[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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