 130 acres (52 hectares). A 
40-acre remote parking lot is proposed, as well as a new access road to 
Cherry Hill Road.
Reuse of Existing White Oak Facilities
    GSA prepared a detailed evaluation of the existing buildings and 
systems for their potential renovation/reuse in the new development 
scheme, or alternatively, their demolition. It is known that existing 
buildings contain hazardous materials, in the form of asbestos and lead 
paint, which would have to be removed or encapsulated before the 
buildings could be demolished or renovated. Findings indicated that it 
would not be cost effective to rehabilitate and reuse the majority of 
the existing buildings. Two buildings will be reused, Building 1 (the 
Main Administration Building and Building 100.

[[Page 37261]]

No-Action Alternative

    Under the No-Action alternative, the FDA, through GSA, would 
continue to use its existing facilities of more than 40 government-
owned and leased buildings at 18 locations in the Washington D.C. 
Metropolitan area. Additional facilities would be leased as the need 
arises.
    The No-Action alternative would not allow for the improved 
efficiency resulting from consolidated of the administrative, 
management, and technical support functions of the Headquarters 
component of FDA. Higher administrative costs, due to duplication of 
services in multiple facilities, would continue. The existing 
facilities would not allow FDA to support the changing technology 
required to meet its regulatory mission. Expansion and renovation of 
existing FDA facilities or the leasing of additional facilities would 
be necessary to alleviate overcrowding. Under the No-Action 
alternative, the White Oak site studied in this EIS would not be used 
for the proposed FDA consolidation.

Alternative Sites Considered and Dismissed

Private Sector Site for Construction of New Facilities
    The site selection process began with an announcement of March 21, 
1994, of GSA's intention to acquire a site for the proposed FDA 
facilities in Montgomery County, Maryland. Early in the planning for 
the FDA consolidation, GSA, in consultation with FDA, established 
criteria for a site on which to construct the new facilities. These 
criteria were established to meet FDA requirements for office and 
laboratory space as well as for shared use support areas (see Section 
2.2.3).
    Nine sites were evaluated to determine compliance with the 
advertised criteria. These evaluations were based upon not only data 
received from the offerors, but also upon additional data obtained 
independently by the Site Selection Team from public agency mapping 
sources, aerial photo interpretations, physical site investigations, 
and environmental analyses. The Site Selection Team determined that 
five of the sites did not meet advertised requirements and one of the 
sites was withdrawn by the offeror. The sites studied in detail 
included the King Farm site, the Germantown site, and the Clarksburg 
Triangle site. These privately-owned sites were dismissed from 
consideration with the offer of the White Oak, federally-owned 
property.
Purchase or Lease Additional Facilities
    Because the majority of existing FDA facilities cannot accommodate 
expansion, GSA and FDA also investigated either the leasing or 
purchasing of additional facilities. Public notices were published, 
however, none of the offers received could provide sufficient space to 
meet FDA's needs.

III. Environmental Impact Statement

    An EIS was prepared to address the direct, indirect, and cumulative 
impacts of the Proposed Action, consolidation of FDA at White Oak, and 
No-Action alternatives. A Draft EIS was issued in March 1996 and the 
Final EIS was issued in April 1997. Impacts from the No-Action 
alternative were assessed based on the FDA remaining in currently-used 
facilities. The environmental issues addressed in the EIS were 
identified through early public involvement (scoping); through 
consultations with local, state, and federal agencies; and by the 
project team, which includes GSA, FDA, and contractor personnel who 
have had experience with projects of similar scope. For discussion and 
analysis, the issues are grouped into four categories: natural and 
physical environment; socioeconomic environment; cultural environment; 
and infrastructure and waste management. The EIS identified the 
Proposed Action alternative as the preferred alternative.

