Notice of Record of Decision To Realign Marine Corps Air Station/ Marine Corps Base, Camp Pendleton, CA

DEPARTMENT OF DEFENSE

Department of the Navy

Notice of Record of Decision To Realign Marine Corps Air Station/

Marine Corps Base, Camp Pendleton, CA

SUMMARY: The Department of the Navy has decided to realign Marine Corps

Air Station/Marine Corps Base (MCAS/MCB) Camp Pendelton, California.

This decision is made upon careful consideration of all comments on the

Environmental Impact Statement (EIS) prepared for the realignment

action. It has been decided to implement the realignment action using

the alternative B configuration, which was both the preferred

alternative and also the environmentally preferred alternative.

DATES: This Record Of Decision becomes effective January 27, 1997.

FOR FURTHER INFORMATION CONTACT: Additional information regarding this

Record Of Decision or the MCAS/MCB Camp Pendleton realignment may be

obtained from Major Pat D. Pinkston at (714) 726-4047.

SUPPLEMENTARY INFORMATION: The text of the entire Record Of Decision is

provided as follows:

Table of Contents:

1. Introduction

2. Proposed Action

3. Purpose and Need

4. Background

5. Alternatives

6. Implementation of the Proposed Action

A. Addition of Aviation Assets

B. Changes to Aviation Operations

C. Construction of Facilities

7. Environmental Consequences

A. Residual Significant Impacts

B. Impacts Mitigated Below Threshold of Significance

C. Impacts That Are Not Significant

8. Comments Received on the Final EIS Public Review

9. Conclusions

10. Further Information

1. Introduction

The Department of the Navy (DoN) has been studying a proposal to

realign Marine Corps Aviation assets temporarily located at MCAS El

Toro and permanently assigned to MCAS Tustin to other locations in

Southern California. The realignment would include Marine Corps

aircraft, their dedicated personnel, equipment and support. The

realignment would be undertaken in accordance with the Defense Base

Closure and Realignment Act of 1990 (BRAC) (Public Law 101-510). The

DoN has conducted extensive analysis of the proposal under Section

102(2) of the National Environmental Policy Act of 1969 (NEPA) and the

Council on Environmental Quality (CEQ) regulations implementing NEPA

(40 CFR 1500-1508). The process used for the analysis sought the views

of the public and those Federal, State and local agencies with special

expertise. Public comments have been carefully considered. Having

reviewed the Final Environmental Impact Statement, the public comments,

and pertinent parts of the administrative record, the Department of the

Navy announces its decision to proceed with the realignment of Marine

Corps Air Station (MCAS)/Marine Corps Base (MCB) Camp Pendleton,

California.

2. Proposed Action

In compliance with the approved recommendations of the 1991, 1993,

and 1995 Defense Base Closure and Realignment Commissions, the proposed

action involves the relocation of selected aviation assets (along with

their dedicated personnel and equipment) that are temporarily located

at MCAS El Toro and permanently assigned to MCAS Tustin to MCAS Camp

Pendleton, changes in aviation operations, and the construction of

facilities. The relocating assets include approximately 800 personnel,

four CH-46E (medium-lift) helicopter squadrons (48 aircraft) and one

detachment of CH-53E (heavy-lift) helicopters (four aircraft). Upon

full implementation of the proposed action, MCAS Camp Pendleton would

support ten helicopter squadrons and one detachment totaling 212

aircraft. Because one existing UH-1/AH-1 (light attack/utility)

helicopter squadron (27 aircraft) and one CH-46 helicopter squadron (12

aircraft) will normally be deployed, normal base loading will consist

of approximately 3,900 personnel and 173 rotary-wing aircraft.

3. Purpose and Need

The purpose and need of the proposed action is to comply with the

1991, 1993, and 1995 BRAC Commissions' recommendations for the closure

and realignment of MCAS Tustin and relocation of MCAS Tustin aircraft,

along with their dedicated personnel and equipment, in a manner that is

consistent with Marine Corps operational requirements.

4. Background

This action was initiated following the effective date of the 1993

recommendations of the Defense Base Closure and Realignment Commission

established under the Defense Base Closure and Realignment Act of 1990,

Public Law 101-510.

