[Federal Register: December 19, 2006 (Volume 71, Number 243)]
[Notices]
[Page 76019-76021]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr19de06-102]
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DEPARTMENT OF TRANSPORTATION
Federal Highway Administration
[FHWA Docket No. FHWA-2006-24902]
Final List of Nationally and Exceptionally Significant Features
of the Federal Interstate Highway System
AGENCY: Federal Highway Administration (FHWA), DOT.
ACTION: Notice.
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SUMMARY: The FHWA is issuing this notice to announce the final list of
nationally and exceptionally significant features of the Federal
Interstate Highway System. The list is available at http://www.environment.fhwa.dot.gov/histpres/highways.asp.
In developing the
final list, the FHWA considered public comments received on the
preliminary list of exceptional elements, which was published in the
Federal Register on June 16, 2006 (71 FR 34988). This notice summarizes
those comments. Exemptions of the Interstate Highway System from
consideration as historic property under the provisions of section 106
of the National Historic Preservation Act (NHPA) and section 4(f) of
the Department of Transportation Act of 1966 \1\ will not apply to the
elements on this list.
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\1\ Section 4(f) of the Department of Transportation Act of 1966
was technically repealed in 1983 when it was codified without
substantive change and 49 U.S.C. 303. A provision with the same
meaning is found at 23 U.S.C. 138 and applies only to FHWA actions.
We continue to refer to section 4(f) as such because it would create
needless confusion to do otherwise; the policies section 4(f)
engendered are widely referred to as ``Section 4(f)'' matters.
DATES: The final list of nationally and exceptionally significant
features of the Federal Interstate Highway System is effective December
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19, 2006.
FOR FURTHER INFORMATION CONTACT: MaryAnn Naber, HEPE, (202) 366-2060;
Federal Highway Administration; 400 7th Street, SW., Washington, DC
20590; Harold Aikens, Office of the Chief Counsel, HCC-30, (202) 366-
0791; Federal Highway Administration, 400 7th Street, SW., Washington,
DC 20590-0001. Office hours are from 7:45 a.m. to 4:15 p.m., e.t.,
Monday through Friday, except Federal holidays.
SUPPLEMENTARY INFORMATION:
Electronic Access and Filing
Internet users may access all comments received by the U.S. DOT
Dockets, Room PL-401, by using the universal resource locator (URL) for
the Document Management System (DMS) at http://dms.dot.gov. The DMS is
available 24 hours each day, 365 days each year.
An electronic copy of this document may be downloaded by using the
Internet to reach the Office of the Federal Register's home page at
http://www.archives.gov and the Government Printing Office's Web site at http://www.access.gpo.gov/nara.
I. Background
As the Dwight D. Eisenhower National System of Interstate and
Defense Highways (Interstate System) approached its 50th Anniversary,
the potential for vast sections of highway to reach the mark at which
resources are often evaluated for historic significance raised the
issue of an overwhelming administrative burden for the myriad routine
undertakings affecting the Interstate System. Accordingly, on February
18, 2005, the Section 106 Exemption Regarding Effects to the Interstate
Highway System was adopted by the Advisory Council on Historic
Preservation (ACHP) to minimize the administrative burden on agencies
responsible for highway maintenance and improvements.\2\ This exemption
effectively excluded the majority of the 46,700-mile Interstate System
from consideration as a historic property under section 106 of the
National Historic Preservation Act (NHPA). In addition, the recently
enacted Safe, Accountable, Flexible, Efficient Transportation Equity
Act: A Legacy for Users (SAFETEA-LU) reauthorization legislation (Pub.
L. 109-59, August 10, 2005) included a provision (Section 6007) that
exempts the bulk of the Interstate System from consideration as an
historic property under section 4(f) of the Department of
Transportation Act. With these two exemptions in place, all Federal
agencies are no longer required to consider the vast majority of the
Interstate System as historic property under Section 106 and Section
4(f) requirements. Interstate improvement projects are still subject to
these respective processes with regard to those resources listed on or
eligible for inclusion on the National Register of Historic Places that
are not integral parts of the Interstate System.
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\2\ The ACHP's approved exemption was published in the Federal
Register on March 10, 2005, at 70 FR 11928.