IV. Affected Environment

    The White Oak site encompasses 670 acres (268 hectares), of which 
approximately 621 acres (248 hectares) lie within Montgomery County and 
approximately 49 acres (20 hectares) lie within Prince George's County 
Maryland. Primary access to the site is from New Hampshire Avenue, 
approximately 1.15 miles (1.84 kilometers) north of the Capital 
Beltway, Interstate 495, and 0.75 miles (1.22 kilometers) south of U.S. 
Highway 29, Colesville Road.
    The White Oak site is roughly 10,000 feet (3,048 meters) east-west 
by 3,300 feet (1,006 meters) north-south. The property was acquired by 
the Navy in 1944 and utilized until recently for research, development, 
testing and evaluation of weapons systems. The developed areas of the 
site are separated by eight wooded stream courses, the largest of which 
is Paint Branch, bisecting the site from north to south. Existing 
development is grouped on the western, central and eastern thirds of 
the site, with the main concentration being on the western third. There 
are 212 existing structures on site.

V. Environmental Consequences of the Proposed Action and Mitigation 
Measures

    The proposed FDA facilities would be constructed on a compact site 
layout, utilizing medium-rise buildings clustered on approximately 130 
acres (52 hectares) of the western portion of the site. In addition to 
the 130-acre development area, 40 acres (16 hectares) are proposed for 
use as remote parking. The majority of the White Oak site, including 
all buildings, ground and infrastructure, outside the 170 acres (68 
hectares) developed for FDA's consolidation, would remain as it exist 
when the Navy leaves. Future development of currently unoccupied area 
would be subject to separate environmental reviews. The proposed limits 
of disturbance for development of the centers, road, and support 
facilities were used to assess impact for the Proposed Action.
    A summary of the impacts to the natural and physical environment, 
the social environment, the cultural environment, and infrastructure 
and waste management along with proposed mitigation measures is 
provided below.

Geology, Soils, and Topography

    The construction of the FDA facility would interact with the 
existing geologic environment as the result of grading activities 
associated with construction which would alter the topography and soils 
of the site. Construction in areas with steep slopes will be avoided to 
the extent possible. Detailed subsurface engineering studies will be 
undertaken prior to design and construction to ensure that sound 
building practices are followed. Soil suitability will be determined 
and appropriate building foundation specifications will be developed. A 
detailed erosion and sedimentation plan will be developed prior to 
construction, following the state's ``Erosion and Sediment Control 
Guidelines for State and Federal Projects'' (Maryland Department of 
Environment (MDE), 1990), to ensure that appropriate soil erosion and 
sediment control measures are taken during construction of buildings, 
roadways, or utility lines to minimize soil loss due to erosion.

Water Resources

    Of the ten stream systems on the White Oak site (Paint Branch, 
Westfarm Branch, and eight unnamed tributaries), five streams could be 
directly affected by the proposed action. Paint Branch and its 
tributaries on the White Oak site

[[Page 37262]]

are classified by Maryland Department of the Environment as Use II 
waters and carry the state's most stringent water quality standards. 
Stormwater management for the proposed development will be designed to 
meet MDE requirements. Three stormwater management detention (dry) 
basins and an underground stormwater management facility will provide 
quantitative control for the main FDA site. Four stormwater management 
(dry) basins will provide quantitative control for the remote parking 
area, and another detention (dry) basin will provide quantitative 
control for the new entrance road connecting existing Dahlgren Road to 
Cherry Hill Road.
    Qualitative stormwater management will be provided by bioretention 
areas and, if feasible, infiltration trenches throughout the site. 
Bioretention areas are proposed for many of the islands in the parking 
lots to treat the runoff from the parking lots. Infiltration trenches 
will provide qualitative control for the buildings and roads.
    Several non-structural best management practices (BMPs) will be 
incorporated into the design of the project to further mitigate 
potential water quality concerns. Open section roads (i.e., no curb and 
gutter) with grass swales and vegetated islands will be used on the 
site to filter pollutants and reduce thermal impacts. Stream buffers 
will be maintained to protect stream water quality in accordance with 
Maryland-National Capital Park and Planning Commission (M-NCPPC) 
guidelines.
    Mitigation measures will be incorporated into the construction to 
minimize the risk of contaminants entering groundwater. Proper 
precautions will be taken to prevent transport of contaminants during 
construction and excavation activities. The amount of mowed lawns will 
be minimized and integrated pest management techniques will be used 
during landscaping and turf maintenance practices to reduce the 
potential for altering groundwater quality.

