[Federal Register Volume 68, Number 163 (Friday, August 22, 2003)]
[Notices]
[Pages 50756-50760]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-21478]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF DEFENSE

Office of the Secretary


Department of Defense Missile Defense Agency Record of Decision 
Supplemental Environmental Impact Statement for the Airborne Laser 
Program

SUMMARY: Pursuant to Section 102(2)(C) of the National Environmental 
Policy Act (NEPA) of 1969, Public Law (Pub. L.) 91-90 (as amended) and 
the regulations promulgated by the Council on Environmental Quality at 
40 CFR 1505.2, the Department of Defense (DOD), Missile Defense Agency 
(MDA), has prepared the following Record of Decision (ROD) on the 
Supplemental Environmental Impact Statement (SEIS) for the Airborne 
Laser (ABL) Program. The ROD contains the statement of decision, 
identifies the alternatives considered, and discusses the factors on 
which the decision was based, and any mitigating measures deemed 
necessary

[[Page 50757]]

to avoid or minimize environmental impacts.

FOR FURTHER INFORMATION CONTACT: Mr. K. Rock, 703-697-5506.

SUPPLEMENTARY INFORMATION:

Overview

    The United States (U.S.) requires a more accurate and effective 
defense against ballistic missiles by destroying them during the boost 
phase, just after launch. Currently, the U.S. and its allies are 
limited to defense of troops of high-value assets within a small area 
of a theater of operations as the missile nears its target. 
Improvements in missile range and accuracy and the rapid increase in 
the number of missile-capable nations increase the threat. The ABL 
aircraft is a modified Boeing 747 aircraft that accommodates a laser-
weapon system and laser fuel storage tanks. The ABL aircraft 
incorporates an Active Ranging System (ARS) laser, a Track Illuminator 
Laser (TILL), and a Beacon Illuminator Laser (BILL); a laser-beam 
control system designed to focus the beam on target; and a High-Energy 
Laser (HEL) (i.e., chemical, oxygen, iodine laser [COIL]) designed to 
negate the target. The ARS is a lower-power gas laser, and the BILL and 
TILL are lower-power solid-state lasers. An onboard Battle Management 
Command Center provides computerized control of aspects of the laser-
weapon system, communications, and intelligence. The ABL aircraft would 
fly at high altitudes and would detect and track launches of ballistic 
missile using onboard sensors. During flight-test activities, active 
tracking of the missile with the BILL and TILL would begin at 
approximately 35,000 feet above mean sea level.
    The ABL program is one of the elements of the MDA Ballistic Missile 
Defense System (BMDS) that is intended to provide an effective defense 
for the U.S., its deployed forces, and its friends and allies from 
limited missile attack during all segments of an attacking missile's 
flight. The ABL element of the BMDS is being developed to provide an 
effective defense to limited ballistic missile threats during the boost 
segment of an attacking missile's flight.
    The Final Environmental Impact Statement for the Program Definition 
and Risk Reduction Phase of the Airborne Laser Program (FEIS) was 
published in April 1997, The 1997 FEIS analyzed several alternatives 
for establishing the Home Base, the Diagnostic Test Range, and the 
Extended-Area Test Range that are required to effectively demonstrate 
the ability of the ABL system. The 1997 FEIS considered Edwards Air 
Force Base (AFB), California, and Kirtland AFB, New Mexico, as possible 
Home Base locations; White Sands Missile Range (WSMR), New Mexico, and 
China Lake Naval Air Warfare Center, California, as the Diagnostic Test 
Range; and the Western Range, including Vandenberg AFB and/or Point 
Mugu Naval Air Warfare Center Weapons Division, both in California, as 
the Extended-Area Test Range.
    The ROD for the 1997 FEIS identified Edwards AFB as the Home Base 
(to support the ABL aircraft and conduct ground-test activities of the 
ABL system), WSMR as the Diagnostic Test Range, and the Western Range 
as the Expanded-Area Test Range (both for supporting proposed flight-
test activities of the ABL systems). Based upon operational and 
environmental concerns in that FEIS, Edwards AFB was chosen as the 
primary location for conducting ground-test activities. Kirtland AFB 
and WSMR were identified as alternative ground-test locations in the 
event that ground testing was not possible at Edwards AFB.