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[[Page 76020]]
Under Section II of the ACHP's Section 106 exemption, certain
elements of the Interstate System, such as bridges, tunnels, and rest
stops, shall be excluded from the exemption's provisions if they have
national and/or exceptional historic significance. Section III of the
ACHP's Section 106 exemption set forth the process by which the FHWA
was to identify these elements in consultation with stakeholders in
each State. Section 6007 of SAFETEA-LU (codified at 23 U.S.C.
103(c)(5)) adopted by reference the same process for identifying
exclusions to the Section 4(f) exemption. Under this process, elements
of the Interstate System to be excluded from the exemptions were
required to meet at least one of the following criteria for
significance:
1. National Significance. The element is at least 50 years old and
meets the National Register of Historic Places (National Register)
criteria \3\ for national significance as defined in 36 CFR 65.4. In
particular, the quality of national significance is ascribed to
resources that possess exceptional value or quality in illustrating or
interpreting the heritage of the United States in history,
architecture, archeology, engineering, and culture and that possess a
high degree of integrity.
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\3\ Information on the National Register standards for
evaluating the significance of properties and its criteria for
listing may be found at the following URL: http://www.cr.nps.gov/nr/listing.htm
.
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2. Exceptional Significance. The element is less than 50 years old
and meets the National Register criteria consideration for exceptional
importance. The first step in evaluating properties of recent
significance is to identify the appropriate area(s) of significance:
engineering, transportation, social history, or commerce. Then,
deliberate and distinct justification for the ``exceptional
importance'' of the resource must be made. The phrase ``exceptional
importance'' may be applied to the element's extraordinary impact on an
event or for the quality of its design or because it may be one of very
few survivors of a resource type. Standard design elements, by their
very nature, are not exceptional.
3. Listed or Determined Eligible by the Keeper. The element is
listed in the National Register or has previously been determined
eligible by the Keeper of the National Register.
4. State or Local Significance. At the discretion of the FHWA,
elements may be included in the list of excluded elements if they are
at least 50 years old, were later incorporated into the Interstate
Highway System, and meet the National Register criteria for evaluation
as defined in 36 CFR 60.4 at the state or local level of significance.
The FHWA published a notice on June 16, 2006, (71 FR 34988)
describing the collaborative process used to identify properties that
should be excluded from the Section 106 and Section 4(f) exemptions.
The notice also published and requested comments on a preliminary list
of properties recommended for exclusion by teams of Federal, State, and
local stakeholders within each State.
After reviewing the comments submitted on the preliminary list, the
FHWA has revised and finalized the list of exceptional Interstate
System elements, as described below. Properties included on this list
will continue to be subject to the requirements of Sections 106 and
4(f).
II. Discussion of Comments and Responses
A. Summary of Comments
In response to the June 16, 2006, notice, the FHWA received 55 sets
of comments on the preliminary list. Comments were submitted by a
variety of individuals and organizations, including: State Department
of Transportation (DOT) representatives (18); private citizens (17);
transportation-related associations or professional groups (9); State
Historic Preservation Office (SHPO) representatives (4); turnpike or
toll road authorities (4); city officials (2); and a State legislature
(1). Most of the comments addressed the inclusion of elements on the
preliminary list, with 26 suggesting that one or more elements be
removed, 19 requesting that elements be retained, and three suggesting
that elements be added. Such comments addressed 51 unique elements of
the Interstate System. The remaining seven comments addressed other
issues: a few raised questions about the process of identifying
excluded elements with several suggesting the process was too limited
and might overlook significant resources while another found the
process and resulting list to be over-inclusive. Other comments voiced
appreciation for the opportunity to provide input on the list and a few
pointed out inaccuracies in the justification statements of particular
elements.
B. Response to Comments
After the public comment period ended, the FHWA categorized the
comments into two main groups: those that required action and those
that did not. Comments requiring action included suggested changes to
the list itself (i.e., addition or removal of properties) and questions
or statements requiring additional research (e.g., suggested
corrections to the justification statements). The FHWA addressed
comments that suggested changes to the list via a collaborative
process, as detailed below. For comments requiring additional research,
the FHWA worked with qualified cultural resource management specialists
to locate the information in question and revise justification
statements, as appropriate. General comments about approach and
methodology are addressed below.