Wetlands

    Based on the proposed limits of disturbance, there will be no 
direct impacts to vegetated wetlands. Incidental impacts (<50 square 
feet each) may be necessary for construction of seven stormwater 
outfalls. Authorizations from the Corps of Engineers and Maryland 
Department of Environment will be obtained prior to construction of 
these outfalls, if impacts to the stream channels become necessary.
    The increase in impervious surfaces could increase erosion and 
sedimentation which could indirectly impact wetlands and streams. The 
vegetated wetland on the site could experience scouring, loss of 
sediments, and loss of herbaceous vegetation. Increased flooding could 
expand the wetland boundary in some areas. Increased erosion due to 
scouring would increase sediment load in the tributaries, which could 
increase sedimentation and facilitate the conversion of wetlands to 
uplands. Effective stormwater management and erosion control will 
minimize indirect impacts. The proposed buffer zones throughout the 
site will also minimize impacts. There would be some cumulative impacts 
to wetlands on the White Oak site due to on- and off-site developments. 
Increases in flooding, erosion, and sediment loads are anticipated to 
affect existing wetlands.

Vegetation and Wildlife

    Based on the proposed limits of disturbance for the proposed 
action, 35 acres (14 hectares) of mowed lawn and 32 acres (13 hectares) 
of deciduous forest land would be directly affected. Other areas 
affected by the proposed construction are previously developed areas 
which provide minimal wildlife habitat. The majority of proposed forest 
land impacts are along the edge of the existing forest land and near 
the existing development. All possible measures will be taken to avoid 
impacts to forest land. Impacts from human disturbance will be minimal 
since the areas being developed for the FDA facilities are presently 
developed.
    The White Oak site is surrounded by development and is one of only 
a few areas of substantial plant and wildlife habitat remaining in the 
vicinity. Development of this site for the FDA facility and would 
further decrease the limited amount of plant and wildlife habitat 
available in this area. Mitigation measures for effects to vegetation 
and wildlife primarily consist of maintaining large areas of forest, 
especially along streams, to provide wildlife habitat and movement 
corridors. Sufficient amounts of forest will be retained under this 
alternative to comply with county and state forest conservation 
regulations. Specifically, there will be 25 acres (10 hectares) of 
forest land remaining on the 170-acre development site. This forest 
land is contiguous and will continue to buffer streams located on the 
project site.

Threatened, Endangered, and Sensitive Species

    No known direct, indirect, or cumulative impacts are anticipated to 
any federally-listed or state-listed endangered or threatened species 
or those proposed for listing with proposed construction on the White 
Oak site.

Contamination Assessment

    Of the seven identified hazardous waste sites, only one (Site #11, 
Industrial Wastewater Disposal Area 100) is located within the proposed 
project area. Groundwater will require a remediation program to achieve 
clean-up objectives. However, the timetable for implementation of the 
remediation is uncertain. The proposed remediation methodologies will 
involve extraction and on-site treatment of groundwater. The Navy is 
responsible for on-going remediation of all of the identified sites, 
including Site #11. Site investigation and remediation activities have 
been and will continue to be coordinated by the BRAC clean-up team 
which is comprised of the Navy (NSWC Detachment White Oak), the MDE, 
and the U.S. EPA Region III. These activities are communicated to the 
Restoration Advisory Board which is made up of local government and 
community members.
    Future locations of extraction wells and treatment facilities for 
the proposed groundwater remediation have not yet been established. The 
design for the construction of the proposed action will be coordinated 
with the Navy's plans for design and siting of extraction wells and on-
site treatment facilities for the remediation systems.
    Contaminated soils are not expected to affect construction. If soil 
contamination is identified, a permit for soil remediation is required 
from the MDE Air and Radiation Management Division. In addition, 
arrangements for the testing, containment and treatment of groundwater 
will be required if dewatering operations are needed for construction 
excavations.
    Asbestos has been identified in many of the buildings which are 
designated for demolition or renovation within the proposed action 
project area. As demolition and renovation activities could cause the 
release of asbestos to the environment, all friable or potentially 
friable asbestos will be removed prior to building alterations in 
accordance with the National Emissions Standard for Hazardous Air 
Pollutants (NESHAPS) and Maryland Department of the Environment Air 
Management regulations. Asbestos emissions to the environment from each 
NESHAPS