Purpose and Need

    The SEIS sets forth the supplemental environmental analysis 
required based on changes in the proposed test program that have 
occurred since the 1997 FEIS was completed and examines proposed test 
activities at Edwards AFB, Kirtland AFB, WSMR/Holloman AFB, and 
Vandenberg AFB. Holloman AFB is a U.S. Air Force installation that 
shares most of its boundary with WSMR. The 1997 FEIS previously 
examined test activities and test locations and is considered the No-
Action Alternative for this SEIS. The following is a list of new or 
refined actions that require the preparation of an SEIS:
    [sbull] Testing of two ABL aircraft (referred to as the Block 2004 
aircraft and an improved follow-on aircraft, the Block 2008) rather 
than the individual aircraft addressed in the 1997 FEIS
    [sbull] Proposed ground testing that was not considered in detail 
in the 1997 FEIS
    [sbull] Potential effects due to off-range lasing during test 
activities
    [sbull] Potential effects of lowering the test altitude of the ABL 
aircraft from 40,000 feet to 35,000 feet or higher
    [sbull] Testing of the ARS laser, the BILL, the TILL, and the 
Surrogate High-Energy Laser (SHEL) systems that were not considered in 
detail in the 1997 FEIS
    [sbull] Refinement of proposed ABL test activities (i.e., location 
of tests, types of tests, and number of tests).
    These new or refined actions will maximize testing efficiencies and 
realism, and provide further clarification of the ABL weapon system 
test program.

Decision

    The MDA will proceed with the Proposed Action as described in the 
SEIS and summarized below. Appropriate management plans and regulations 
would be adhered to and suitable mitigation measures would be initiated 
to minimize potential adverse effects.

Proposed Action and Alternatives

    The Proposed Action is to conduct test activities of the ABL system 
at test ranges associated with Edwards AFB and Vandenberg AFB, 
California, and Kirtland AFB and WSMR/Holloman AFB, New Mexico. Test 
activities would involve testing the laser components on the ground and 
in flight to verify that laser components operate together safely and 
effectively. Two ABL aircraft (Block 2004 and Block 2008) would be 
utilized during test activities. Software upgrades to the Block 2004 
aircraft would be tested and added to that test aircraft under a Block 
2006 effort. Once upgraded with the newer operating system, the Block 
2004 would be designated as the Block 2006 aircraft. Ground testing of 
the ABL system is proposed at Edwards AFB. Kirtland AFB and WSMR/
Holloman AFB have been identified as alternative ground-test locations 
if ground tests cannot be conducted at Edwards AFB. Flight testing is 
proposed at the R-2508 Airspace Complex (Edwards AFB), Western Range 
(Vandenberg AFB), and WSMR (including Federal Aviation Administration 
[FAA]-controlled airspace and airspace utilized by Fort Bliss).
    The ABL aircraft would be housed at an existing hanger at Edwards 
AFB. Edwards AFB is also the location where the laser systems would be 
integrated into the aircraft, where ground tests would occur, and is 
the location for initial aircraft flight test. Although flight testing 
of the ABL system would occur within the R-2508 Airspace Complex, 
Western Range and WSMR, ABL test flights would begin and end at Edwards 
AFB. The ABL aircraft could be used to support other BMDS incidental 
exercises and deployments from other locations. These operations would 
be supported by other environmental analysis as appropriate.
    Ground-Testing Activities. Ground testing of the lower-power laser 
systems (i.e., ARS, BILL, TILL, and SHEL) would be performed at Edwards 
AFB. Ground-testing activities would be conducted from an aircraft 
parking pad or the end of a runway with the laser beam

