[Federal Register Volume 61, Number 109 (Wednesday, June 5, 1996)]
[Notices]
[Pages 28568-28571]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-14067]
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DEPARTMENT OF DEFENSE
Department of the Navy
Notice of Record of Decision (ROD) for Land Use and Development
Plan Final Environmental Impact Statement (FEIS) for Bellows Air Force
Station (AFS), Waimanalo, Hawaii
SUMMARY: Pursuant to Section 102(2) of the National Environmental
Policy Act (NEPA) of 1969 and Council on Environmental Quality (CEQ)
regulations (40 CFR parts 1500-1508), the U.S. Pacific Command
(USPACOM) announces its decision to implement the Land Use and
Development Plan FEIS for Bellows AFS, Waimanalo, Hawaii.
1.0 Introduction
In the National Defense Authorization Act for Fiscal Year 1993
(Pub. L. 102-484, section 2853), Congress directed
[[Page 28569]]
the Secretary of Defense, the Secretary of the Air Force, and the
Secretary of the Navy to prepare a report on the continued military
need for Bellows AFS. Specifically, the report was to cover Air Force
communications operations and Marine Corps training. The communications
operations have since been relocated from Bellows AFS, but the Marine
Corps mission remains. The report was submitted to Congress by the
Secretary of Defense on April 19, 1993; however, the Congress
appropriated $1,000,000 for the ``conduct of an Environmental Impact
Study at Bellows Air Force Base'' in the Department of Defense
Appropriations Act, 1993 (Pub. L. 102-396, Title 2).
The National Environmental Policy Act of 1969 and its implementing
regulations were used as the framework for preparing the study.
The Department of Navy, on behalf of the Commander in Chief, U.S.
Pacific Command (USCINCPAC), prepared a Final Environmental Impact
Statement (FEIS) for proposed actions at Bellows AFS. The FEIS has been
prepared in accordance with CEQ regulations referred to above,
Department of Defense (DOD) Directive 6050.1 entitled, Environmental
Effects in the United States of Department of Defense Actions, and
NEPA. This ROD identifies my decisions on this proposal. These
decisions have been made in consideration of the information contained
in the FEIS which was filed with the Environmental Protection Agency
(EPA) and made available to the public by the Federal Register
announcement on December 15, 1995, and in consideration of the public
comments made on the Draft and Final Environmental Impact Statements.
1.1 Proposed Actions: The action evaluated in the FEIS was a
proposed Land Use and Development Plan for Bellows AFS that consisted
of the following:
Land use change to provide contiguous land, beach, and
water areas of sufficient size and configuration to meet Marine Corps
and other military training requirements
Development of up to 500 units of military family housing
units
Construction of improvements to existing recreational
resources
Excessing of land not essential for military purposes
The FEIS analyzed reasonable alternatives to meet these objectives
and assessed their separate and cumulative impacts.
1.2 Alternatives Considered:
Alternative Land Use Changes in the Communications Area
Expansion of military training
Expansion of military training and additional helicopter
and landing craft, air-cushioned vehicle areas
Expansion of military training as well as construction of
permanent Hawaii Army National Guard Facilities
Siting of up to 500 military family housing units
No action
Alternative Recreation and Support Area Improvements
Completion of proposed recreational area improvements as
noted in the long-range recreation facilities development plan for
Bellows AFS: Motor pool enclosure, recreation courts, recreational
facilities upgrade, water distribution system upgrade, power
distribution system upgrade, replacement of three beach cabins, sentry
gate area upgrade, campground and restroom improvements, pavilion, and
paved road/parking at picnic area 6
Reduction in the scale of improvements in the long-range
development plan; or postponement; Changes in land use
No action
Preferred Alternative
The FEIS identifies a subset of all the possible alternatives which
appear to best achieve the stated purpose and need with due respect for
the environmental consequences. This subset is referred to as the
Preferred Alternative for the purpose of analysis. However, it is
Section 3.0 of this ROD, and not the preferred alternative outlined in
the FEIS, that determines which actions are selected for
implementation.
The preferred alternative was selected after consideration of the
combined effect of all alternatives on achievement of the stated
purpose and need. Purposes and needs include land of sufficient size
and configuration to meet military training requirements, and
improvement of existing recreational resources. Consideration of
environmental and socio-economic effects of the alternatives was a key
component in the selection process.