[[Page 37263]]

source will be minimized through engineering controls and appropriate 
work practices. All asbestos and asbestos-contaminated debris will be 
disposed off-site at a permitted disposal facility.
    Lead paint is likely to be present in buildings designated for 
demolition or renovation within the proposed action area. Demolition of 
buildings must be performed in accordance with MDE regulations (COMAR 
26.11.06.03D) requiring that reasonable precaution must be taken to 
prevent particulate matter, such as fugitive dust from becoming 
airborne. Demolition and construction debris containing lead-based 
paint wastes will be segregated and tested to determine lead 
concentrations and appropriate disposal in accordance with RCRA 
guidelines.
    PCB wastes are not stored within the proposed action area. However, 
fluorescent light ballasts containing PCBs are likely to be present in 
many of the buildings within the proposed action area. PCB-containing 
light ballasts and any remaining PCB-containing transformer equipment 
will be removed prior to building demolition and disposed at off-site 
TSCA-approved facilities.
    According to the White Oak underground storage tank (UST) 
inventory, 11 petroleum UST systems are active in the proposed action 
area. The proposed action will require the removal or closure of all 
UST systems which are taken out of service. Also, removal of four fuel 
oil aboveground storage tanks (ASTs) from locations within the proposed 
action project area will be required by local building codes.
    It is anticipated that abatement or closure activities related to 
remaining asbestos, lead paint, PCBs, and USTs will be carried out 
prior to or during construction, as appropriate, by demolition or 
abatement contractors. Project specifications for these actions will 
require proper off-site disposal of wastes, including hazardous wastes 
and special solid wastes, at appropriate disposal facilities.
    Decommissioning surveys will be completed by the NSWC Health 
Physics Office in compliance with requirements for termination of 
permits for radioactive sources under the Navy's Nuclear Regulatory 
Commission license. Based on the findings of the scoping survey, 
related to residual Radium 226 contamination, further study will be 
required to determine how much remediation is necessary and the 
associated costs. Appropriate remediation will then be conducted by the 
Navy.

Air Quality

    The results of the air quality analysis for both mobile and 
stationary emission sources indicate that the future scenario with FDA 
would not significantly affect the ambient air quality in the region. 
The mobile and stationary sources of the proposed action will not 
significantly contribute to any violations of the National Ambient Air 
Quality Standards (NAAQS) for ozone or its precursors such as nitrous 
oxide (NOX) or volatile organic compounds (VOCs). The 
stationary sources at NSWC, including the proposed new boilers, will 
not impact the attainment of a 15 percent reduction in VOCs, as 
outlined in the Maryland State Implementation Plan. Upon comparison of 
the emissions from the automobile exhaust, it was determined that the 
carbon monoxide, NOx, and particulate matter emissions were 
well below the de minimis levels. Therefore, emissions generated from 
the proposed action are exempt from further analysis as defined in the 
General Conformity Rule under the Clean Air Act.
    The White Oak site is located in an ozone serious nonattainment 
area, however, the area is in attainment for carbon monoxide. The 
requirements will include review of criteria pollutants, if any, to be 
generated from the proposed sources. The permits will be reviewed and 
approved by the Maryland Air and Radiation Administration. The proposed 
boilers will require permits from the MDE. During the permitting 
process for the proposed boilers, the impacts on the ambient air 
quality will be determined. The air quality model in this case will 
also determine the minimum stack heights required to effectively 
disperse the emissions from the proposed boilers.
    Federal mandates to reduce emissions include controls for refueling 
operations, inspection, and maintenance of vehicle emission systems. 
States and local governments have regulated specific operations and 
participated in the reformulated gasoline program. Car pooling, 
employee commute options, mass transit improvements, high occupancy 
vehicle (HOV) lanes are some of the Transportation Control Measures 
(TCMs), FDA, since it is a government agency, will be required to 
implement these measures to reduce emissions.

