[Federal Register Volume 67, Number 79 (Wednesday, April 24, 2002)]
[Notices]
[Pages 20097-20099]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-10030]


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DEPARTMENT OF DEFENSE

Department of the Navy


Record of Decision for Disposal and Reuse of the Naval Air 
Station, South Weymouth, MA

AGENCY: Department of the Navy, DOD.

ACTION: Notice of record of decision.

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SUMMARY: The Department of the Navy announces its decision to dispose 
of the Naval Air Station (NAS), in South Weymouth, MA, in a manner 
consistent with the Final Reuse Plan adopted by the South Shore Tri-
Town Development Corporation (SSTTDC).

SUPPLEMENTARY INFORMATION: Under the authority of the Defense 
Authorization Amendments and Base Closure and Realignment Act, Public 
Law 100-526, 10 U.S.C. section 2687 note (1994), pursuant to section 
102(2)(C) of the National Environmental Policy Act (NEPA) of 1969, and 
the Council on Environmental Quality Regulations for implementing NEPA 
procedures (40 CFR parts 1500-1508), the Department of the Navy (Navy) 
announces its decision to dispose of NAS South Weymouth in a manner 
consistent with the Final Reuse Plan adopted by the South Shore Tri-
Town Development Corporation.
    The disposal and subsequent reuse of this property will be in 
accordance with the preferred alternative as described in the Final 
Environmental Impact Statement (FEIS).
    Background: NAS South Weymouth is situated on 1,450 acres in the 
towns of Weymouth (Norfolk County), Abington and Rockland (Plymouth 
County) approximately 15 miles south of the capital city of Boston. The 
site contains two runways and 85 buildings providing nearly 600,000 
square feet of space. Approximately 45 acres of property with 165 units 
of housing have been transferred to the U.S. Coast Guard (USCG). 
Another 4.8 acre parcel has been transferred to the USCG for continued 
operation of their buoy maintenance and storage program. A half-acre 
parcel with Doppler radar equipment has been transferred to the Federal 
Aviation Administration.
    In addition to the main station, two non-contiguous sites were also 
controlled by NAS South Weymouth: the Squantum Gardens and Naval 
Terrace housing areas consisting of 27 acres located in Quincy, MA, and 
Nomans Land Island, 628 acres about three miles south of Martha's 
Vineyard. A separate Environmental Assessment was prepared for the 
disposal and reuse of Squantum Gardens and Naval Terrace housing areas 
and these properties have been transferred to the City of Quincy. 
Nomans Land Island, a former Naval bombing range, has been transferred 
to the U.S. Department of the Interior. These land holdings are not 
part of this Record of Decision.
    Alternatives Considered: The proposed action is the disposal of the 
NAS South Weymouth property and the subsequent reuse in a manner 
consistent with the Final Reuse Plan as adopted by the SSTTDC. The FEIS 
analyzed the effects of the Preferred Reuse Plan, as well as the 
effects of two other reuse plan alternatives.
    The Preferred Reuse Plan proposes a mix of business (office, 
research and