The preferred alternative converts 387 acres of former
communications area to training use to help alleviate the critical
state-wide shortage of training lands, provides an inland maneuver area
for Marine Corps amphibious exercises, and provides adequate land in
proximity to Marine Corps Base Hawaii (MCBH), Kaneohe Bay, to meet day-
to-day small unit tactical training needs.
The preferred alternative is not to construct additional
military family housing units at Bellows AFS.
The preferred alternative implements the Bellows AFS long-
range development plan for repair and improvement of the Air Force
recreation and support facilities. These valuable facilities serve not
only Oahu military residents, but DOD identification card holders
worldwide. Bellows AFS recreation facilities improvements address an
important ``quality of life infrastructure'' requirement for military
personnel and their families.
The preferred alternative identifies approximately 170
acres as excess to DOD needs conditional upon construction of
replacement facilities, relocation of activities necessary to vacate
the land, clean-up of potential environmental impairments, and
imposition of use restrictions on the excess parcels.
The preferred alternative is also the environmentally preferred
alternative.
1.3 Public Involvement: During the EIS process, the Department of
the Navy solicited input from the local community on several occasions.
Copies of the Draft EIS, and copies of the FEIS were sent to
federal, state and local government representatives, individuals, and
community groups. Notices of Intent (NOI) and Notices of Availability
(NOA) were published in local newspapers as well as the Federal
Register. A chronology follows:
A NOI to prepare an Environmental Impact Statement (EIS) for
actions at Bellows AFS was published and sent out during the second
week of March 1994. Public scoping meetings were held at the Waimanalo
Elementary and Intermediate School on March 30, 1994 and again at
Washington Intermediate School on March 31, 1994. The NOA and
announcement of public hearings for the Draft EIS (DEIS) were published
and distributed on March 13, 1995, and public comments were accepted
through May 31, 1995. A public hearing to present the DEIS was
conducted at Waimanalo Elementary and Intermediate School on May 9,
1995. NOA of the FEIS was published on December 15, 1995, and public
comments were accepted through January 15, 1996.
A synopsis of issues raised during the DEIS public review process,
and efforts made to address these issues in the FEIS, follow:
Comment: The U.S. Government's ownership of and right to
use Bellows AFS were questioned on the basis of claims that nearly all
of the land now comprising Bellows AFS consists of so-called ceded
lands (govrnment lands of
[[Page 28570]]
the former Hawaiian kingdom and lands reserved during the monarchy for
the support of the Crown) and that the ceded lands were all wrongfully
taken from, and should be returned to, Native Hawaiians, generally
referring to all persons of Hawaiian ancestry.
Response: The FEIS included a review of the title of the United
States to Bellows AFS and a legal analysis of the claims asserted
against it. These showed that the United States has clear title to all
the lands, including the ceded lands at Bellows AFS, and that the
claims made on behalf of Native Hawaiians, as a group, to the ceded
lands have no legal or historical validity. Although approximately 170
acres of land have been found to be excess to DOD needs, these will be
disposed of according to the laws and regulations generally applicable
to these excess lands.
Comment: DEIS was inadequate. Cultural and archaeological
impacts are inadequately examined.
Response: The FEIS included a literature review of the cultural
resources of Bellows AFS conducted by H. David Tuggle, Ph.D., of the
International Archaeological Research Institute. The report summarized
archaeological work conducted to date at Bellows AFS, including
identification of known human burial sites. Based on the literature
search and consultation with the State Historic Preservation Officer, a
plan was developed to avoid adverse impacts on cultural resources of
significance. Each known site at Bellows AFS is described in the FEIS.
Comment: Bellows AFS is not necessary to support military
training or recreation.
Response: Bellows AFS is required to help alleviate the critical
statewide shortage of training lands, to provide an inland maneuver
area for Marine Corps amphibious exercises, and to provide adequate
land in proximity to MCBH, Kaneohe Bay, to meet day-to-day small unit
tactical training needs. Military recreation facilities are necessary
to provide quality of life for military personnel and their families.
Affordable facilities are a key consideration for military personnel
who are typically paid less than their civilian counterparts. For
junior enlisted personnel, the military recreational facilities
represent an essential and affordable resource.
1.4 Summary of Environmental Impacts: Below is a summary of the
significant impacts and proposed actions to minimize impacts:
The most significant impacts of the proposed actions and
alternatives that cannot be acceptably mitigated would result from the
housing land use alternative. Foremost among off-station impacts is the
effect on peak hour traffic in Waimanalo from the addition of up to 500
military family housing units. Kalanianaole Highway would be saturated
during peak hours with the additional growth. A four-lane road would be
required through Waimanalo Town. Apart from impacts to traffic,
existing wastewater treatment facilities do not have sufficient
capacity to treat sewage flows from the proposed development.