Noise

    Direct, short-term noise impacts would result from construction 
activities during development of the FDA facility. There would be no 
direct impacts to area noise levels due to operations of the proposed 
facility. Noise levels should be similar or slightly lower than those 
currently at the side due to cessation of current Navy tests involving 
explosives. Indirect roadway traffic noise will have virtually no 
impact on noise levels at the identified sensitive receptors.
    Noise from construction equipment can be reduced by the 
construction of temporary noise barriers by avoiding times of day or 
days of the week when noise exposures will be more objectionable (for 
example, weekend mornings). The lowest amplitude back-up alarms 
sufficient for ``audibility'' to meet safety requirements will be used. 
Equipment will be operated with manufacturer noise control features in 
working order.
    Facilities on the FDA site that would generate noise will be 
located as far from noise-sensitive receptors as possible. Site 
topography and layout will be used to provide shielding by hillsides or 
other structures. For indoor noise sources, buildings will be specified 
to provide suitable sound attenuation and the equipment operating 
spaces will be treated to minimize interior sound buildup. Internal 
combustion engine exhausts and fans drawing from or discharging to the 
atmosphere will be fitted with silencers. Where possible, installed 
equipment will be specified to minimize noise generation (for example, 
fan selection for low noise). Noisy facility operations will be 
scheduled for times that are least noise-sensitive.

Land Use

    The existing zoning for the White Oak site is for residential 
development; however, the proposed land use is compatible with the 
existing land use and impact will be minimal.

Population

    Because no residential uses are contemplated as part of the 
proposed FDA consolidation and since the proposed action would result 
primarily in a consolidation of existing offices and laboratories, 
implementation of the proposed action on this site should not result in 
a significant change in county-wide population characteristics or 
projections.

Housing

    Additional housing demand may be generated in the White Oak area 
due to the relocation of FDA facilities.

Economy, Employment, and Income

    The proposed action at White Oak will have positive short-term 
impacts on

[[Page 37264]]

the regional economy. The consolidation of the FDA facilities will not 
significantly affect the economy of the National Capital Region because 
neither employment nor procurement is expected to change. However, the 
White Oak Master Plan area of Montgomery County will benefit from 
payroll spending by FDA employees at local businesses and income of FDA 
employees choosing to relocate their place of residence.

Environmental Justice in Minority and Low-Income Populations

    The proposed action will not disproportionately impact minority or 
low-income populations in the White Oak area. Construction of the 
proposed project will not hinder the continued economic growth or alter 
the character of the area.

Taxes and Revenue

    Taxes and government revenues are not expected to be significantly 
affected by the proposed action.

Community Facilities and Services

    Construction of the FDA facility at White Oak would not result in 
any direct impacts to existing community facilities and services.

Aesthetics and Visual Resources

    The project facilities would permanently affect the existing 
appearance of the landscape within the project site. Special care will 
be given to the architectural character of the new buildings so that 
they are compatible with the surrounding area. Landscaping measures 
will help mitigate the visual impacts of the proposed facilities from 
surrounding properties.

Public Health and Safety

    Details of the safety, prevention and mitigation procedures that 
will be employed to protect public health at the FDA facility will be 
provided by the FDA in a Safety Analysis Report when definitive plans 
for the site are in place. Extensive prevention and mitigation 
procedures are practiced by the FDA to prevent occupational hazards and 
migration of contaminants off site via transport by workers or any 
other pathway.
    These regulations will contain hazardous or infectious substances 
in a controlled environment, and will prevent exposure of the general 
public to any agents that may adversely affect human health.