[[Page 50758]]

directed over open land toward ground targets with natural features 
(e.g., mountains, hills, buttes) or earthen berms as a backstop. Lower-
power lasers could also be fired from the System Integration Laboratory 
(SIL) at the Birk Flight Test Facility to range targets for atmospheric 
testing. Appropriate automatic hard-stop limits and beam path 
restrictors would be incorporated into the test design to ensure that 
laser energy does not extend beyond natural features and backstops. 
Additionally, the proposed ground test area would be cleared of 
personnel prior to initiating test activities. The ground-testing 
activities could also be conducted using a ground-based simulator 
within Building 151 at Edwards AFB. No open range testing of the HEL 
(COIL) would be conducted. Ground testing of the HEL would be conducted 
at Edwards AFB within Building 151 and the SIL using a ground-based 
simulator or an enclosed test cell. In the event that ground testing is 
not possible at Edwards AFB, ground testing of the ARS, BILL, TILL, and 
SHEL systems only could be conducted at Kirtland AFB or Holloman AFB/
WSMR.
    Flight-Testing Activities. Flight tests at ranges associated with 
WSMR (including FAA-controlled airspace and airspace utilized by Fort 
Bliss), Edwards AFB (R-2508 Airspace Complex), and Vandenberg AFB 
(Western Range) would be used to test the ARS, BILL, TILL, SHEL, and 
HIL systems.
    The ABL tests would include acquisition and tracking of targets at 
short-range as well as high-energy tests. These tests would be 
conducted against instrumented diagnostic target boards carried by 
balloons, missiles, or aircraft. Missiles would incorporate a flight-
termination system, when required, to ensure that debris would be 
contained on the range in the event the target must be destroyed during 
flight. Proteus aircraft (a manned aircraft with a target board 
attached) and Missile Alternative Range Target Instrument (MARTI) drops 
(balloon with a target board attached) would be utilized for testing of 
the lower-power laser systems (i.e., ARS, BILL, TILL, and SHEL). MARTI 
drops would also be used for testing the HEL.
    The MARTI is a diagnostic target for ABL that is similar in size 
and geometry to a ballistic missile. The basic construction consists of 
a shell of aluminum with aluminum fins attached, coated with paint 
selected to represent the properties of the paint on ballistic missiles 
(no fuel would be onboard). The balloon would rise to an approximate 
height of 100,000 feet and may pass over private and BLM-managed lands, 
depending on wind conditions aloft. When the balloon is over the target 
drop box and at the desired altitude the MARTI payload would be 
released. The MARTI would free-fall to 50,000 feet allowing 
approximately 55 seconds of engagement time, allowing multiple 
engagements on each drop. A nominal three engagements per MARTI drop 
are planned. Approximately 60 pounds of flare attached to the MARTI 
would burn during the entire ABL engagement to provide an infrared 
source for the ARS. The flare would be exhausted prior to the MARTI 
reaching the ground. After the ABL engagement is complete, a parachute 
system would be deployed to slow down and recover the complete MARTI 
unit for reuse.
    During flight tests with the ABL aircraft, up to two ``chase 
aircraft'' may be utilized to monitor test activities. The ABL aircraft 
would fly at an altitude of 35,000 feet or higher. The laser systems 
would be directed above horizontal in an upward direction to minimize 
potential ground impact or potential contact with other aircraft. The 
energy from the HEL would heat the missile's booster components and 
cause a stress fracture, which would destroy the missile.
    Missile debris would be contained within the range boundaries. The 
geometry of the tests would preclude operation of the laser except at 
an angle that is above the horizon. The onboard sensors and laser 
clearinghouse data would be used to confirm that no other aircraft or 
satellites are within the potential path of the beam, although 
controlled airspace would be utilized during ABL test activities and 
would be verified cleared. Airborne diagnostic testing would revalidate 
and expand on-the-ground test activities, confirm computer model 
predictions, and enable complete system tests.
    No-Action Alternative. The No-Action Alternative is to proceed with 
ABL testing activities as addressed in the 1997 FEIS and associated 
ROD.

NEPA Process

    The Notice of Intent (NOI) to prepare an SEIS for ABL Program test 
actions was published in the Federal Register on March 22, 2002, 
initiating the public scoping process. Public scoping meetings were 
held in April 2002 in communities perceived to be affected by the ABL 
tests. The Notice of Availability (NOA) of the ABL Draft SEIS was 
published in the Federal Register in September 2002. This initiated a 
public review and comment period for the Draft SEIS. Four public 
hearings were held in October 2002 in the same locations as the public 
scoping meetings. Comments on the Draft SEIS were considered in the 
preparation of the Final SEIS. A Department of Defense NOA for the 
Final SEIS was published in the Federal Register on June 16, 2003. An 
Environmental Protection Agency NOA for the Final SEIS was published on 
July 3, 2003, initiating an additional 30-day comment period. Comments 
were considered in the decision process, culminating in this ROD.

