[Federal Register Volume 64, Number 33 (Friday, February 19, 1999)]
[Notices]
[Pages 8433-8436]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-4276]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Environmental Finding Document

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Environmental finding document: Finding no significant impact; 
notice.

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SUMMARY: The Federal Aviation Administration (FAA) prepared an 
Environmental Assessment (EA), evaluating a Sea Launch Limited 
Partnership (SLLP) proposal to construct and operate a mobile, floating 
launch platform in international waters in the east-central equatorial 
Pacific Ocean. After reviewing and analyzing currently available data 
and information on existing conditions, project impacts, and measures 
to mitigate those impacts, the FAA Associate Administrator for 
Commercial Space Transportation (AST) finds that licensing the 
operation of the proposed launch activities is not a major Federal 
action that would significantly affect the quality of the human 
environment within the meaning of Executive Order (E.O.) 12114, 
Environmental Effects Abroad of Major Federal Actions, the application 
of which is guided by the National Environmental Policy Act (NEPA) of 
1969. Therefore, the preparation of an Environmental Impact Statement 
(EIS) is not required pursuant to E.O. 12114, and AST is issuing an 
Environmental Finding Document Finding No Significant Impact.
    The Environmental Assessment for the Sea Launch Project, dated 
January 1999, is incorporated by reference and attached to this 
document. This EA describes the purpose and need for the proposed 
project and describes the alternatives considered during the 
preparation of the document. The EA describes the environmental setting 
and analyzes the impact on the applicable human environment as a 
consequence of the proposed project.
    For a Copy of the Environmental Assessment for the Sea Launch 
Project/Contact: Mr. Nikos Himaras, Office of the Associate 
Administrator for Commercial Space Transportation, Space System 
Development Division, Suite 331/AST-100, 800 Independence Ave., S.W., 
Washington, D.C. 20591; phone (202) 267-7926, or refer to the following 
Internet address: http://ast.faa.gov
    Action: If a foreign entity controlled by a U.S. citizen conducts a 
launch outside the United States and outside the territory of a foreign 
country, its launch must be licensed. 49 U.S.C. Sec. 70104(a)(3). The 
FAA determined that SLLP is a foreign entity controlled by a U.S. 
citizen, Boeing Commercial Space Company. 49 U.S.C. Sec. 70102(1)(C); 
14 CFR Sec. 401.5. Because SLLP proposes to launch in international 
waters, outside the territory of the United States or a foreign 
country, SLLP must obtain an FAA license to launch. Licensing a launch 
in the environment outside the United States, its territories, and 
possessions is a Federal action requiring environmental analysis by the 
FAA in accordance with E.O. 12114 the application of which is guided by 
the National Environmental Policy Act of 1969. Upon receipt of a 
completed license application, the Associate Administrator for 
Commercial Space Transportation must determine whether or not to issue 
a license to SLLP to launch. Environmental findings are required for a 
license evaluation. In this instance, the proposed action is the 
licensing by the FAA of two launches by the SLLP at the specified 
launch location. The environmental finding and analysis covers up to 
six launches per year. SLLP proposes to conduct three (3) launches in 
the first year of operation. Pursuant to its requirements, the FAA will 
reevaluate the adequacy of existing environmental documentation if new 
circumstances develop.
    SLLP proposes to conduct commercial space launch operations from a 
mobile, floating platform in international waters in the east-central 
equatorial Pacific Ocean. The SLLP is an international commercial 
venture formed to launch commercial satellites. It is organized under 
the laws of the Cayman Islands, BWI, and the partnership members are 
Boeing Commercial Space Company of the United States; RSC Energia of 
Russia; KB Yuzhnoye of the Ukraine; and Kvaerner Maritime a.s of 
Norway.
    The SLLP would use a launch platform (LP) and an assembly and 
command ship (ACS). A floating oil drilling platform was refurbished in 
Norway to serve as the self-propelled LP. The ACS was built in Scotland 
specifically for Sea Launch operations.
    A Zenit-3SL expendable launch vehicle fueled by kerosene and liquid 
oxygen would be the only launch vehicle used at the Sea Launch 
facilities. In the first year of operation, SLLP intends to conduct 
three (3) launches. Six launches are proposed for each subsequent year. 
The launches are proposed to occur at the equator in the vicinity of 
154 degrees west to maximize inertial and other launch efficiencies. 
The distances from South America (over 7,000 km) and from the nearest 
inhabited island, Kiritimati (Christmas Island), (340 km) are intended 
to ensure that Stage 1 and Stage 2 would drop well away from land, 
coastal populated areas, and exclusive economic zones. The FAA 
evaluated open sea areas, the Kiribati Islands, the Galapagos Islands 
and used a U.S. Navy environmental analysis of the Home Port in Long 
Beach, California in assessing potential environmental impacts from the 
proposed launch activities. This FAA environmental study incorporates 
by reference an environmental assessment conducted by the Navy on the 
Home Port Facility, which EA resulted in 1996 in a Finding of No 
Significant Impact. The Navy environmental assessment, also known as 
the Navy Mole EA, covers SLLP Home Port activities. This FAA 
environmental study focused on Sea Launch activities conducted at the 
launch location, activities that may impact the launch range during 
normal launches, and failed missions. Sea Launch payloads (i.e., 
commercial satellites) are not included in this evaluation because they 
will be fueled and sealed at the Home Port and will only become 
operational at an altitude of over 35,000 km. Potential environmental 
impacts of payloads are not discussed here except with regard to failed 
mission scenarios.