Historic Properties

    The Maryland Historic Trust State Historic Sites Inventory Form 
concluded that the Haval Ordnance Laboratory (NOL) historic district is 
significant under National Register Criterion A, B, and C, and 
possesses exceptional significance under National Register Criteria 
Consideration G, at the national level for its pivotal role as a first-
generation Cold-War-period defense weapons research facility.
    If the Maryland State Historic Preservation Officer (SHPO) concurs 
with this finding, then the proposed action will have an Adverse Effect 
on the Naval Ordnance Laboratory historic district as defined in 36 CFR 
800.9 Approximately 70 Contributing historic district resources and 46 
Non-contributing resources will be demolished within the 100 Area, and 
approximately 4 Contributing resources will be taken within the 200 
Area. In the event of a finding of Adverse Effect, GSA will follow the 
requirements found in 36 CFR 800.5e (When the effect is adverse). In 
compliance with these requirements, GSA will: notify the Advisory 
Council on Historic Preservation (Council); consult with the SHPO and 
involve interested persons as participating consulting parties; 
document the finding of Adverse Effect according to 36 CFR 800.8; 
inform the public of the finding of Adverse Effect; and execute a 
Memorandum of Agreement (MOA) with the SHPO specifying how the effects 
will be taken into account. The MOA is expected to provide an agreement 
on ways in which GSA will minimize or mitigate these adverse impacts.

Archeological Resources

    The Phase I archaeological investigation revealed no prehistoric or 
historic archaeological remains within the areas of potential effects 
for the proposed construction activities. Concurrence from the State 
Historic Preservation Office (Maryland Historical Trust) is pending.

Utilities

    Adequate water supply can be provided to the White Oak site from 
existing service connections. Improvements to the existing sewer system 
will be required, and the Paint Branch Trunk sewer will likely require 
relief in the next 5 to 10 years. GSA and FDA will prepare a water 
conservation plan and policy, install water saving fixtures, and design 
landscape plans for minimum water usage.
    Adequate electrical power and natural gas be supplied to the White 
Oak site from existing lines. Energy conservation measures will be 
incorporated into building design. Updated on-site communication 
systems will be required.

Transportation and Parking

    Access to the White Oak site is provided via MD 650 and Cherry Hill 
Road. The improvements proposed for the main entrance to the site from 
MD 650 include:
     A single left-turn lane for southbound MD 650 into the 
site.
     A right-turn lane for northbound MD 650 into the site.
     A right-turn lane from the site to northbound MD 650.
     Three left-turn lanes, including a shared through lane, 
from the site to southbound MD 650.
    A new full entrance is proposed from Cherry Hill Road adjacent to 
the northeast corner of the property. This entrance will be at a new 
location close to the Montgomery/Prince George's county line and will 
include:
     A left-and right-turn lane exiting the site to Cherry Hill 
Road.
     A right-turn lane for eastbound Cherry Hill Road into the 
site.
     A left-turn lane for westbound Cherry Hill Road into the 
site.
    Intersection capacity analyses were performed for the AM and PM 
peak hours at study intersections within the White Oak study area for 
the projected build-out year of 2005. The results of he analyses 
indicated that the majority of intersections would not operate at 
acceptable levels of service with or without the proposed FDA facility.
    A Transportation Management Plan (TMP) was developed to aid in the 
mitigation of traffic impacts from FDA to the extent possible. 
Transportation management strategies proposed include: provision of 
employee transportation coordinator; ride-matching service; 
preferential parking for carpools and vanpools; guaranteed ride home 
program; flexitime program; flecxiplace program; and bus service to/
from Metrorail. In addition to these strategies, the following is a 
list of roadway improvements that would be necessary to mitigate 
traffic impacts if the FDA facility is located at the White Oak site.
     MD 650 at Michelson Road. These improvements include the 
addition of a right-turn lane along northbound MD 650 into the site. 
The total length of the lane, including taper, would be 350 feed (107 
meters). the intersection improvements for MD 650 at Michelson Road 
mitigate the traffic impacts at the intersection in the PM but not the 
AM peak hour.
     MD 650 and Schindler Drive/Mahan Drive (Main Gate.) These 
improvements include the addition of a

