Notice of Record of Decision (ROD) for Land Use and Development Plan Final Environmental Impact Statement (FEIS) for Bellows Air Force Station (AFS), Waimanalo, Hawaii

DEPARTMENT OF DEFENSE

Department of the Navy

Notice of Record of Decision (ROD) for Land Use and Development

Plan Final Environmental Impact Statement (FEIS) for Bellows Air Force

Station (AFS), Waimanalo, Hawaii

SUMMARY: Pursuant to Section 102(2) of the National Environmental

Policy Act (NEPA) of 1969 and Council on Environmental Quality (CEQ)

regulations (40 CFR parts 1500-1508), the U.S. Pacific Command

(USPACOM) announces its decision to implement the Land Use and

Development Plan FEIS for Bellows AFS, Waimanalo, Hawaii.

1.0 Introduction

In the National Defense Authorization Act for Fiscal Year 1993

(Pub. L. 102-484, section 2853), Congress directed

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the Secretary of Defense, the Secretary of the Air Force, and the

Secretary of the Navy to prepare a report on the continued military

need for Bellows AFS. Specifically, the report was to cover Air Force

communications operations and Marine Corps training. The communications

operations have since been relocated from Bellows AFS, but the Marine

Corps mission remains. The report was submitted to Congress by the

Secretary of Defense on April 19, 1993; however, the Congress

appropriated $1,000,000 for the ``conduct of an Environmental Impact

Study at Bellows Air Force Base'' in the Department of Defense

Appropriations Act, 1993 (Pub. L. 102-396, Title 2).

The National Environmental Policy Act of 1969 and its implementing

regulations were used as the framework for preparing the study.

The Department of Navy, on behalf of the Commander in Chief, U.S.

Pacific Command (USCINCPAC), prepared a Final Environmental Impact

Statement (FEIS) for proposed actions at Bellows AFS. The FEIS has been

prepared in accordance with CEQ regulations referred to above,

Department of Defense (DOD) Directive 6050.1 entitled, Environmental

Effects in the United States of Department of Defense Actions, and

NEPA. This ROD identifies my decisions on this proposal. These

decisions have been made in consideration of the information contained

in the FEIS which was filed with the Environmental Protection Agency

(EPA) and made available to the public by the Federal Register

announcement on December 15, 1995, and in consideration of the public

comments made on the Draft and Final Environmental Impact Statements.

1.1 Proposed Actions: The action evaluated in the FEIS was a

proposed Land Use and Development Plan for Bellows AFS that consisted

of the following:

Land use change to provide contiguous land, beach, and

water areas of sufficient size and configuration to meet Marine Corps

and other military training requirements

Development of up to 500 units of military family housing

units

Construction of improvements to existing recreational

resources

Excessing of land not essential for military purposes

The FEIS analyzed reasonable alternatives to meet these objectives

and assessed their separate and cumulative impacts.

1.2 Alternatives Considered:

Alternative Land Use Changes in the Communications Area

Expansion of military training

Expansion of military training and additional helicopter

and landing craft, air-cushioned vehicle areas

Expansion of military training as well as construction of

permanent Hawaii Army National Guard Facilities

Siting of up to 500 military family housing units

No action

Alternative Recreation and Support Area Improvements

Completion of proposed recreational area improvements as

noted in the long-range recreation facilities development plan for

Bellows AFS: Motor pool enclosure, recreation courts, recreational

facilities upgrade, water distribution system upgrade, power

distribution system upgrade, replacement of three beach cabins, sentry

gate area upgrade, campground and restroom improvements, pavilion, and

paved road/parking at picnic area 6

Reduction in the scale of improvements in the long-range

development plan; or postponement; Changes in land use

No action

Preferred Alternative

The FEIS identifies a subset of all the possible alternatives which

appear to best achieve the stated purpose and need with due respect for

the environmental consequences. This subset is referred to as the

Preferred Alternative for the purpose of analysis. However, it is

Section 3.0 of this ROD, and not the preferred alternative outlined in

the FEIS, that determines which actions are selected for

implementation.

The preferred alternative was selected after consideration of the

combined effect of all alternatives on achievement of the stated

purpose and need. Purposes and needs include land of sufficient size

and configuration to meet military training requirements, and

improvement of existing recreational resources. Consideration of

environmental and socio-economic effects of the alternatives was a key

component in the selection process.