Environmental Issues

    The proposed activities addressed in the SEIS do not change the 
scope, quantity, or quality of the actions analyzed in the 1997 FEIS; 
therefore, only the following resources were analyzed in the SEIS for 
potential impacts: airspace, hazardous materials and hazardous waste 
management, health and safety, air quality, noise, biological 
resources, cultural resources, and socioeconomics. Environmental issues 
identified during the analysis are summarized below. The complete SEIS 
is available at the following Web site: http://www.afcee.brooks.af.mil/ec/eiap/eis/abl/ABL_F-SEIS_Apr_03.pdf.
    Environmental Effects of the Proposed Action. The current regional 
airspace restrictions would continue due to ABL testing activities. 
Flight-testing activities occurring within FAA-controlled airspace 
would be coordinated with the FAA prior to conducting test activities. 
Hazardous materials used and hazardous waste generated during ABL 
testing activities would be managed in accordance with applicable 
federal, state, DOD, and Air Force regulations regarding the use, 
storage, and handling of hazardous materials, hazardous waste, and 
hazardous chemicals identified under the hazardous Materials Management 
Plan. ABL testing activities would involve ground-level and in-flight 
lasing. Performance of ABL testing activities in accordance with 
appropriate safety measures would reduce the potential for health and 
safety impacts. There would be short-term, negligible increases in 
pollutant emissions due to ground- and flight-testing activities. The 
minimal increases would not delay regional progress toward attainment 
of any air quality standard. The negligible increases in pollutants 
would not exceed the de minimus threshold of any regional air basin. 
Due to the location of the ground-test activities and the altitude of 
the flight-test activities, no residential areas would be exposed to 
continuous noise levels exceeding 65 decibels (dBA). Because ABL 
testing activities would be conducted in accordance with the applicable 
regulations and existing

[[Page 50759]]

