[Federal Register Volume 64, Number 194 (Thursday, October 7, 1999)]
[Notices]
[Pages 54721-54724]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-26170]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration


Record of Decision for the Adoption of the Colorado Airspace 
Initiative Prepared by the Air National Guard

AGENCY: Federal Aviation Administration.

ACTION: Record of decision.

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SUMMARY: The Federal Aviation Administration (FAA), after carefully 
reviewing the Final Environmental Impact Statement (FEIS) prepared by 
the Air National Guard (ANG), announces its decision to adopt the ANG 
FEIS and implement the requested Special Use Airspace changes to the 
National Airspace System in and around the state of Colorado. This 
airspace initiative is known as the Colorado Airspace Initiative (CAI).

FOR FURTHER INFORMATION CONTACT: Elizabeth Graffin, Environmental 
Specialist, Environmental Programs Division (ATA-300), Office of Air 
Traffic Airspace Management, Federal Aviation Administration, 800 
Independence Avenue, SW, Washington, DC 20591 (202) 267-3075.

SUPPLEMENTARY INFORMATION: As provided in 40 CFR 1506.3 and FAA Order 
1050.1D, ``Policies and Procedures for Considering Environmental 
Impacts,'' the FEIS of another Federal Agency may be adopted in 
accordance with the procedures in 40 CFR 1506.3. Under 40 CFR 
1506.3(b), if the actions covered by an EIS and the actions proposed by 
another Federal agency are substantially the same, the agency adopting 
another agency's statement is not required to recirculate it except as 
a final statement. The FAA has determined that the proposed action of 
modifying existing and establishing new military training airspace 
areas over the State of Colorado is substantially the same as the 
actions considered in the ANG's FEIS. FAA staff has independently 
reviewed the ANG FEIS and has determined that it is current and that 
the FAA NEPA procedures have been satisfied. FAA has determined that 
the FEIS adequately assesses and discloses the potential environmental 
impacts of the proposed action. FAA staff concluded that, after 
mitigation measures are taken into consideration, the existing airspace 
can be modified and new military training airspace can be established 
with no significant impacts on environmental resources.
    The ANG has requested this action to respond to changers in 
readiness training requirements. The requirements

[[Page 54722]]

are reflected in specific United States Air Force regulations for 
military aircraft and personnel operating in the affected airspace. 
Additionally, this action responds to the changes in commercial 
aircraft arrival and departure corridors required for operation of the 
Denver International Airport.
    The Text of the entire Record of Decision is provided as follows:

I. Introduction

    This document serves as the Record of Decision (ROD) for the 
Federal Aviation Administration's adoption of the Air National Guard's 
(AGN) Final Environmental Impact Statement (FEIS) and ROD for the 
proposal known as the ``Colorado Air Initiative'' (CAI).
    Pursuant to Section 102(2) of the National Environmental Policy Act 
of 1969 (NEPA) and the Council on Environmental Quality (CEQ) 
regulations implementing NEPA procedures (40 CFR Section 1500-1508), 
the ANG prepared and published a FEIS that analyzed the potential 
environmental impacts associated with modification of existing airspace 
and the establishment of new military training airspace in and around 
the state of Colorado. The document also considered changes in airspace 
utilization by military flying units.
    The FEIS considered three alternatives, the ``Preferred 
Alternative'', the ``Original Proposal'' and the ``No Action 
Alternative'' as required by the CEQ regulations. Five other 
alternatives has been identified but were eliminated from further 
consideration.
    The ANG has submitted the FEIS along with the supporting 
aeronautical proposals to the FAA for consideration and adoption 
pursuant to CEQ regulation 40 CFR Part 1506.3. The proposal submitted 
by the ANG to the FAA for consideration is the alternative designated 
by the ANG as the Preferred Alternative. This alternative is also the 
environmentally preferred alternative. The Preferred Alternative 
proposes the modification of three existing Military Operating Areas 
(MOA) and four Military Training Routes (MTR), the deletion of one MTR 
and a portion of one other, as well as the establishment of one MOA and 
three MTRs. One MOA would remain unchanged.
    The following is a discussion of the proposal submitted to the FAA, 
a brief discussion of the other alternatives considered, environmental 
impacts and additional mitigation measures mandated by the FAA as well 
as the decision of the FAA.