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development (R&D), manufacturing, and industrial), retail, residential, 
institutional, recreational, open space, and infrastructure uses. A 
total of about 3.6 million square feet of new and existing buildings 
would provide employment opportunities for about 9,540 workers. 
Approximately 500-700 units of senior housing would provide housing for 
1,140 senior citizens. A new access road, referred to as the Route 3 
access roadway, would be necessary to accommodate the increased 
traffic. This access roadway would connect Route 3 to Route 18 
transiting through the NAS South Weymouth. Full build-out of the NAS 
South Weymouth property under the Preferred Reuse Plan would occur over 
a 20-year period.
    The Environmental Impact Statement (EIS) evaluated the development 
of NAS South Weymouth under a more intensive reuse plan identified as 
the New South Shore Community Alternative. Under this plan, there would 
be about 3 million square feet of business/R&D space; 150,000 square 
feet of retail space; 1400 housing units; 60 acres set-aside for 
government or institutional use; and recreational and open space. The 
Route 3 access roadway would also be constructed under this 
alternative. This development would provide employment opportunities 
for about 12,400 workers.
    The EIS evaluated a third reuse plan that would be the least 
intensive of the three alternatives. The Minimal Investment Alternative 
would provide 610,000 square feet for business/R&D use; 150,000 square 
feet of retail space; 930 family housing units; 60 acres for government 
or instutitional use; and recreational and open space. The Route 3 
access roadway also be constructed under this alternative. This 
alternative would provide housing for about 3,000 persons and job 
opportunities for approximately 3,800 employees.
    Under the No Action Alternative, the NAS South Weymouth property 
would remain in U.S. Government ownership. The property would be placed 
in Federal caretaker status with the Navy maintaining the physical 
condition of the property, providing a security force, and making 
repairs essential to safety.
    Environmental Impacts of the Preferred Alternative: The FEIS 
analyzed the direct, indirect and cumulative environmental impacts of 
the Preferred Reuse Plan. Redevelopment of the property will generate 
an estimated 9,540 new jobs, resulting in beneficial socioeconomic 
impacts. Annual estimated earnings of these jobs would be about $305 
million. Other employment occurring in the region as a result of the 
new development on the NAS South Weymouth property is estimated at 
8,000 new jobs providing an additional $257 million in earnings. As the 
property is transitioned to private ownership, and thereby subject to 
local real estate taxes, the estimated tax generated would be about $10 
million.
    The Preferred Reuse Plan would construct up to 700 units of senior 
housing providing homes for about 1,140 senior citizens. Since the new 
housing population would be limited to seniors and the new workers at 
the NAS South Weymouth site are expected to commute from elsewhere in 
the region, the local school systems will not be significantly 
impacted. Even if there is worker migration into the area, local school 
systems have sufficient capacity to accommodate any corresponding 
increase in student enrollment. There will be additional demands on 
community support services such as police, fire, and emergency care. It 
is expected that this need would increase gradually over several years. 
The Preferred Reuse Plan provides for additional property tax revenue 
to support increased service costs.
    The Preferred Reuse Plan would generate 32,600 average daily 
weekday (one way) trips. This new traffic is expected to cause 