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northbound channelized right-turn lane into the site; and extending the 
southbound left-turn lane on MD 650. The total length of the northbound 
right-turn lane, including taper, is 350 feet (107 meters) and the 
southbound left-turn lane is 400 feet (120 meters). These improvements 
also include the addition of two additional westbound lanes out of the 
site. The improvements to the intersection do not mitigate the traffic 
impact at the intersection in the PM peak hour.
     MD 650 at Powder Mill Road. These improvements include the 
widening of southbound MD 650 to accommodate the turning movements of 
three left-turn lanes from the east leg of Powder Mill Road. Widening 
will occur north and south of the intersection to transition the 
southbound lanes from a lane width of 12 feet to a width of 14 feet. 
The east leg of Powder Mill road will be restriped to provide double 
left-turn lanes, a thru/left-turn lane, and a right-turn lane and the 
traffic signal will be modified.
     MD 650 at Lockwood Drive. These improvements involve 
reconfiguring the intersection to provide an additional left-turn lane 
on Lockwood Drive's east and west approach to MD 650.
     Cherry Hill Road at Broadbirch Dr./Calverton Blvd. These 
improvements include the addition of a right-turn lane on northbound 
Cherry Hill Road. The total length of the northbound right-turn lane, 
including taper, is 350 feet (107 meters).
     Cherry Hill Road to Powder Mill Road. These improvements 
include the provision of separate north-and southbound left-turn lanes. 
The total length for both the north- and southbound lanes is 150 feet 
(46 meters).
     U.S. 29 at Lockwood Drive. These improvements involve 
widening the driveway from the Manor Care property to provide an 
additional left-turn lane.
    The widening of Cherry Hill Road to four lanes from the Montgomery 
County line to Autoville Drive in College Park is included in the 
Prince George's County FY 1996-2001 Capital Improvement Program. 
However, this project is not presently funded. The Subregion 1 Master 
Plan identifies Powder Mill Road as an arterial highway which will be 
ultimately built as a four to six-lane divided roadway between the 
Montgomery County line and U.S. 1 in Beltsville. Construction of these 
improvements to Cherry Hill Road and Powder Mill Road will improve 
access to the FDA site and more than mitigate existing and projected 
levels of service at the intersection of Cherry Hill Road and Powder 
Mill Road. In addition, access to the FDA site from I-95 will be 
greatly enhanced.
    The following intersections are not mitigated:
     U.S. 29 at Cherry Hill Road/Randolph Road.
     MD 650 at Lockwood Drive.
     MD 650 at Elton Road.
    FDA traffic will have a relatively small impact on those 
intersections at which mitigation was not recommended. Mitigation was 
not recommended at these intersections due to physical constraints such 
as existing structures and inadequate rights of way. In addition, these 
intersections were projected to fail under future conditions without 
the presence of FDA traffic.
    To improve traffic flow in the area surrounding the site, 
implementation of regional solutions proposed in the Montgomery and 
Prince George's Counties Master Plans will be necessary. These 
improvements could include construction of grade separated interchanges 
on U.S. 29, widening Cherry Hill Road and Powder Mill Road, and 
construction of a Transitway on U.S. 29. Additional regional solutions 
would include enhanced bus and feeder service to Metrorail and MARC 
train stations at Silver Spring and Greenbelt.

Waste Management

    Waste types to be generated by FDA include: general waste 
(including recyclable waste), medical waste, hazardous waste, low-level 
radioactive waste, and mixed waste. All wastes will be properly 
handled, stored, and removed from the site in accordance with 
appropriate state and federal regulations.

VI. Areas of Controversy

    The following areas of controversy concerning the proposed action 
have been identified from public and agency comments: the effects of 
the FDA facility on area traffic: the availability of adequate public 
transportation; existing contamination on the White Oak site; effects 
of the new facility on water quality; and historic preservation. The 
actions taken to resolve these areas of controversy are presented 
below.

Traffic

    A traffic analysis was completed comparing the projected future 
traffic conditions for area intersections without FDA to those 
conditions projected for the proposed action. The results of the 
traffic analysis indicated that the majority of intersections would not 
operate at acceptable levels of service under either future scenario. 
To mitigate the impacts to area traffic from the FDA facility, off-site 
road improvements have been proposed as well as the implementation of 
transportation demand management strategies to reduce the number of 
vehicles accessing the White Oak site as detailed in Section V of this 
report.