II. Background

    The ANG prepared the CAI FEIS in support of its request for 
modification to the National Airspace System administered by the FAA. 
The ANG requested these modifications to address new military airspace 
training requirements in part related to the modernization of their 
aircraft and weapons systems. The ANG is also seeking these 
modifications in response to changes in commercial aircraft arrival and 
departure corridors dictated by the FAA for the operations of the 
Denver International Airport.
    The ANG issued the CAI FEIS in August 1997 and executed its ROD in 
October 1997. In the spring of 1998, the ANG submitted these documents 
to the FAA for adoption pursuant to CEQ guidelines. Thereafter, the ANG 
submitted its aeronautical proposals to the FAA, formally requesting 
that the FAA make the requisite changes to the National Airspace 
System.
    The FAA held six informal airspace meetings. In response to many of 
the comments received as well as to incorporate safety and efficiency 
requirements, the FAA mandated the additional mitigation measures that 
are outlined in this document.

III. Proposal

    The ANG FEIS analyzed three alternatives, the Preferred 
Alternative, the Original Proposal, and the No Action Alternative. 
Implementation of either the Preferred Alternative or the Original 
proposal would result in a reduction in the number of operations 
compared to the No Action Alternative (existing conditions). Five other 
alternatives were originally identified but were not carried forth for 
consideration. The ANG in its ROD dated October 28, 1997, selected the 
Preferred Alternative. This alternative was also the environmentally 
preferred alternative. The following is a discussion of the 
alternatives considered.

Preferred Alternative

    The Preferred Alternative was developed in response to issues and 
concerns raised during the ANG scoping process. This Alternative took 
into account comments made by the CAI Working Group and recommendations 
from former Governor Romer's Office.
    The Preferred Alternative proposes the modification of three 
existing MOAs and four MTRs, the deletion of one MTR and a portion of 
one other. It also proposes the establishment of one MOA and three 
MTRs. One MOA would remain unchanged. The proposal considered in the 
FEIS is as follows:

     Modify Kit Carson A/B MOAs and rename them Cheyenne 
High and Low MOAs. Minimum altitude would be raised from 100 feet to 
300 feet Above Ground Level (AGL).
     Modify Pinon Canyon MOA. The eastern border would be 
moved approximately 1 nautical mile (NM) to provide FAA clearance 
criteria for a north-south airway.
     Utilize La Veta MOA. This MOA would remain unchanged.
     Modify Fremont MOA and rename Airburst MOA. The 
southeastern corner would be extended east and south to connect with 
the La Veta MOA. The modified airspace would be renamed Airburst A, 
B and C would form contiguous airspace with the La Veta MOA and the 
Airburst range. This would exclude an area over Canon City, Colorado 
and Penrose, Colorado. The bottom elevation of Airburst B and C 
would be 500 feet AGL.
     Establish Two Buttes MOA. This MOA would be established 
east of the adjoining Pinon Canyon MOA. The MOA would be divided 
into low and high areas. The elevation for low would be 300 AGL to 
10,000 mean Sea Level (MSL). The elevation for high would be 10,000 
MSL but not higher than Flight Level (FL) 180.
     Modify IR-409. The bottom elevation of this MOA would 
be raised from surface to 300 feet AGL for the two final segments 
and raised from surface to 500 feet AGL for the remainder of the 
route. The route width would be reduced from 16 NM to 10 NM along 
two segments, from 22 NM to 8 NM along one segment and from 16 NM to 
6NM for the remainder.
     Delete VR-412.
     Modify VR 413. The floor would be raised from surface 
to 500 feet AGL. The route width would be reduced to 6 NM. The 
southwestern most turning point would be 12 NM along the centerline 
to eliminate flights over the Great Sands Dune Natonal Monument. 
Restrictions would be added to the route so that aircraft would 
remain 2000 feet AGL to the maximum extend possible when they cross 
the Sangre de Cristo wilderness areas between Highways 50 and 285.
     Modify IR-414. The minimum altitude would be raised 
from the surface to 300 feet AGL. The width would be reduced from 28 
NM to 6 NM. An existing maneuver area would also be eliminated.
     Establish XIR-424. Create a new MTR that would follow 
the reverse ground path of IR-414 and then follow the existing 
ground path of IR-409 to the Airburst Range. The bottom altitude of 
XIR-424 would be 500 feet AGL from Cottonwood to Airburst Range.
     Modify IR-415. This IR would be modified so that it 
would join IR-409 at Cedarwood and continue to the Airburst Range. 
The minimum altitude for this route would be raised from the surface 
to 300 AGL beginning at Point E near Cedarwood and raised from the 
surface to 500 feet AGL from Point E to Airburst Range. The width 
would be reduced from 21 NM to 10 NM and from 33 NM to 10 NM.
     Modify IR-416. The southern portion of this route from 
Point G to Point L would be deleted. The altitude for the remaining 
route

