[Federal Register Volume 64, Number 247 (Monday, December 27, 1999)]
[Notices]
[Pages 72320-72331]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-33505]
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DEPARTMENT OF DEFENSE
Department of the Navy
Record of Decision for the Introduction of the V-22 to the Second
Marine Aircraft Wing in Eastern North Carolina
AGENCY: Department of the Navy, Department of Defense.
ACTION: Notice of Record of Decision.
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SUMMARY: The Department of the Navy, after carefully weighing the
operational, environmental, and cost factors associated with the
introduction of the V-22 `Osprey' as a replacement for the CH-46E
helicopters in present use by the Second Marine Aircraft Wing (2d MAW),
announces its Carolina. The squadrons receiving the new aircraft are
already decision to base the replacement aircraft at MCAS New River,
North based at MCAS New River, so no relocation of personnel and family
members will be required.
FOR FURTHER INFORMATION CONTACT: LtCol D.B. Bixler, USMC; Long Range
Planner, Installations and Logistics Dept (LFL-3), Headquarters, U.S.
Marine Corps, 2 Navy Annex, Washington DC 20380-1775; Telephone 703
695-8240.
SUPPLEMENTARY INFORMATION: The text of the entire Record of Decision
(ROD) is attached as follows:
The Department of the Navy (DoN), pursuant to Section 102 (c) of
the National Environmental Policy Act (NEPA) of 1969 (42 USC Section
4331 et. seq.), and the regulations of the Council of Environmental
Quality that implement NEPA procedures (40 CFR Parts (1500-1508),
hereby announces its decision to introduce the V-22 ``Osprey'', a new
type of tiltrotor, aircraft, to the Second Marine Aircraft Wing of the
US Marine Corps, based at Marine Corps Air Station, New River, North
Carolina. The decision includes the replacement or renovation of the
facilities used to house and maintain the aircraft, and development
within the USMC of the skills needed to employ the new aircraft during
wartime.
The introduction of the V-22, as mandated by Congress, is part of a
Marine Corps-wide process of replacing the CH-46E and CH-53D
helicopters currently used by the USMC MAWs. The USMC relies on a
veteran fleet of CH-46Es and CH-53Ds for medium-lift operations, such
as the delivery of troops and equipment in amphibious assault
operations. These Fleet aircraft will be replaced by the V-22 on an
essentially one-to-one basis.
The CH-46E aircraft represent 1960s technology, and are nearing the
end of their lifecycles. The CH-46E cannot travel great distances, and
is not well equipped for night or adverse weather operations. The V-22
is a tiltrotor aircraft capable of vertical/short takeoffs and
landings, and significantly greater flight distances, at a faster speed
and with a greater payload than the CH-46Es and CH-53Ds.
The basing and operating of the V-22 by the 2d MAW will be as
described in the Final Environment Impact Statement (FEIS) of October,
1999. The FEIS identifies the basing of the V-22 at MCAS New River as
the Preferred Alternative. To support the personnel, operations, and
maintenance effort associated with basing the V-22 at MCAS New River,
four construction projects will be required at that air station. These
projects include constructing an aircraft rinse facility, widening
taxiways, expanding the aircraft parking apron, and providing an
addition to an existing training building to accommodate additional
training simulators. Additionally, repavement of the runways at
Outlying Landing Field Oak Grove, in Jones County, is planned.
Operations will include training activities by the V-22 Fleet
Replacement and Fleet Replacement Enlisted Skills Training (FRS/FREST)
squadrons to develop initial capabilities in piloting and maintaining
the new aircraft. The action also includes readiness operations by the
V-22 tactical squadrons to develop proficiency in use of the V-22 for
warfighting. These training and readiness operations are similar to
those that have been conducted in Eastern North Carolina by the CH-46
FRS and tactical squadrons in recent years.
Training and readiness operations will be conducted at established
outlying landing fields (OLFs); established special use airspace such
as military operations areas (MOAs) and restricted areas; established
military training routes (MTRs), terrain-following routes (TERFs), and
low altitude routes (LATs); established targets and landing zones
(LZs); and civilian airports. No new OLFs, MOAS, MTRs, TERFs, LATs, or
restricted areas will be required as the result of the proposed action.
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The first V-22 aircraft will be delivered to the V-22 Fleet
Replacement Squadron (FRS) during fiscal years 2000 and 2001, at which
point that squadron will reach Initial Operating Capability.
The V-22 FRS squadron will receive 20 V-22 aircraft during the
first five years of the program. The first four 2d MAW CH-46E tactical
squadrons will be transitioned to the V-22 by about fiscal year 2006,
and will each receive 12 V-22s, for a total of 48 V-22 aircraft.