Pursuant to that law, recommendations of the Commission become

final if the President sends them to Congress and Congress does not

reject them within 45 legislative days. Once recommendations become

final, 10 U.S.C. sec. 2904 requires that the closures and relocations

must be implemented within six years. The 1993 recommendations included

a change to the 1991 BRAC Commission's recommendations for MCAS Tustin,

which had named Marine Corps Air Ground Combat Center (MCAGCC)

Twentynine Palms as one of the receiving sites for helicopter assets

being realigned from MCAS Tustin. The BRAC 93 Commission deleted MCAGCC

as a receiving site and directed relocation to ``NAS North Island, NAS

Miramar, or MCAS Camp Pendleton, California.'' In BRAC 95, the

Commission again altered the receiving site for assets realigned from

MCAS Tustin by striking the three potential sites listed in BRAC 93 and

substituting ``other air stations consistent with operational

requirements.'' As a result, aviation assets from MCAS Tustin are being

realigned to: MCAS New River, North Carolina; MCB Hawaii; MCAS Camp

Pendleton, California; and MCAS Miramar, California.

When the proposed action is completed, four CH-46E helicopter

squadrons (48 aircraft) and one detachment of CH-53E helicopters (four

aircraft) will be added to the existing MCAS Camp Pendleton loading

(consisting of six squadrons totaling 160 aircraft. Because one

existing UH-1/AH-1 (light attack/utility) helicopter squadron (27

aircraft) and one CH-43 helicopter squadron (12 aircraft) will normally

be deployed, normal base loading will consist of approximately 3,900

personnel and 173 rotary-wing aircraft. In an interim move after the

BRAC 1995 decision and unrelated to selection of permanent relocation

sites, all of MCAS Tustin's CH-46Es have been relocated to MCAS El

Toro, in order to facilitate placing a significant portion of MCAS

Tustin in caretaker status.

As independent actions implementing the recommendations of the 1995

BRAC Commission, two MCAS Tustin

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squadrons have already been permanently relocated: One to MCAS New

River and one to MCB Hawaii. Separate NEPA documentation was completed

for the relocation of these assets. Separate NEPA documentation has

been completed for the realignment of NAS Miramar to MCAS Miramar,

California, which includes the permanent relocation of the remainder of

the MCAS Tustin assets.

5. Alternatives

NEPA and the CEQ regulations require the Department of the Navy to

study and evaluate a reasonable range of alternatives for accomplishing

the purpose and need underlying the proposed action. The underlying

purpose of BRAC, including the recommendation to close MCAS Tustin and

realign its assets, is to reduce infrastructure, costs, and personnel

requirements, while maintaining operational capabilities. Because of

this overriding purpose, alternative sites that did not contribute to

such reductions did not fall within the range of reasonable

alternatives and did not warrant detailed, comparative analysis.

The EIS process initially identified three alternatives: no action,

the use of other military installations, and alternative site

configurations at MCAS Camp Pendleton. The alternative site

configurations primarily involve the location of refueling facilities

and are described as Alternative A, Alternative B, and Alternative C.

The environmentally preferred alternative is Alternative B.

The no-action alternative (i.e., not realigning MCAS Tustin

aircraft) was not evaluated in the EIS because the Defense Base Closure

and Realignment Act of 1990 (Public Law 101-510) exempts from

consideration under NEPA, among other things, the need for closing a

military installation and the need for transferring functions to

selected receiving installations as recommended by the Commission.

Five possible locations that fit the final BRAC 95 recommendations

were identified within the West Coast region: MCAS Camp Pendleton, NAS

North Island, NAS Miramar, Naval Air Facility (NAF) El Centro, and

March Air Reserve Base (ARB). In compliance with the decision of the

1995 BRAC, the ability of these sites to meet Marine Corps operational

requirements efficiently was a prime consideration.

The primary mission of CH-46 and CH-53 helicopters is to provide

tactical lift of Marine Corps ground combat and combat support

elements. Camp Pendleton is the center of the West Coast training

complex for the Marine Corps, including ground combat elements.