Environmental Impacts

Air Quality

    Pre-launch activities that may impact air quality include LP and 
ACS positioning, final equipment and process checks, coupling of fuel 
lines to the integrated launch vehicle (ILV) prior to fueling, the 
transfer of kerosene and liquid oxygen (LOX) fuels, and decoupling of 
the fueling apparatus. Normal launch operations would result only in an 
incidental loss of kerosene and LOX in vapor form. This loss of vapors 
would dissipate immediately and form smog. Although unlikely, an 
unsuccessful ignition attempt would result in automatic defueling of 
the ILV. Defueling would release LOX vapor and approximately 70 kg of 
kerosene when the fuel line is flushed. The LOX would dissipate and the 
vapor and kerosene would evaporate rapidly, dissipate and degrade, 
thereby having little effect on the surrounding environment. The 
probability of an unsuccessful ignition attempt resulting in defueling 
is 4  x 

[[Page 8434]]

10-4. Potential environmental impacts from launch and flight 
activities would include spent stages, residual fuels, combustion 
emissions, and thermal energy and noise released into the atmosphere 
and ocean. During normal launches, any impacts would be distributed 
across the east-central equatorial pacific region in a predictable 
manner. Kerosene released during descent of a failed launch attempt 
would evaporate within minutes. Any residual LOX released during a 
failed launch attempt would instantly evaporate without consequence.
    The proposed launch site is relatively free of combustion source 
emissions. That fact coupled with the size of the Pacific Ocean and air 
space allows most launch emissions to dissipate rapidly. Launch effects 
on the boundary layer up to 2,000 meters would be short term and cause 
minimal impacts. Emissions occurring in the atmospheric boundary layer 
would be dispersed away from the islands by winds and local turbulence 
caused by solar heating. Because dispersion occurs within hours, the 
planned six missions per year would preclude cumulative effects.
    All emissions to the troposphere would come from first stage 
combustion of LOX and kerosene. Photochemical reactions involving Sea 
Launch Zenit rocket emissions would form carbon dioxide 
(CO2) and oxygenated organic compounds. Nitrogen oxide in 
the exhaust trail would form nitric and nitrous acids. Cloud droplets 
and atmospheric aerosols efficiently absorb water-soluble compounds 
such as acids, oxygenated chemical compounds, and oxidants, thereby 
reducing impacts to insignificant levels. Approximately 36,100 kg of 
carbon monoxide (CO) would be released into the troposphere during the 
first 55 seconds of flight resulting in an estimated CO concentration 
at Christmas Island of 9.94 mg/m\3\. This release is well below the 
Occupational Safety and Health Administration Permissible Exposure 
Limit (PEL) of 55 mg/m\3\, the Environmental Protection Agency (EPA) 
level of concern of 175 mg/m\3\ and the industry Emergency Response 
Planning Guideline-2 of 400 mg/m\3\. Nitrogen compounds in the exhaust 
trail of liquid propellant rockets would cause a temporary reduction of 
atmospheric ozone, with return to near background levels within a few 
hours. Models and measurement of other space systems comparable to Sea 
Launch indicate that these impacts would be temporary, and the 
atmosphere is capable of replacing the destroyed ozone within a few 
hours by migration or regeneration. The high-speed movement of the 
Zenit-3SL rocket and the re-entry of the stages after their use may 
impact stratospheric ozone. The exact chemistry and relative 
significance of these processes are not known but are believed to be 
minimal. Impacts to air quality would be minimal. Those impacts that do 
occur would be of short duration and would naturally reverse themselves 
over a short period of time.