Public Transportation

    The Silver Spring, Forest Glen, and Wheaton stations along the 
Metrorail Red Line are located approximately three miles from the White 
Oak site, and the Greenbelt and College Park stations of the Metrorail 
Green Line are located approximately four miles from the White Oak 
site. The MARC train also services stations in Silver Spring, 
Greenbelt, and College Park. There are several Metrobus on Ride On bus 
routes that service the White Oak area; however, the current services 
schedules are infrequent and some existing bus stops are not 
conveniently located.
    A component of the Transportation Management Plan is to provide bus 
service between the FDA facility and the Silver Spring Metro station. 
GSA will discuss bus service options with Montgomery County.

Existing Contaminated Areas

    The Navy is responsible for on-going remediation of all of the 
identified contaminated sites. Remediation activities will continue to 
be coordinated by the BRAC clean-up team which is comprised of the Navy 
(NSWC Detachment White Oak), the MDE, and the U.S. EPA Region III. 
These activities are communicated to the Restoration Advisory Board 
which is made up of local government and community members.

Water Quality Impacts

    Paint Branch and its tributaries on the White Oak site are 
classified by Maryland Department of the Environment as Use III waters 
and carry the state's most stringent water quality standards. 
Mitigation measures will include stream valley buffers, the utilization 
of best management practices for maximum pollutant removal efficiency, 
and state-of-the-art stormwater management techniques. Several 
stormwater management facilities are located within the stream valley 
buffers; however, they are within areas already disturbed.

Historic Preservation

    If the Maryland State Historic Preservation Officer concurs with 
the designation of the Naval Ordinance Laboratory as a historic 
district, then the proposed action will have an Adverse Effect. In the 
event of a finding of Adverse Effect, GSA will follow the

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requirements found in 36 CFR 800.5e (When the effect is adverse). In 
compliance with these requirements, GSA will: notify the Advisory 
Council on Historic Preservation (Council); consult with the SHPO and 
involve interested persons as participating consulting parties; 
document the finding of Adverse Effect according to 36 CFR 800.8; 
inform the public of the finding of Adverse Effect; and execute a 
Memorandum of Agreement (MOA) with the SHPO specifying how the effects 
will be taken into account. The MOA is expected to provide an agreement 
on ways in which GSA will minimize or mitigate these adverse impacts.

VII. Environmental Planning Process

    The Scoping process including the publication of the Notice of 
Intent in the Federal Register on October 25, 1995 followed by a series 
of scoping meetings held to identify issues of concern to the community 
and government agencies. A public scoping meeting was held on November 
7, 1995 at the Naval Surface Warfare Center in White Oak, and an agency 
scoping meeting was held on November 21, 1995.
    The National Environmental Policy Act of 1969 (NEPA), as amended, 
requires that the public and affected agencies be provided the 
opportunity to review and comment on the Environmental Impact Statement 
(EIS). A 75-day review period of the draft EIS, commenced on March 15, 
1996 and concluded on May 31, 1996 in order to comply with these 
requirements. During this period, a public hearing was held on April 
16, 1996 at the Naval Surface Warfare Center at the site of the 
Proposed Action to receive comments from the public.
    A Final Environmental Impact Statement was prepared to address 
comments made on the Draft EIS, and was filed with the U.S. EPA on May 
2, 1997. The Final EIS was also made available to the public and 
affected agencies for an additional 30-day review period (May 2, 1997 
through June 2, 1997). Comments on the Final EIS were taken into 
consideration by GSA and FDA in the preparation of this Record of 
Decision.
    GSA believes that there are no other outstanding environmental 
issues to be resolved with respect to the proposed construction on the 
White Oak site with approximately 2,111,421 gsf of offices laboratories 
and support facilities, and 4,500 parking spaces for approximately 
5,947 employees and 500 visitors per day. The mitigation program for 
the development of the White Oak site will be developed during the 
design phase. Mitigation measures will be developed from those 
recommended in the Final EIS or other state-of-the-art practices. 
Questions regarding the EIS prepared for this action should be directed 
to Mr. Jag Bhargava, P.E., Development Director, General Services 
Administration National Capital Region, Room 2120, 7th and D Streets, 
SW, Washington, DC 20407, telephone 202-708-6570.

    Dated: June 26, 1997.
Nelson Alcalde,
Regional Administrator, General Services Administration.
[FR Doc. 97-18135 Filed 7-10-97; 8:45 am]
BILLING CODE 6820-23-M