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would be raised from the surface to 300 feet AGL.
     Establish XIR-426. This new MTR would follow the 
reverse ground path of the current IR-416 from Point L to Point G. 
The minimum altitude of this route would be 300 feet AGL.
     Establish XVR-427. This visual route would begin 
approximately 7 NM south of the northern border of Cheyenne MOA. The 
route would proceed southwest then north and terminate at Airburst 
Range. The new VR would conform to the existing IR-409 route widths 
and altitudes beginning at Point F. The minimum altitudes prior to 
Point F would be 300 feet AGL.

Original Proposal

    This Alternative had been identified by the ANG during its scoping 
process and was retained for further consideration within the FEIS. 
Under this Alternative, four existing MOAs and MTRs would be modified, 
one MTR and a portion of another would be deleted, and one new MOA and 
three new MTRs would be established. After considering public input 
received during the scoping process, the ANG determined that the 
Preferred Alternative was more responsive to the public while ensuring 
that their training requirements could be accomplished.

No-Action Alternative

    Under the No-Action Alternative, existing airspace would continue 
to be utilized. No modifications to training airspace configuration 
would occur. However, the operations at the Denver International 
Airport, since its opening, have placed limitations on the ANG's use of 
existing airspace. In addition, new modern warfare training 
requirements mandated by the Air Force necessitated modification to the 
existing airspace. The ANG determined that the existing airspace would 
not enable its pilots to accomplish their training requirements in a 
manner that would adequately prepare them for wartime taskings. 
Therefore, this alternative was not considered a viable alternative.

Alternatives Identified But Not Carried Forward For Further Detailed 
Study

    Five other alternatives were originally identified by the ANG but 
were eliminated from further detailed study. They are as follows: (1) 
Continued use of the existing MOAs and MTRs aside from those addressed 
previously and the creation of one MOA and five MTRs. The new MOAs and 
MTRs were eliminated because they did not meet criteria established for 
meeting aircrew proficiency requirements or were dismissed by the FAA. 
(2) Establishment of 6 new MOAs. Each MOA was eliminated from further 
consideration because it did not meet training or distance from home 
station requirements. (3) The elimination of the 140th Wing of the 
COANG. The ANG eliminated this alternative because its evaluations 
demonstrated economic and logistical advantages associated with 
individual state ANG units including the 140th Wing. (4) Elimination of 
military training airspace in the state of Colorado. This alternative 
would have impaired the ability of pilots stationed in Colorado from 
accomplishing the required level of training. (5) Replacement of all 
military aircraft training with simulator assisted training. Although 
simulator training does assist aircrews in obtaining certain type of 
training it does not provide the opportunity to obtain the most 
important aspect of aircrew proficiency training, which is the 
requirement to conduct actual military training flights.

Modification to the Initial Proposal Submitted to the FAA

    In addition to the proposals considered in the FEIS and considered 
as part of the Preferred Alternative, the ANG ROD detailed minor 
modifications of five MTRs. These modifications had been requested by 
the FAA stemming from the FAA's on going aeronautical review. They are 
as follows:

     IR-409. Corridor width narrowed along several legs.
     IR-414. Corridor width narrowed under Cheyenne MOA.
     XIR-424. Corridor width narrowed under Cheyenne MOA.
     IR-416. Corridor width narrowed under Cougar MOA. 
Southern half of the route would not be eliminated.
     XIR-426. Proposal withdrawn (adoption of the no action 
alternative)

IV. Environmental Consequences

    The ANG, in its FEIS, considered the potential environmental 
impacts associated with all three of the alternatives carried forth for 
analysis. The analysis for each piece of airspace was conducted as if 
the maximum possible numbers of sorties were to be performed in that 
airspace. The ANG FEIS considered the potential environmental 
consequences on the following: Noise, Airspace Management/Air Traffic, 
Land Uses and Resources, Safety. Visual Resources and Aesthetics, 
Biological Resources (Vegetation, Wildlife and Domestic Animals and 
Threatened and Endangered Species), Cultural Resources, Air Quality, 
Socioeconomic Resources, Earth Resources, Water Resources, Hazardous 
Material Release, Human Health Effects and Natural Quiet. The EIS also 
considered the cumulative impacts of the proposal.
    The ANG ROD concluded the following:

    Based on the analyses conducted for the EIS, neither the 
Preferred Alternative, the Original Proposal, nor the No-Action 
Alternative result in significant environmental impacts. Any impacts 
which may occur can be minimized through the use of mitigation 
measures.'' (ANG ROD pg. 8)

V. Mitigation

    After the publication of the ANG ROD, the FAA held six informal 
airspace meetings. From the input received from the public, as well as 
to assist the FAA in disseminating real time information relating to 
military training flights to the General Aviation population, the FAA 
determined that additional mitigation measures were necessary. In 
addition to the mitigation measures the ANG set forth in its ROD, the 
FAA mandated the following modifications:

     No operations to occur between the hours of 10:00 P.M. 
and 7:00 A.M.
     In addition to renaming the Kit Carson A/B, Cheynne, 
the western boundary would be relocated 10 NM to the east.
     Reduction of Pinon Canyon MOA. The eastern boundary 
would be modified to coincide with the eastern edge of VR-109 and 
the western boundary of Two Buttes MOA.
     Airburst A modified. The eastern, southern and western 
boundaries would be the same as the existing Fremont MOA. The 
southern boundary would be moved north to avoid Canon City and the 
Fremont Airport. Altitude would remain the same, i.e., 1500 feet AGL 
but not higher than FL 180.
     Airburst B modified. The southern boundary of the 
existing Freemont MOA would be moved east along the southern 
boundary of the Fort Carson R-2601. The altitude would be 500 feet 
AGL but no higher than FL 180.
     Airburst C MOA modified. The southern boundary would be 
extended south of the Airburst B MOA to highway 50, then west along 
highway 50 to a point south of Airburst B MOA then north to the 
southwest corner of the Airburst B MOA. The altitude would be 500 
feet AGL, but not higher than 8,500 feet MSL.
     IR-409 modified. Point E would be deleted as an 
alternative entry/exit point. The existing segment between Point H 
and Point I would become VR-410/411.
     Creation of VR-410 and VR-411. These MTRs were created 
in lieu of the expansion of the Airburst MOA extending from R-2601 
to the La Veta MOA. VR-410 and VR-411 would be 6 NM wide and would 
utilize the same centerline as the existing VR-409. VR-410 would be 
the northbound route and VR-411 the southbound route. The Special 
Operating Procedures (SOP) for both routes would require that all 
operations conducted south of U.S. Highway 50 occur at or above 
8,500 feet MSL.
     VR-413 narrowed in the vicinity of the town of Moffat. 
Route restrictions and

[[Page 54724]]

reporting requirements added to the route SOP.
     La Veta MOA modified. The northwest tip of this MOA 
would be removed to accommodate Global Position System (GPS) 
approach procedures and airspace to the Fremont County Airport.
     Elimination of the Cougar MOA.

    The environmental analysis contained within the FEIS was reviewed 
by the FAA and a determination made that any potential environmental 
impacts associated with the modifications made to the airspace 
proposals would be consistent with those already disclosed in the FEIS.

VI. Public Involvement Process

Informal Aeronautical Meetings

    In response to public interest in this proposal, the FAA held six 
informal aeronautical public meetings in 1998. Meetings were held in 
Saguache, Westcliffe, Penrose, Englewood, Colorado Springs and La 
Junta, Colorado.
    421 comments were received during these informal meetings and many 
more were submitted in writing after the meetings. The comments were 
read and characterized. The major issues identified by the public 
during this process and responses thereto were compiled in a document 
entitled ``Summary of Major Environmental Comments During FAA 
Aeronautical Review.'' This summary was mailed along with the FAA's 
Federal Register Notice dated April 27, 1999 declaring the Agency's 
intent to adopt the ANG FEIS to those individuals who had expressed 
concern about the initiative or who had attended an aeronautical 
meeting.