As described in the June 16, 2006, notice, the FHWA engaged
representatives from FHWA Division Offices, State DOTs, SHPOs, and
other stakeholders (where appropriate) within each of the 50 States and
the District of Columbia to identify elements that should remain
subject to Section 106 and 4(f) requirements. At the conclusion of the
public comment period, the FHWA noted that a number of comments were
significant enough to require additional discussion with the ``teams''
of representatives that helped to develop the initial list. Such
comments included requests for the removal of certain elements from the
list or the addition of new elements to the list. In August and
September of 2006, the FHWA convened and participated in a series of
conference calls to discuss significant comments on elements in 10
States; invited to participate in each call were the original team of
State representatives and all those who submitted comments on the
elements in the State. Each call was facilitated by the cultural
resource management specialist who worked with the State in developing
its initial list and included representation from FHWA Headquarters.
The goals of engaging State teams and commenters in this manner were to
provide a forum for open communication between stakeholders and FHWA
and to attempt to reach consensus on a final list of elements in each
State.
While the effort to identify excepted elements to the broad
exemptions for the Interstate System references some of the basic
principles for determining eligibility to the National Register, the
survey of this 47,000-mile resource could not be conducted at a level
of great detail, nor was it expected to provide definitive
justification for National Register eligibility. The intent of the
process was to determine which resources appeared to rise to the
national and/or exceptional level in order that they be afforded the
[[Page 76021]]
consideration of review under Section 106 and Section 4(f), while
immediately exempting the vast majority of the Interstate System. This
initial look was not intended to apply the same rigor with which a
formal determination of eligibility is conducted, but to retain the
ability to apply the full 106 and 4(f) processes to those elements
which appeared to rise to that level. Application of the Section 106
process would provide additional detailed information regarding
eligibility upon which the balance of the review(s) would proceed. It
is therefore conceivable that in the course of consideration under the
respective reviews, some of the resources included in the final list of
exceptional elements of the Interstate may be determined not eligible
for inclusion in the National Register. In that case, no further
consideration of the specific Interstate element as a historic property
is required under either of the statutory provisions. Should a resource
be validated as National Register eligible, most improvements would
likely be able to be made in a way that does not adversely affect its
significant characteristics. In such cases, Section 106 could be
completed very simply and Section 4(f) would not apply. In any case,
inclusion on the list in no way implies that these resources cannot be
maintained and improved to continue to safely serve the traveling
public.
Two commenters suggested that there was some inconsistency between
the criteria cited in the original Section 106 exemption and the
guidance for applying the criteria subsequently distributed in January
2006 by FHWA.\4\ However, the guidance was clearly supplemental to the
language of the actual Section 106 exemption, which was adopted by
SAFETEA-LU Section 6007, and was not intended to supersede it. As the
criteria were applied in the course of this process, those resources
less than 50 years old apparently meeting the standards of
``exceptional,'' were also deemed to carry national significance within
the context of the Interstate Highway System.
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\4\ ``Guidance to apply the Criteria for the Identification of
Nationally Significant and Exceptionally Significant Elements of the
Interstate Highway System'' is available at: http://www.environment.fhwa.dot.gov/histpres/highways.asp
.
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III. Changes to List of Exceptionally and Nationally Significant
Features
After considering the comments submitted during the public comment
period and the views expressed during the subsequent conference calls
with teams in several States, the FHWA has made several modifications
to the list of exceptional Interstate System features. The final list
includes 132 unique features--20 fewer features than the preliminary
list contained (152). Specifically, the FHWA has removed 26 elements
from and added 6 elements to the list. The final list may be viewed at
http://www.environment.fhwa.dot.gov/histpres/highways.asp.
Authority: 23 U.S.C. 103(c)(5)(B); Sec. 6007 of Pub. L. 109-59.
Issued on: December 12, 2006.
J. Richard Capka,
Federal Highway Administrator.
[FR Doc. E6-21581 Filed 12-18-06; 8:45 am]
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