significant degraded levels of service at several intersections in the 
vicinity of the NAS South Weymouth site. State and local governments 
will need to make intersection and roadway improvements to mitigate the 
impacts of the increased traffic. In order to minimize traffic impacts, 
the Board of Directors of the SSTTDC has endorsed the Preferred Reuse 
Plan on the following guidelines: redevelopment would be staged over a 
period of ten or more years; development would occur as infrastructure 
impacts are addressed and mitigation measures are put in place; and the 
scope and mix of development would be as defined in the Preferred Reuse 
Plan.
    The Clean Air Act General Conformity rule is not applicable to the 
disposal of the NAS South Weymouth property as stated in 40 CFR Part 
153(c), exemptions (XIV) and (XIX). While there will be an increase in 
carbon monoxide emissions due to the increase in traffic, the increase 
in carbon monoxide will not be significant since the levels will remain 
below the National Ambient Air Quality Standards.
    Noise level increases off-base due to additional traffic would be 
less than three decibels, a generally accepted level of perceptible 
change. A noise level increase greater than three decibels would occur 
on the redeveloped Shea Memorial Drive due to the additional traffic. 
However these higher noise levels will not exceed the Federal Highway 
Administration (FHWA) standards for residential property located in the 
surrounding area. With respect to the Route 3 access roadway, lands 
within 180 feet of the road centerline would experience noise levels 
significantly above the FHWA standards for land uses such as schools, 
churches, and residences.
    Projected infrastructure impacts, such as water supply, wastewater, 
stormwater system, electric, gas, steam, and telecommunications, were 
examined in the FEIS for the Preferred Reuse Plan. SSTTDC is 
investigating the following water supply sources: Groundwater from 
aquifers underlying the site; surplus water from local communities; the 
Bluestone Desalination Project; and, water from the Massachusetts Water 
Resource Authority (MWRA). The demand for utility services will grow as 
the site is developed over a 20-year period. This will provide time for 
coordination between SSTTDC, local towns and authorities to develop 
infrastructure capacity in sequence with the project.
    There are no buildings, structures or districts that are eligible 
for listing on the National Register of Historic Properties at NAS 
South Weymouth. The majority of NAS South Weymouth's ground surface has 
been highly disturbed through previous development. The Massachusetts 
Historical Commission determined that closure/realignment of NAS South 
Weymouth would be unlikely to affect significant archaeological 
resources.
    Implementation of the Preferred Reuse Plan would result in a loss 
of vegetation and habitat. Wetlands are located on the site and may be 
impacted by new development. However, any new construction that may 
impact wetlands must comply with appropriate Federal and state 
regulations governing development in or near wetlands. The groundwater 
beneath NAS South Weymouth property is not currently used for water 
supply purposes. This on-site aquifer may be utilized in the future to 
meet the potable water supply demands of the Preferred Reuse Plan.
    No Federally listed threatened or endangered species are known to 
inhabit the NAS South Weymouth property, thus no significant impacts on 
those species are anticipated.
    There will be no significant impacts associated with existing 
hazardous waste sites. Transfer of Navy property must include a 
determination of the environmental suitability of the land for transfer 
to a non-Federal agency or to