Ultimately, by about fiscal year 2008, the six 2d MAW tactical
squadrons that presently use the CH-46E helicopters will be re-equipped
with the V-22. These Fleet squadrons are part of Marine Aircraft Group
26 and 29, currently stationed at MCAS New River. Initiating deployment
through MCAS New River will therefore allow the DoN to take advantage
of the existing facilities and organizational structure at the site.
The V-22 FRS staff will begin training in the operation and
maintenance of the V-22 upon arrival of the first V-22, scheduled for
February 2000. The training of these personnel will be completed during
March 2001, at which time they will begin to train tactical squadron
personnel, starting with the first four of the 2d MAW tactical
squadrons that are to be equipped.
The air emissions from sources associated with construction and
operation of the proposed action would occur in counties within the
Southern Coastal Plain Intrastate Air Quality Control Region. Each of
these counties is an air quality area for purposes of National Ambient
Air Quality Standards (NAAQS) designations under the Clean Air Act
(CAA), and each has been designated as being in attainment for all
criteria pollutants (40 C.F.R. 81.334). Thus, the Federal General
Conformity Rule implementing the CAA Sec. 176, and the North Carolina
General Conformity Rule (15A NCAC 2D.1600) are not applicable.
Process
The NOI to prepare an Environmental Impact Statement (EIS) for the
introduction of the V-22 to the 2d MAW was published in the Federal
Register on August 14, 1998. Four public scoping meetings were held
between August 31, 1998 and September 3, 1998 in the four North
Carolina communities closest to where V-22 operations would occur:
Atlantic, Pollocksville, Jacksonville, and Havelock.
The public scoping meetings were attended by a total of 25 persons,
with only one formal comment offered. An additional 13 individuals and
state/local agencies submitted comments via letter, facsimile, or
electronic mail.
The Draft Environmental Impact Statement (DEIS) was distributed to
Congressional members and committees, agencies and officials of
federal, state, and local governments, citizen groups and
organizations, and other interested parties during the week of June 14-
18, 1999.
The Notice of Availability for the DEIS was published in the
Federal Register on June 25, 1999. The DEIS was subject to public
review during a 45-day public comment period. The Marine Corps also
held four public hearings during the public comment period as follows:
July 19, 1999--Jacksonville, NC; July 20, 1999--Havelock, NC; July 21,
1999--Atlantic, NC; and July 22, 1999--Pollocksville, NC.
Comments on the DEIS were received by letter, by oral statements
provided to the court recorder at the public hearings, and written
statements received by facsimile. Written and oral statements were
received from a total of 21 commentors, including federal, state,
regional, and local agencies, and private individuals. All comments
received were reviewed and addressed in the FEIS.
The FEIS was distributed for public comment on October 25, 1999.
The public comment period ended on December 6, 1999. Two comments were
received on the FEIS, and were reviewed before issuing this ROD.
Alternatives Considered
The DoN conducted a two-tiered screening process to identify
reasonable alternatives that would fulfull the purpose and need for the
proposed action. The first stage identified all DoD aviation facilities
that would meet certain fundamental criteria that are essential for the
introduction of the V-22 within the 2d NAW. The second stage of the
process screened those facilities that met the fundamental criteria
against several preferential criteria that would significantly affect
the cost and efficiency of the proposed action. The fundamental
criteria included location within 200 nautical miles (nm) (370
kilometers [km]) of the ground forces that are supported by the 2d MAW
(these ground forces are located at Marine Corps Base (MCB) Camp
Lejeune); and the presence at the facility of a Marine Aviation
Logistics Squadron (MALS).
The first criterion is based on the specified radius of action (200
nm) for the Marine Corps version of the V-22. It reflects the distance
the V-22 can travel and return, without refueling with a full load of
18 to 24 combat troops.
The second criterion is necessary because the V-22 is a new
aircraft, and there has been no opportunity to develop a maintenance
capability through a MALS. The first opportunity for development of
this capability will occur as the new aircraft is introduced to the FRS
and initial fleet tactical squadrons. It is important that the V-22
squadrons be home-based at the same air station as a MALS, to avoid
significant degradation of the maintenance, logistics, and training
support that a MALS provides. Collocation with other USMC aviation
assets would also significantly aid the integration of the new aircraft
into the overall USMC aviation team.
Under these circumstances, establishing a new MALS at a non-Marine
Corps facility would not be reasonable, as it would require the Marine
Corps to undertake a change in force structure, necessitating higher
support costs, and duplication of personnel and facilities at a time
when DoD is streamlining.