Waste

    Post-launch operations at the launch site involve cleaning the LP 
for subsequent launches. Cleaning would result in particulate residues 
being washed from the LP with fresh water. Only a few kilograms of 
debris and residues would be generated. These materials would be 
collected and handled onboard as solid waste for later disposal at the 
Home Port. Impact locations for the spent rocket stages would be the 
open ocean. The current descriptions of the ocean environment, 
including physical, chemical and biological processes, apply equally to 
the launch location and the approximate locations of spent stage 
impacts. Nutrient and biological productivity levels are largely 
equivalent (in statistical terms) at the launch location and points 
further east where Stage 1 and Stage 2 fall; one has to be much closer 
to the Galapagos Islands to find meaningfully higher levels of 
productivity and biological activity.

Noise

    Noise from a launch is calculated at approximately 150 decibels at 
378 meters with the equivalent sound intensity in the water estimated 
at less than 75 decibels. Due to the small number of launches per year 
and scarcity of higher trophic level organisms, noise impacts are 
expected to be negligible.

Biological and Ecological Impacts

    Pre-launch preparations includes spraying fresh water from a tank 
on the LP into the LP's flame bucket, which would dissipate heat and 
absorb sound during the initial fuel burn. There would be minor impacts 
to the ecosystem because of the input of heated freshwater. However, 
the natural variation in plankton densities would ensure rapid and 
timely recolonization of plankton in the water surrounding the LP.
    Launch and flight activities may impact the ocean environment by 
depositing spent stages and residual fuels. During normal launches, 
these impacts would occur and be distributed across the east-central 
equatorial pacific region. It is unlikely that any falling debris would 
impact animals, although a small number of marine organisms would be 
impacted. Plankton immediately beneath any kerosene sheen would likely 
be killed. However, overall plankton mortality would be minimal as the 
population densities are greatest around 30 meters below the surface. 
Fuel dispersed from Stages 1 and 2 would evaporate in minutes and 
within a few thousand feet, as in the case when a pilot lightens a 
plane by dumping jet fuel. The small amount of kerosene that might 
reach the ocean surface would evaporate and decompose within hours.
    Two severe accident scenarios were evaluated and determined to 
cause only minimal damage to the environment. The first case evaluated 
ILV failure and explosion on the LP with the ILV being fully fueled and 
ready for launch. This failure would result in an explosion of the ILV 
fuels scattering pieces of the ILV and LP up to 3 km away. Particulate 
matter from the smoke plume would drift downwind and be distributed a 
few kilometers before dissipating. Plankton and fish in the immediate 
area would be killed over the course of several days. Thermal energy 
would be deflected and absorbed by the ocean and 100% of the fuels 
would be consumed or released into the atmosphere through combustion or 
evaporation. Disruption to the atmosphere and the ocean would be 
assimilated and the environment would return to pre-accident conditions 
within several days. The second scenario evaluated involved failure of 
the rocket's upper stage. Loss and re-entry of the upper stage and 
payload would result in materials and fuels being heated by friction 
and vaporizing. Remaining objects would fall into the ocean causing a 
temporary disruption as the warm objects cooled and sank. The risk of 
debris striking any populated areas or ecological habitats is very 
remote. Sea Launch selected a more northerly route to further reduce 
the risk to the Galapagos Islands. The risk of an impact to either Wolf 
or Darwin Islands would only occur in the unlikely event of a scenario 
in which Stage 3 (the upper stage) suffers a specific type of failure 
during two specific time intervals of around .25 second each. In the 
event of mid-flight Stage 3 failure, approximately 99% of the satellite 
and its components would burn up upon re-entry to the atmosphere. Thus, 
the total mass of any objects reaching Wolf or Darwin Islands would be 
small. The probability of this occurring is approximately 8 in 100,000 
launches.