Population growth in Waimanalo would increase by up to 18 percent and
could not be mitigated directly.
Potential impacts of training activities include stream
bank erosion from vehicle stream crossings, wildlife disturbance,
noise, exposure of training participants to hazardous substances, and
damage to cultural resources. Marine Forces Pacific, along with any
other Service components who conduct training at Bellows AFS, will
develop a constraints map identifying training area restrictions and
adhere to these constraints.
Recreational facilities upgrades and release of excess
land may impact cultural resources. The Air Force will conduct surveys
on excess land before release, and on recreational land before the
start of long-range development plan improvements. These surveys will
determine the extent and nature of the subsurface archaeological
deposits in the areas of potential effect. Should these surveys reveal
the presence of cultural resources, appropriate action will be taken to
comply with pertinent law.
No cultural resources would be adversely affected by the
permanent relocation of the Hawaii National Guard facilities to the
southwest corner of the station.
Training has the potential to affect wetlands and stream
banks, where training operations require crossing Waimanalo Stream. All
practicable means will be taken to avoid or mitigate any such impacts;
these include, but are not limited to, provisions that crossing will be
permitted only at designated locations, and vehicles will be required
to use existing or tactical bridges or fords placed at these designated
locations.
Noise from future training operations will not extend off-
station at levels exceeding community noise standards. Nevertheless, to
avoid future conflicts between community expectations and operational
requirements, noise easements will be imposed as appropriate on lands
declared excess to prevent incompatible civilian land use of these
lands.
2.0 Consideration for Decision
The Land Use and Development Plan FEIS for Bellows AFS takes place
in the broader context of military land use on Oahu. Sufficient land is
required for the military to carry out its defense obligations in
Hawaii and, specifically, to meet the need for adequate training areas.
The FEIS supports USCINCPAC's Hawaii Military Land Use Master Plan
(HMLUMP). The HMLUMP includes land requirements to meet mission tasks.
The FEIS identifies environmental impacts associated with the
choice of alternatives. It further identifies some of the actions
possible to mitigate the impacts and provides a more reasonable
approach to land use. In addition, the scoping meetings, public
hearings, and the comments received from the local community and
agencies helped formulate a comprehensive approach to addressing
important issues for decision making.
In addition to environmental considerations identified in the FEIS,
there are other factors considered in the ROD. Strong public support
for returning excess military land resulted in the proposal to
construct new facilities in order to relocate activities out of
approximately 170 acres of proposed excess land.
3.0 Decision
The FEIS analyzed possible alternatives, considered public comments
made during open meetings and submitted by correspondence, potential
environmental impacts, mitigative requirements and military need for
training lands. In consideration of the FEIS, and comments received on
the FEIS (January 1996), the following land use and development actions
will take place at Bellows AFS:
Convert 387 acres of land in the former communications
area to training use.
Implement Bellows AFS long-range recreation facilities
development plan.
Do not construct new military family housing units on
Bellows AFS.
Declare approximately 170 acres of land along the southern
boundary of Bellows AFS excess to military requirements after
construction of replacement facilities, relocation of activities
necessary to vacate the land (to include relocation of the Hawaii
National Guard) and cleanup of potential environmental impairments
subject to appropriate use limitations to avoid incompatibility between
future civilian uses and military activities on the retained areas.
[[Page 28571]]
4.0 Record of Decision
The military will continue to be a good steward of the environment
on Bellows AFS. All practicable means to avoid or minimize
environmental harm have been adopted. Efforts will be made to preserve
sensitive cultural resources. Further subsurface investigations will be
done prior to any new excavations or significant soil disturbance.
Mitigative actions will be accomplished prior to, during, and after
training activities.
Signed May 7, 1996 by J.W. Prueher, Admiral, U.S. Navy
FOR FURTHER INFORMATION: Questions regarding the FEIS and this Record
of Decision may be directed to Major Matthew Gogan (J446), U.S. Pacific
Command, Camp H.M. Smith, HI 96851-4020, phone (808) 477-6401,
facsimile (808) 477-0876.
Dated: May 22, 1996.
M.A. Waters,
LCDR, JAGC, USN, Federal Register Liaison Officer.
[FR Doc. 96-14067 Filed 5-31-96; 2:17 pm]
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