Only two sites meet both fundamental criteria: MCAS Cherry Point
and MCAS New River. These sites were then evaluated against the
preferential criteria, namely operational readiness factors such as:
the availability of adequate training areas (MTRs, LATs, TERFs, OLFs,
LZs, restricted areas and associated targets, MOAs, and Warning Areas)
within a reasonable distance of the home base; collocation of the FRS/
FREST squadron with the majority of the V-22 Fleet squadrons; available
capacity at the facility to accommodate the aircraft and personnel;
costs associated with implementation of the alternative; and, proximity
of the selected facility to the Fleet ground combat element (CGEs)
requiring rotorcraft support at MCB Camp Lejeune. While MCAS New River
is clearly the preferred alternative when evaluated against these
factors, full basing at MCAS Cherry Point or partial basing of the FRS/
FREST and six tactical squadrons at both New River or Cherry Point
would also be reasonable. Thus, the EIS addressed the environmental
impacts of these three alternatives.
Because Congress directed replacement, the No Action Alternative
was not analyzed in detail.
Environmental Impacts
The DoN analyzed the potential impacts of the selected action on 15
categories of resources, namely: airfields and airspace, land use and
coastal zone management, socioeconomics, community facilities and
services, ground traffic and transportation, air
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quality, noise, infrastructure and utilities, cultural resources,
hazardous materials management, topography and soils, vegetation and
wetlands, wildlife, water resources, and rare and protected species.
The DoN also considered potential cumulative impacts of the proposed
action and consistency of the proposed action with federal policies
addressing environmental justice. None of the impacts of the preferred
alternative are considered to be significant. This record of decision
focuses on the issues of most concern to the public or other government
agencies.
Noise--Public comments throughout the EIS process have indicated
concern for aircraft noise, particularly overflights of national and
state parks and other natural areas. The Day-Night Average Sound Level
(DNL) was used to assess changes in the noise environment around the
air stations and landing fields. The Onset-Rate Adjusted Day-Night
Average Sound Level (Ldnmr) was used to assess changes along
MTRs, within MOAs, and within Restricted Areas/Ranges. The Sound
Exposure Level was used for representative sensitive receptor
locations.
Full basing of the V-22 at MCAS New River will result in little
change in flight patterns or noise levels in the vicinity of the air
station. The V-22 is slightly less noisy than the CH-46E helicopter,
and will conduct somewhat fewer operations than the CH-46Es. The same
will be true for many of the areas to be used for training, including
the OLFs, TERFs, MTRs and MOAs. In some areas, there will be a decrease
in the noise levels due to a decrease in the number of flight
operations projected for not only the V-22 (former CH-46E) squadrons,
but also other aircraft squadrons, as well (Executive Summary).
There will be an increase in operations and therefore noise impacts
at both OLF Oak Grove and the Albert J. Ellis Airport, in Jacksonville,
NC. However, although the area affected by 65-dB DNL or greater will
increase at both OLF Oak Grove and the Albert J. Ellis airport, it will
not extend beyond the airport property, and will not, therefore,
significantly impact people or dwellings.
Noise along the TERF routes will not change significantly. three of
the TERF routes are located almost wholly over the Croatan National
Forest and Hofmann Forest. The fourth TERF Route (Holly Shelter) is
located over forest and agricultural land. The number of operations
along the TERF routes will actually decrease. Average noise levels
along the Great White and Ellis Lake routes are anticipated to remain
the same; the average noise level on the Hofman Forest route will
decrease by one dB; and the average level on Holly Shelter route will
increase by one dB. Average noise levels would not exceed the 65 dB
standard considered to be protective of humans and wildlife along any
of the routes. While the number of operations along the MTRs will
increase (the CH-46E helicopters do not use MTRs, but the V-22 aircraft
will use these routes), these noise levels along these routes would
remain below the 55 dB DNL.
Air Quality--The proposed action and alternatives occur in air
quality areas (counties), that have always been designated as being in
attainment of NAAQS for all criteria pollutants. Given this fact, the
DoN selected the major stationary source definition from the CAA
prevention of significant deterioration program--250 tons per year
(tpy) or more of any air pollutant--that applies in these counties as
the criteria for determining the potential significance of air quality
impacts.
The DoN carefully analyzed the air quality impacts of the
replacement of CH-46E operations with V-22 operations, and has
continued to update and refine the analysis as new information has
become available.