standard operating procedures for debris recovery, adverse biological 
resource and cultural resource impacts are not anticipated. The 
proposed ABL testing activities would require a long-term increase of 
approximately 750 personnel at Edwards AFB to support the ABL program 
and a short-term increase of up to 50 program related temporary 
personnel during test activities. These personnel would provide a 
small, positive, yet largely unnoticeable effect on population, income, 
and employment in the vicinity of the installations.
    Environmental Effects of the No-Action Alternative. ABL test 
activities would continue in accordance with those actions addressed in 
the 1997 FEIS and associated ROD. The regional airspace restrictions at 
the installations would continue due to ongoing mission activities. 
Management of hazardous materials and waste at the installations would 
continue to in accordance with current practices. Current range safety 
measures at the installations would continue with current practices. 
Current range safety measures at the installations would continue to 
ensure public safety and the environment are protected. Based on the 
1997 FEIS, no adverse air quality, noise, biological, cultural, or 
socioeconomic impacts are anticipated.
    Preferred Alternative. The Proposed Action is the preferred 
alternative. This would involve conducting test activities of the ABL 
system at test ranges associated with Edwards AFB and Vandenberg AFB, 
California, and Kirtland AFB and WSMR/Holloman AFB, New Mexico. Test 
activities would involve testing the laser components on the ground and 
in flight to verify that laser components operate together safely and 
effectively. Edwards AFB has been selected as the Home Base and will be 
the primary location for ground-testing activities. White Sands Missile 
Range has been selected as the Diagnostic Test Range and the Western 
Range has been selected as the Expanded-Area Test Range.
    Environmentally Preferred Alternative. The environmentally 
preferred alternative is the no-action alternative.
    Cumulative Impacts. The SEIS found no cumulative impacts on the 
human environment from proposed ABL testing activities. However, due to 
the nature of test activities at the Western Range and and WSMR, other 
missile test and rocket launch activities at the Western Range and 
WSMR, other missile test and rocket launch activities within the ranges 
to support other military and commercial functions would be occurring. 
These missile tests and rocket launches have been addressed in 
Environmental Assessments (EAs) and Environmental Impact Statements 
(EISs) that limit the number of launches and are carefully scheduled/
coordinated to prevent conflicts with overlapping missions.
    In the event that ground tests are conducted at Holloman AFB, 
potential mission conflicts could occur at Holloman AFB due to parking 
the ABL aircraft and associated support equipment at the western end of 
the base runway. This arrangement would prevent aircraft from taking-
off or landing (i.e.,  require closure of the runway). In order to 
avoid mission conflicts at Holloman AFB, other less frequently or 
unused runways, taxiways, or aircraft apron locations could be 
identified/dedicated to support the ABL aircraft during the short 
period of ground-test activities. If a suitable ground-test location 
that avoids Holloman AFB mission activities cannot be identified, the 
ABL ground-test program would be postponed until conditions at Edwards 
AFB or Kirkland AFB are suitable. In addition, during ABL flight-test 
activities, conflicts with the Holloman AFB flying mission could occur 
due to the ABL test activities using restricted airspace that is also 
used by Holloman AFB aircraft. This potential concern would be avoided 
through scheduling of test activities so that mission conflicts would 
not occur.
    Measures to Minimize Impacts. All practicable means to avoid, 
minimize, or mitigate harm to the environment would be taken under the 
selected alternative. Because of the negligible impacts that ABL test 
activities would have on most environmental factors and measures 
already taken by the MDA, Air Force, and Army, no separate mitigation 
plan beyond adherence to applicable laws, regulations, and DOD 
guidelines is deemed necessary. ABL test activities would comply with 
applicable federal, state, DOD, Air Force, and Army regulations 
regarding the management of hazardous materials and hazardous waste. 
Evacuation plans and emergency response plans will be developed and 
implemented as required. Emergency planning documents will be updated 
and emergency response personnel trained and equipped prior to 
introduction of new hazardous materials.
    To minimize potential laser hazards, multiple controls would be 
used to reduce the potential for off-range lasing and accidental lasing 
of unsuspecting receptors. These controls include the use of backdrops 
and enclosures, horizontal and vertical buffer zones, administrative 
controls, and removal of mirror-like reflecting surfaces from the test 
area. Safety interlocks associated with the laser systems are in place 
to stop lasing activities in the event that the beam control steers the 
beam from the anticipated beam path. Evacuations, clearances, and road 
closures would be implemented to ensure worker and public health and 
safety. Any debris from target missile impact areas would be recovered 
in accordance with established Standard Operating Procedures (SOPs) and 
regulations.
    Consultation with appropriate federal and state agencies (e.g., 
U.S. Fish and Wildlife Service, SHPO) will be completed. Notice of 
launch activities will be provided to any concerned agencies, local 
communities, and recreational users. Efforts will be made to schedule 
ABL test activities to avoid impacts on other activities at the 
installations.
    With regard to airspace, avoidance of the R-5119 Restricted Area 
associated with WSMR would mitigate the potential impact to the J13 and 
J57 high-altitude jet routes that transit through the Restricted Area. 
In order to avoid operational impacts at Holloman AFB, other less 
frequently used or unused runways, taxiways, or aircraft apron 
locations could be identified/dedicated to support the ABL aircraft 
during the short period of ground-test activities. If a suitable 
ground-test location that avoids Holloman AFB mission activities cannot 
be identified, the ABL ground-test program would be postponed until 
conditions at Edwards AFB or Kirtland AFB are suitable.
    In the event that target debris affects White Sands pupfish 
habitat, specific operational steps for emergency responses would be 
determined on a case-by-case basis in accordance with the WSMR Missile 
Mishap Plan, Annex P to the Disaster Control Plan.

Conclusion

    The refinements in the original testing program analyzed in the 
SEIS serve to increase testing efficiencies and realism, and provide 
further advancement of the ABL testing program.
    The factors and considerations offered above justify the selection 
by MDA of the Proposed Action as presented in the Final Supplemental 
Environmental Impact Statement for the Airborne Laser Program.

    Dated: August 18, 2003.


[[Page 50760]]


    Signed By Ronald T. Kadish, Lieutenant General, USAF, Director.
L.M. Bynum,
Alternate OSD Federal Register Liaison Officer, Department of Defense.
[FR Doc. 03-21478 Filed 8-21-03; 8:45 am]
BILLING CODE 5001-08-M