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the public. Early transfer of Navy property before the property is 
environmentally suitable may also occur as authorized under the 
Comprehensive Environmental Response, Compensation, and Liability Act 
of 1980 (CERCLA).
    The Navy analyzed the direct and indirect effects of the proposed 
conveyance and reuse on low income and minority populations. The 
conveyance and reuse will not cause adverse and disproportionately high 
environmental or economic impacts to minority or low-income populations 
residing in the region.
    Mitigation: Implementation of the decision to transfer Navy 
property does not require the Navy to perform any mitigation measures. 
No mitigation is required for direct impacts associated with conveyance 
of the property. Reuse will result in indirect impacts that can be 
mitigated through measures taken directly by state and local 
governments or imposed on the SSTTDC through state and local permitting 
processes.
    Reuse will cause significant traffic impact at various 
intersections in the study area surrounding NAS South Weymouth. 
Potential mitigation measures may include changing of traffic signal 
timing and/or geometric improvements. These measures could be 
implemented by the state, Norfolk and/or Plymouth Counties or the 
SSTTDC proposing redevelopment at NAS South Weymouth.
    With respect to the Route 3 Access Roadway, noise levels are 
predicted to exceed the FHWA Noise Abatement Criterion. Potential 
mitigation measures include the installation of noise barriers along 
the Route 3 Access Roadway and placing a Category B land use 
restriction within the area of potential impact.
    Implementation of the Preferred Reuse Plan without the expansion of 
the existing water supply/distribution and wastewater infrastructure 
would result in a significant adverse impact. The SSTTDC has identified 
the following potential alternative sources of water: groundwater from 
aquifers underlying the site; surplus water from local communities; the 
Bluestone Desalination Project; and water from the MWRA. The SSTTDC has 
identified the following potential alternatives for treatment of 
wastewater flows generated by redevelopment of NAS South Weymouth: 
local municipal facilities; on-site treatment and land disposal; and 
MWRA. The viability of any potential water supply or wastewater system 
enhancement would be dependent upon coordination among local towns, 
authorities, and the SSTTDC.
    The Preferred Reuse Plan would affect on-site wetlands and their 
buffers. Any disturbance to wetlands would require compliance with the 
Massachusetts Wetlands Protection Act by the acquiring entity.
    Comments Received on the FEIS: The Navy received eight comment 
letters on the FEIS, including the U.S. Environmental Protection Agency 
(EPA); the Commonwealth of Massachusetts Department of Food and 
Agriculture; the Massachusetts Highway Department (MHD); the Town of 
Weymouth, MA; and four private citizens. U.S. EPA reiterated their 
concerns on the impacts to water supplies and quality, wetlands, local 
roadway network and air quality, as previously provided in their 
comments on the draft DEIS. Additionally, EPA emphasized that the 
redevelopment benefit and not the burden of surrounding communities be 
based on the principles of smart growth, and be supported by local 
infrastructure. In response to these concerns, the Navy notes that the 
responsibility to develop the reuse plan is the local reuse authority.
    The Massachusetts Department of Food and Agriculture requested that 
the prime agricultural land and soils on the NAS South Weymouth remain 
available for the production of agricultural crops. While the Navy will 
not place land use restrictions on the transfer of the property, the 
SSTTDC has committed to resolve or mitigate adverse impacts to 
agricultural resources through the Massachusetts Environmental Policy 
Act process.
    The MHD provided comments with regard to a traffic study prepared 
for the MHD by Wilbur Smith Associates and referenced in the FEIS. This 
study, entitled the South Weymouth Access Study, was prepared for the 
Final Reuse Plan and while its conclusions were similar to the findings 
of the FEIS, the MHD noted that there were some differences in the 
Access Study and the FEIS. Among their comments, the MHD noted that 
while the FEIS reported that the MHD would be responsible for the 
planning, funding, design, and construction of the Route 3 access road, 
no such determination of this responsibility has been made. The Navy 
acknowledges that there are differences in the traffic studies prepared 
for the FEIS and by the MHD; however, the overall findings of traffic 
impacts expressed in the FEIS are considered valid.
    The Town of Weymouth stated its concerns over the ongoing 
Installation Restoration Program and requested that the Navy remain 
committed to the thorough cleanup of all identified contaminants on the 
NAS South Weymouth site. The Navy acknowledges its responsibility for 
the timely completion of the ongoing site remediation process that will 
be defined in South Weymouth CERCLA RODs.
    Comments received from private citizens expressed concern with 
regard to traffic, air, noise, infrastructure, land use, and 
terrestrial and aquatic environmental impacts due to the development 
and reuse of NAS South Weymouth. Additionally, comments expressed 
concern over the ongoing site remediation program. These issues were 
addressed in the FEIS and do not require further clarification.
    Conclusion: The Preferred Reuse Plan adopted by the SSTTDC was 
identified by popular vote of the residents of the local communities as 
the plan that best responds to local and regional economic conditions 
and promotes economic recovery from the closure of NAS South Weymouth. 
The Preferred Reuse Plan complies with the conditions imposed by 
Congress on the conveyance of the NAS South Weymouth property. 
Potentially significant environmental impacts associated with 
implementation of the Preferred Reuse Plan can be mitigated either 
directly by the state and local governments or indirectly through the 
regulatory authorities exercised by the state and local governments 
over private landowners and developers. Although the ``no action'' 
alternative has less potential for adverse environmental impacts and is 
the environmentally preferred alternative, it would not promote local 
economic redevelopment and create jobs. Keeping the property in 
caretaker status would not be the highest and best use of the property 
because it would not take advantage of the property's physical 
characteristics and infrastructure.
    Based on the analysis contained in the FEIS and the associated 
administrative record, I have decided to convey the Naval Air Station 
in South Weymouth, MA, in a manner that is consistent with the reuse 
plan adopted by the South Shore Tri-Town Development Corporation, as 
provided for in the Defense Authorization Act for fiscal year 1994.

    Dated: April 11, 2002.
Duncan Holaday,
Deputy Assistant Secretary, (Installations and Facilities).
[FR Doc. 02-10030 Filed 4-23-02; 8:45 am]
BILLING CODE 3810-FF-M