The most recent refinement (post FEIS) of the air quality impacts
analysis included recalculating emissions attributable to CH-46E
aircraft using new gaseous and particulate emission factors developed
by the Navy's Aircraft Environmental Support Office during November and
December 1999. Initial recalculations revealed potentially significant
NOx emissions for Onslow County. However, since all
emissions from training areas were attributed in the FEIS analysis to
Onslow County, even though they actually partially occur in neighboring
counties, the NOx emissions are still considered to be
insignificant. When operational emissions are more accurately
attributed among the counties that include the areas north and west of
MCAS New River, the conclusion for all counties remains the same. The
net increase in emissions for each county within the AQCR resulting
from the proposed action and the alternatives (including operations at
outlying landing fields and training areas) would be below 250tpy for
all criteria pollutants. Thus, neither the proposed action nor any of
the alternatives would have a potential significant adverse impact on
air quality. The new emissions factors and the results of recalculation
of operational emissions are not significant new information requiring
re-publication of the FEIS.
Refinements of FEIS Tables 3.6-2; 4.6-2; 4.6-3; E-1 through E-3; E-
7; and E-9 through E-1-, incorporating the recent CH-46E emission
factors and distributing emissions among the counties that include the
areas north and west of MCAS New River, appear in Appendix A of this
Record of Decision.
Water Resources--Several agencies expressed concern over the
filling of a channelized stream in connection with expansion of the
aircraft parking apron at MCAS New River. An Army Corps of Engineers
permit will be required under Section 404/401 of the Clean Air Act for
relocating or culverting the stream channel. This channel has been
previously modified as part of the stormwater conveyance system at MCAS
New River. Mitigation for the loss of habitat will be developed as part
of the Section 404/401 permitting process. Work at OLF Oak Grove will
not directly impact any surface waters. Runoff would be carefully
controlled during construction to comply with all applicable state
policies, rules and regulations.
Wildlife, Threatened and Endangered Species--No protected
(threatened or endangered) or significantly are species are documented
as occurring within the construction areas at MCAS New River, MCAS
Cherry Point, or OLF Oak Grove. At OLF Atlantic, no federally protected
(threatened or endangered) species have been documented as occurring.
One state endangered/federal species of concern, the Carolina
goldenrod, and four state significantly rare species are present near
the runways at OLF Atlantic. While no construction would occur at OLF
Atlantic under the proposed action, downdraft from the V-22 could
damage fragile species.
The U.S. Fish and Wildlife Service's comments on the DEIS expressed
concern over low-level flight exercises, and their impact on bald
eagles, red-cockaded woodpeckers, and other federally-listed coastal
birds. They also expressed concern over colonial waterbirds and
waterfowl. V-22 flights will mainly take place along the MTRs, the
Holly Shelter, Hofmann Forest, Great White, and Ellis Lake TERF routes,
and the LAT route within R-5306A. These routes have been in use many
years. While flights along the MTRs would increase by 548 operations,
flights along TERF routes would decrease by about 979 operations as
compared to the level of CH-46E operations in recent years. Also, many
of the flights on the MTRs occur at higher altitudes (300 ft to over
1,000 ft) [91 m to 305 m] than the operations
[[Page 72323]]
along the TERF routes. The DON does not anticipate that the proposed
action will cause adverse impacts, such as changes in species
distribution or populations within these areas, because the operational
patterns and associated noise levels will be similar to current
operations.
Response To Comments Received Regarding the Final Environmental
Impact Statement
Two written letters were received. One commentor, EPA Region 4,
Atlanta restated the Agency's lack of objection to the proposal. The
State of North Carolina also submitted a comment which concurred with
the proposed action.
Conclusions
In determining where to introduce the V-22 to the 2d MAW, I have
considered the following: all DoD air facilities with an existing MALS
within the operational radius of the aircraft; environmental impacts;
operational readiness factors such as the availability of adequate
training areas within a reasonable distance of the home base and
collocation of the FRS/FREST squadron with the V-22 Fleet squadrons;
available capacity at the selected facility to accommodate the aircraft
and personnel; costs associated with implementation of the alternative;
proximity of the selected facility to the units of the Ground Combat
Element requiring rotorcraft support at MCB Camp Lejeune; and comments
received during the DEIS and FEIS public involvement periods.
After carefully weighing all of these factors, analyzing the data
presented in the FEIS along with the additional information concerning
air emissions, and considering public comments, I have determined that
the Preferred Alternative, homebasing of the V-22 at MCAS New River,
best meets the operational requirements for the V-22, and is the least
costly of the alternatives evaluated. This alternative is also the
environmentally preferred alternative. Therefore, on behalf of the
Department of the Navy, I have decided to implement the proposed action
by basing the V-22 aircraft at MCAS New River.
Dated: December 20, 1999.
Duncan Holaday,
Deputy Assistant Secretary of the Navy
(Installations and Facilities).
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[FR Doc. 99-33505 Filed 12-23-99; 8:45 am]
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