[[Page 8435]]

Socioeconomics

    The SLLP would occupy the launch location for two to seven days 
during each launch cycle. Due to the brief period of time that the LP 
and the ACS will be present at the launch location, social and economic 
impacts to the Kiribati are considered negligible. The brief duration 
of launch activities, and the relative degree of isolation of the 
launch location provides a barrier between Sea Launch and cultural and 
economic character of the Kiribati society. The baseline plan for 
operations does not include any use of facilities based on any of the 
Kiribati Islands. Impacts to the Islands, associated with employees 
transiting Christmas Island on an emergency basis, would be positive 
given that the expenditures would be an addition to the local economy.

Health and Safety

    FAA's licensing process will examine safety aspects of the proposed 
launch operations.
    The SLLP adopted as a population protection risk criteria, an upper 
limit of one in a million casualty expectation. Public safety assurance 
and analysis issues are discussed in the SLLP document ``Sea Launch 
System Safety Plan.'' The launch location was shifted away from South 
America to ensure that Stage 1, the fairing, and Stage 2 would drop 
well away from land and coastal commercial activity. The instantaneous 
impact point speed would increase over South America, decreasing the 
dwell time and potential risk as the rocket traverses land. The launch 
area, in the vicinity of 154 degrees west was selected because it is 
located outside of the Kiribati 320 km exclusive economic zone and is 
roughly 340 km from the nearest inhabited island.

Threatened and Endangered Species

    There are no known threatened and endangered species that will be 
impacted by the proposed launches.

Archeological and Cultural Resources

    The launches, proposed to occur in the open ocean, will not impact 
archeological or cultural resources.

Cumulative Impacts

    There are no other foreseeable planned developments in the area of 
the proposed launch location at this time, therefore, no expected 
cumulative impacts are expected. The Navy Mole facility is currently 
underutilized as compared to its historical level of operation and 
development. Sea Launch activities will generate additional work and 
revenue and the Home Port facility may be the impetus for other 
development in the area.