Integrated air-ground training is critical to the tactical proficiency

and readiness of Marine Corps units. Therefore, regardless of where the

CH-46 and CH-53 assets are assigned, significant helicopter operations

and training will occur at Camp Pendleton.

The review of alternative receiving sites for helicopters revealed

that operational efficiencies arising from collocating helicopters with

ground elements resulted in clear and overwhelming military advantages.

Consequently, this allowed detailed analysis to focus on alternative

site configurations at Camp Pendleton.

The overwhelming operational advantages of the MCAS Camp Pendleton

alternative over the other possible four alternatives are:

It lies completely within the boundaries of MCB Camp

Pendleton, and allows for collocation of Marine ground forces and a

significant portion of the counterpart rotary-wing aviation support.

This provides an optimal transit time to primary training areas and

efficient use of limited manpower, equipment and fiscal resources.

The collocation of ground and aviation units provides a synergistic

effect on training and support, allowing more realistic and

efficient training of the Marine Corps air-ground team in a ``train

as we will fight'' environment.

It provides immediate access to: Adequate areas for

both helicopter and over-the-beach amphibious assault training;

remote areas, suitable beaches, and undeveloped airfield sites for

advance deployment training of air-ground teams; helicopter landing

sites to support air-ground training and operations; and high

elevation confined area landing sites for training.

It provides ready access to: established logistics

support; division training areas for combined arms and assault

helicopter joint vertical training; restricted air space and

ordnance target complexes within 50 air route miles of home base to

train pilots and gunners; helicopter-capable amphibious shipping for

ship-based training and operations; and outlying landing sites

within 50 air route miles of home base for conducting syllabus

training including field carrier landing practice.

These advantages demonstrate that relocation to MCAS Camp Pendleton

provides the best overall mission capability for the concerned Marine

Corps assets and best supports operational requirements. In fact,

absent other constraints, MCAS Camp Pendleton would be the

operationally preferred site for the remaining USMC rotary-wing

squadrons subject to the BRAC recommendations. Unfortunately, MCAS Camp

Pendleton is not a reasonable alternative for those additional

squadrons because of severe geographic limitations on the size of the

airfield. It cannot physically accommodate the additional facilities

that would be required for basing all of the west coast rotary-wing

squadrons. The Santa Margarita River bounds MCAS to the east, north and

west. Any additions to the runways would entail moving the Santa

Margarita River. Riparian areas associated with the Santa Margarita

River support nine federally-listed endangered species, including the

least Bell's vireo and southwestern willow flycatcher. Any substantial

modifications to the Santa Margarita River in order to extend the

runways would eliminate their habitat and significantly impact these

endangered species. An ancient Indian village is present on the south

bank of the Santa Margarita River. Preliminary archeological

information obtained from this site suggests the site had been

continuously inhabited for over 2,500 years, making it one of the most

important archeological resources in southern California. Any runway

extensions would traverse this archeological site.

The alternative site configurations aboard MCAS Camp Pendleton

included Alternative A, Alternative B, and Alternative C. Alternative B

locates the fuel pits to the northwestern end of the air facility

infrastructure and creates mitigable impacts to biological resources.

Both Alternatives A and C would locate the fuel pits at the

southeastern end of the air facility infrastructure and would create

significant impacts to the historical/cultural site located east of the

air facility infrastructure. After a systematic and multi-disciplinary

evaluation, Alternative B was chosen to be the Preferred Alternative,

providing for more efficient air operations with no impacts to

sensitive and unique cultural (historical and archeological) resources.

For alternatives that were initially identified but subsequently

eliminated from detailed study based on operational requirements,

Council on Environmental Quality regulations require the Department of

the Navy only to discuss briefly the reasons for their having been

eliminated.

For the reasons summarized below, all of the potential sites except

Camp Pendleton were found to be unreasonable alternatives and

consequently were eliminated in the EIS process from detailed study and

analysis. Eliminating unreasonable alternative sites allowed the

Department of the Navy to focus rigorously upon reasonable alternatives

at the Camp Pendleton site.