Informal Public Comment Period

    In a Federal Register Notice dated April 27, 1999, (FR Vol. 64, pg. 
22670) the FAA announced that it was recirculating the ANG FEIS in 
compliance with CEQ regulation 40 CFR Part 1506.3, and that it intended 
to adopt the FEIS. The Federal Register Notice stated that FAA would 
receive public comments for 30 days or until May 28, 1999. By letter 
dated May 3, 1999, the FAA notified interested members of the public of 
its intent to adopt the ANG FEIS. Also included in the mailing was a 
copy of the summary of major environmental concerns discussed above.
    The public comment period was extended an additional 30 days to 
provide the public the opportunity to submit their comment on the 
references made by the FAA to the ANG aeronautical proposal. (FR dated 
May 20, 1999, Vol. 64, pg. 27612) In a letter dated May 19, 1999, the 
FAA mailed a summary of those refinements to the public and extended 
the period during which the FAA would receive public comments until 
June 21, 1999.
    At the request of members of the public, the period during which 
the FAA would accept comment was extended one final time. By Federal 
Register Notice dated June 11, 1999, the FAA extended the informal 
public comment period to August 2, 1999. (FR Vol 64, pp. 31676-31677)
    In excess of 400 comment letters were received by the FAA in 
response to the Federal Register Notices announcing its intent to adopt 
the ANG's FEIS. The letters were carefully read and considered. Major 
areas of concern were identified and a general response was sent to 
concerned citizens by letter dated August 11, 1999. All letters have 
become part of the administrative record and have been considered by 
the federal decision-maker.

Summary of Issues of Concern to the Public

    Informal aeronautical meetings were held by the FAA to obtain 
aeronautical comments related to the proposed modification to the 
National Airspace System. However, the vast majority of comments made 
by the public during the FAA's six informal meetings were related to 
concerns about the potential for environmental impacts and the 
sufficiency of the environmental analysis performed by the ANG. The 
primary concern was noise and the potential impact to quality of life 
for those who live under the proposed airspace. Below is a list of the 
major environmental concerns identified during the informal meetings in 
addition to those raised by the public during the informal public 
comment period. The ANG FEIS and ROD were reviewed and a determination 
made that the issues identified below were adequately analyzed within 
the FEIS and ROD.
Issues of Concern
    (1) Risk of aircraft accidents and the inability of local fire 
and rescue to respond to an accident.
    (2) Concern about overflights over Route 17.
    (3) Noise impacts to the Moffat School.
    (4) Potential disproportionate effects on low income and 
minority populations. (Environmental Justice concerns).
    (5) Risk of collisions with other airspace users.
    (6) Potential impacts on children's health and safety.
    (7) Noise and compatible land use, including startle effect on 
horses and other livestock and sleep disturbance.
    (8) Potential impacts to tourism and property values.
    (9) Inability to obtain ``natural quiet'' over National Park 
Service Parks.
    (10) Potential Impacts to migratory birds and other wildlife.
    (11) Accountability of the military pilots.

VII. Decision

    After careful and thorough review of the ANG's FEIS, the FAA has 
determined that the FEIS complies with the National Environmental 
Policy Act of 1969, (42 U.S.C. Section 4371 et seq.), the CEQ's 
implementing regulations (40 CFR Sections 1500-1508), and FAA's order 
entitled ``Policies and Procedures For Considering Environmental 
Impacts'' (1050 1d). The FAA has considered the contents of the ANG 
FEIS, and the ANG ROD.
    Under the authority delegated to me by the Administrator of the 
Federal Aviation Administration, I have decided to adopt the ANG FEIS 
pursuant to CEQ regulation 40 CFR 1506.3. Moreover, having considered 
the environmental and aeronautical comments received from the public, 
the FAA deems it necessary to undertake the additional mitigation 
measures identified above.

    Dated September 28, 1999.
William J. Marx,
Manager, Environmental Programs Division, Air Traffic Management 
Program.

Right of Appeal

    This decision is taken pursuant to 49 U.S.C. Section 40101 et seq. 
and 49 U.S.C. Section 47101 and constitutes an order of the 
Administrator, which is subject to review by the Court of Appeals of 
the United States in accordance with the provisions of 49 U.S.C. 
Section 46110.

Federal Aviation Administration, Environmental Programs Division, Air 
Traffic Airspace Management Program, Attn.: Elizabeth Gaffin, rm. 422, 
800 Independence Ave., SW, Washington, DC 20591.

    Issued in Washington, DC, on October 1, 1999.
William J. Marx,
Manager, Environmental Programs Division.
[FR Doc. 99-26170 Filed 10-6-99; 8:45 am]
BILLING CODE 4910-13-M