Other Environmental Considerations

Home Port
    The design, permitting, construction, and operation of the Home 
Port would be managed under the jurisdiction of the state, regional, 
county, municipal, and port authorities of the Port of Long Beach, 
California. The Navy, as part of the California Environmental Quality 
Act Process, submitted its Mole EA to the California Coastal Commission 
for review, which determined the proposed Home Port activities were not 
inconsistent with the California Coastal Zone Management Program. The 
Port of Long Beach has approved the construction and operation of the 
Home Port through the Harbor Development Permit process. One of the 
standard conditions in the Harbor Development Permit is that SLLP will 
follow all applicable Federal, state, and local laws and regulations, 
including those pertaining to safety and environment. The LP, ACS, and 
satellite tracking ships used to transport the launch vehicle, payload 
and other materials to the launch site and operate the launch will be 
subject to and will comply with all applicable environmental and 
maritime international agreement requirements while traveling to and 
from, and while at the launch site.
Notice to Mariners
    Standard notices to mariners will be broadcast using U.S. 
Government protocols via INMARSAT-C in the Pacific Ocean Region on 
Safety Net channel at 1000--1030 and 2200-2230 hours GMT each day 
starting 5 days prior to each launch. For vessels without INMARSAT-C 
transceivers, the notice will be broadcast in the HF band by U.S. Coast 
Guard, Honolulu. For vessels without any receiving equipment (expected 
to be limited to those operating out of Kiribati ports), the standard 
notice will be delivered by fax or mail services to Kiribati government 
authorities and fishing fleet and tour operators for distribution and 
posting.
Environmental Monitoring Plan
    The Environmental Monitoring and Protection Plan is being developed 
as an integral part of Sea Launch plans for operations at sea, and its 
implementation involves the participation of both aerospace and marine 
crews. FAA approval of the Environmental Monitoring Plan is a condition 
of the launch license. The Plan consists of four elements:
     Visual observation for species of concern.
     Remote detection of atmospheric effects during launch.
     Surface water samples to detect possible launch effects.
     Notices to local mariners.
    A separate plan exists for each element to direct specific actions 
and coordinate the analysis of acquired data.
Public Participation
    During the planning phase of the Sea Launch environmental review 
process, the FAA concluded that public participation was required. It 
was further decided that the Environmental Assessment and proposed 
finding document would be made available for public review for a 30-day 
period. Consequently a list of pertinent entities was compiled to 
ensure that wide distribution of the documents would be possible. The 
list included cognizant Federal and State agencies, scientific 
institutes, trade and environmental organizations and foreign embassies 
of countries in the area of the proposed action. The documents would 
also be made available to any organization or member of the public and 
could also be found in the FAA/AST web site. The public review period 
commenced on April 23, 1998 via publication of a Notice in the Federal 
Register. During the week preceding this announcement, FAA mailed 
copies of the documents to all entities on the list. Additional copies 
were mailed via regular or next-day mail, as requested. The public 
review and comment period was scheduled from April 23, 1998 until May 
26, 1998.
    Interest in the project was expressed by a number of South Pacific 
Nations, Ecuador and the South Pacific Regional Environmental Programme 
(SPREP). These entities also indicated the need for additional time for 
internal coordination and consultation. In response to this need, the 
FAA accepted and addressed all review comments, which arrived after the 
end of the scheduled public review and comment period.
    As part of the public participation program, FAA/AST personnel held 
face-to-face information exchanges with representatives of Ecuador in 
Washington, DC. In addition, FAA personnel traveled to the Western 
Pacific and held similar meetings with representatives of the Republic 
of Kiribati at Tarawa and with SPREP representatives at Apia, Samoa. 
Diplomatic representatives from Australia and New Zealand participated 
at the Apia meeting and Australian representatives met with the FAA in 
Washington, DC. Numerous meetings,

[[Page 8436]]

and information exchanges also took place among FAA/AST personnel and 
specialists from the National Oceanic and Atmospheric Administration 
(NOAA), National Marine Fisheries Service (NMFS), Environmental 
Protection Agency (EPA), National Air and Space Administration (NASA), 
United States Coast Guard (USCG) and the Department of State (DOS).
    The FAA is also making available to the public the Final Sea Launch 
Environmental Assessment and Environmental Finding Document.
No Action Alternative
    Under the No Action alternative the SLLP would not launch 
satellites from the Pacific Ocean and the Port of Long Beach would 
remain available for other commercial or government ventures. The goals 
of 49 U.S.C. Subtitle IX, ch. 701 Commercial Space Launch Activities, 
would not be realized. Predicted environmental impacts of the proposed 
launch activities would not occur and the project area would remain in 
its current state.

Finding

    An analysis of the action has concluded that there are no 
significant short-term or long-term effects to the environment or 
surrounding populations. After careful and thorough consideration of 
the facts contained herein, the undersigned finds that the proposed 
Federal action is consistent with the purpose of national environmental 
policies and objectives as set forth in E.O. 12114 the application of 
which is guided by the National Environmental Policy Act of 1969 (NEPA) 
and that it will not significantly affect the quality of the human 
environment or otherwise include any condition requiring consultation. 
Therefore, an Environmental Impact Statement for the action is not 
required.

    Issued in Washington, DC on: February 16, 1999.
Patricia G. Smith,
Associate Administrator for Commercial Space Transportation.
[FR Doc. 99-4276 Filed 2-18-99; 8:45 am]
BILLING CODE 4910-13-P