The preferred alternative converts 387 acres of former

communications area to training use to help alleviate the critical

state-wide shortage of training lands, provides an inland maneuver area

for Marine Corps amphibious exercises, and provides adequate land in

proximity to Marine Corps Base Hawaii (MCBH), Kaneohe Bay, to meet day-

to-day small unit tactical training needs.

The preferred alternative is not to construct additional

military family housing units at Bellows AFS.

The preferred alternative implements the Bellows AFS long-

range development plan for repair and improvement of the Air Force

recreation and support facilities. These valuable facilities serve not

only Oahu military residents, but DOD identification card holders

worldwide. Bellows AFS recreation facilities improvements address an

important ``quality of life infrastructure'' requirement for military

personnel and their families.

The preferred alternative identifies approximately 170

acres as excess to DOD needs conditional upon construction of

replacement facilities, relocation of activities necessary to vacate

the land, clean-up of potential environmental impairments, and

imposition of use restrictions on the excess parcels.

The preferred alternative is also the environmentally preferred

alternative.

1.3 Public Involvement: During the EIS process, the Department of

the Navy solicited input from the local community on several occasions.

Copies of the Draft EIS, and copies of the FEIS were sent to

federal, state and local government representatives, individuals, and

community groups. Notices of Intent (NOI) and Notices of Availability

(NOA) were published in local newspapers as well as the Federal

Register. A chronology follows:

A NOI to prepare an Environmental Impact Statement (EIS) for

actions at Bellows AFS was published and sent out during the second

week of March 1994. Public scoping meetings were held at the Waimanalo

Elementary and Intermediate School on March 30, 1994 and again at

Washington Intermediate School on March 31, 1994. The NOA and

announcement of public hearings for the Draft EIS (DEIS) were published

and distributed on March 13, 1995, and public comments were accepted

through May 31, 1995. A public hearing to present the DEIS was

conducted at Waimanalo Elementary and Intermediate School on May 9,

1995. NOA of the FEIS was published on December 15, 1995, and public

comments were accepted through January 15, 1996.

A synopsis of issues raised during the DEIS public review process,

and efforts made to address these issues in the FEIS, follow:

Comment: The U.S. Government's ownership of and right to

use Bellows AFS were questioned on the basis of claims that nearly all

of the land now comprising Bellows AFS consists of so-called ceded

lands (govrnment lands of

[[Page 28570]]

the former Hawaiian kingdom and lands reserved during the monarchy for

the support of the Crown) and that the ceded lands were all wrongfully

taken from, and should be returned to, Native Hawaiians, generally

referring to all persons of Hawaiian ancestry.

Response: The FEIS included a review of the title of the United

States to Bellows AFS and a legal analysis of the claims asserted

against it. These showed that the United States has clear title to all

the lands, including the ceded lands at Bellows AFS, and that the

claims made on behalf of Native Hawaiians, as a group, to the ceded

lands have no legal or historical validity. Although approximately 170

acres of land have been found to be excess to DOD needs, these will be

disposed of according to the laws and regulations generally applicable

to these excess lands.

Comment: DEIS was inadequate. Cultural and archaeological

impacts are inadequately examined.

Response: The FEIS included a literature review of the cultural

resources of Bellows AFS conducted by H. David Tuggle, Ph.D., of the

International Archaeological Research Institute. The report summarized

archaeological work conducted to date at Bellows AFS, including

identification of known human burial sites. Based on the literature

search and consultation with the State Historic Preservation Officer, a

plan was developed to avoid adverse impacts on cultural resources of

significance. Each known site at Bellows AFS is described in the FEIS.

Comment: Bellows AFS is not necessary to support military

training or recreation.

Response: Bellows AFS is required to help alleviate the critical

statewide shortage of training lands, to provide an inland maneuver

area for Marine Corps amphibious exercises, and to provide adequate

land in proximity to MCBH, Kaneohe Bay, to meet day-to-day small unit

tactical training needs. Military recreation facilities are necessary

to provide quality of life for military personnel and their families.

Affordable facilities are a key consideration for military personnel

who are typically paid less than their civilian counterparts. For

junior enlisted personnel, the military recreational facilities

represent an essential and affordable resource.

1.4 Summary of Environmental Impacts: Below is a summary of the

significant impacts and proposed actions to minimize impacts:

The most significant impacts of the proposed actions and

alternatives that cannot be acceptably mitigated would result from the

housing land use alternative. Foremost among off-station impacts is the

effect on peak hour traffic in Waimanalo from the addition of up to 500

military family housing units. Kalanianaole Highway would be saturated

during peak hours with the additional growth. A four-lane road would be

required through Waimanalo Town. Apart from impacts to traffic,

existing wastewater treatment facilities do not have sufficient

capacity to treat sewage flows from the proposed development.

Population growth in Waimanalo would increase by up to 18 percent and

could not be mitigated directly.

Potential impacts of training activities include stream

bank erosion from vehicle stream crossings, wildlife disturbance,

noise, exposure of training participants to hazardous substances, and

damage to cultural resources. Marine Forces Pacific, along with any

other Service components who conduct training at Bellows AFS, will

develop a constraints map identifying training area restrictions and

adhere to these constraints.

Recreational facilities upgrades and release of excess

land may impact cultural resources. The Air Force will conduct surveys

on excess land before release, and on recreational land before the

start of long-range development plan improvements. These surveys will

determine the extent and nature of the subsurface archaeological

deposits in the areas of potential effect. Should these surveys reveal

the presence of cultural resources, appropriate action will be taken to

comply with pertinent law.

No cultural resources would be adversely affected by the

permanent relocation of the Hawaii National Guard facilities to the

southwest corner of the station.

Training has the potential to affect wetlands and stream

banks, where training operations require crossing Waimanalo Stream. All

practicable means will be taken to avoid or mitigate any such impacts;

these include, but are not limited to, provisions that crossing will be

permitted only at designated locations, and vehicles will be required

to use existing or tactical bridges or fords placed at these designated

locations.

Noise from future training operations will not extend off-

station at levels exceeding community noise standards. Nevertheless, to

avoid future conflicts between community expectations and operational

requirements, noise easements will be imposed as appropriate on lands

declared excess to prevent incompatible civilian land use of these

lands.

2.0 Consideration for Decision

The Land Use and Development Plan FEIS for Bellows AFS takes place

in the broader context of military land use on Oahu. Sufficient land is

required for the military to carry out its defense obligations in

Hawaii and, specifically, to meet the need for adequate training areas.

The FEIS supports USCINCPAC's Hawaii Military Land Use Master Plan

(HMLUMP). The HMLUMP includes land requirements to meet mission tasks.

The FEIS identifies environmental impacts associated with the

choice of alternatives. It further identifies some of the actions

possible to mitigate the impacts and provides a more reasonable

approach to land use. In addition, the scoping meetings, public

hearings, and the comments received from the local community and

agencies helped formulate a comprehensive approach to addressing

important issues for decision making.

In addition to environmental considerations identified in the FEIS,

there are other factors considered in the ROD. Strong public support

for returning excess military land resulted in the proposal to

construct new facilities in order to relocate activities out of

approximately 170 acres of proposed excess land.

3.0 Decision

The FEIS analyzed possible alternatives, considered public comments

made during open meetings and submitted by correspondence, potential

environmental impacts, mitigative requirements and military need for

training lands. In consideration of the FEIS, and comments received on

the FEIS (January 1996), the following land use and development actions

will take place at Bellows AFS:

Convert 387 acres of land in the former communications

area to training use.

Implement Bellows AFS long-range recreation facilities

development plan.

Do not construct new military family housing units on

Bellows AFS.

Declare approximately 170 acres of land along the southern

boundary of Bellows AFS excess to military requirements after

construction of replacement facilities, relocation of activities

necessary to vacate the land (to include relocation of the Hawaii

National Guard) and cleanup of potential environmental impairments

subject to appropriate use limitations to avoid incompatibility between

future civilian uses and military activities on the retained areas.

[[Page 28571]]

4.0 Record of Decision

The military will continue to be a good steward of the environment

on Bellows AFS. All practicable means to avoid or minimize

environmental harm have been adopted. Efforts will be made to preserve

sensitive cultural resources. Further subsurface investigations will be

done prior to any new excavations or significant soil disturbance.

Mitigative actions will be accomplished prior to, during, and after

training activities.

Signed May 7, 1996 by J.W. Prueher, Admiral, U.S. Navy

FOR FURTHER INFORMATION: Questions regarding the FEIS and this Record

of Decision may be directed to Major Matthew Gogan (J446), U.S. Pacific

Command, Camp H.M. Smith, HI 96851-4020, phone (808) 477-6401,

facsimile (808) 477-0876.

Dated: May 22, 1996.

M.A. Waters,

LCDR, JAGC, USN, Federal Register Liaison Officer.

[FR Doc. 96-14067 Filed 5-31-96; 2:17 pm]

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