Potential receiving sites for the assets to be realigned from MCAS

El Toro and MCAS Tustin were initially screened on

[[Page 4735]]

the basis of several criteria: (1) Realignment recommendations approved

by the President and accepted by Congress in BRAC 91, 93, and 95; (2)

operational requirements; (3) infrastructure required to support the

realigned assets; (4) personnel requirements; and (5) military value.

Because of the mission of the squadrons involved, considerable weight

was placed on the ability of a site to provide aviation support of

ground elements while maximizing operational efficiency.

To achieve the economies that were basic to BRAC, Marine Corps

force structure relies on the location of installations to form

interdependent, mutually supporting complexes on the East Coast, West

Coast, and in the Pacific. In order to meet operational and mission

requirements, the selected receiving site(s) should be in close

proximity to the established regional complex. MCAS Tustin is located

within the West Coast regional complex. Receiving sites for the

realigned assets therefore need to lie within the West Coast region.

The Marine Corps regional complex on the West Coast is centered around

MCB Camp Pendleton, CA. Since collocation of helicopters with the

ground elements that the helicopters support maximizes operational and

training efficiencies, locating as many helicopter squadrons at the

center of the regional complex (Camp Pendleton) is optimum.

NAS Miramar

After careful consideration, the Department of the Navy has decided

to realign/convert NAS Miramar, located approximately 35 air route

miles south of MCAS/MCB Camp Pendleton, to MCAS Miramar. Pursuant to

this decision, MCAS Miramar will support a mix of fixed-wing and

rotary-wing aircraft. Medium and heavy lift helicopters based at

Miramar can not train with the troops, equipment, and attack

helicopters already at Camp Pendleton as effectively as they could if

located at Camp Pendleton. Moreover, the Department of the Navy has

responded to community concerns at Miramar by committing to implement a

series of measures to mitigate the noise impacts that will occur from

rotary-wing aircraft that will be based at MCAS Miramar. Adding 52 more

helicopters to MCAS Miramar, when there are other, operationally

preferable sites, would frustrate these mitigation measures and is not

reasonable.

NAF El Centro

The purpose of NAF El Centro is to support transient Department of

the Navy aircraft that come to the region to use the unique and varied

training ranges in Southern California and Western Arizona. The high

tempo of existing operations, and the condition, availability, and

quantity of its infrastructure make it an unreasonable alternative.

Medium and heavy lift helicopters based at El Centro cannot train with

troops, equipment, and attack helicopter already at Camp Pendleton as

effectively as they could if located at Camp Pendleton. The distance to

MCB Camp Pendleton is 108 air route miles, which is over twice the

normal combat/training range for CH-46 helicopters. The extended

transits between El Centro and Camp Pendleton would provide

significantly less opportunity for training as part of an air-ground

team, and would increase operation and maintenance associated with

these aircraft. The base was constructed in 1943, and over half of its

buildings (by square foot of footprint) are temporary or semi-permanent

in character, many of which are deteriorated. There are a limited

number of hangars and even many of those are currently categorized as

being in a substandard facilities condition. The maintenance facilities

are also insufficient for Marine Corps requirements.

NAS North Island

NAS North Island, located approximately 40 air route miles from

Camp Pendleton, is not a feasible alternative because it does not

maximize operational efficiencies or meet operational requirements.

Medium and heavy lift helicopters based at NAS North Island cannot

train with the troops, equipment, and attack helicopters already at

Camp Pendleton as effectively as they could if located at Camp

Pendleton. Also, NAS North Island cannot accommodate Marine Corps

rotary-wing operational requirements due to its location, existing

tempo of operations, and nature of the surrounding property. NAS North

Island is located approximately one mile from Lindbergh Field (the

major commercial airport in San Diego) and is adjacent to downtown San

Diego and the City of Coronado. Repetitive training events such as

Touch and Go, and Ground Control Approach (GCA) could not be

efficiently conducted due to proximity of the civilian development.

Computer vehicle traffic, which is already congested in the City of

Coronado, would be further impacted by the addition of personnel

assigned to off-base housing.

March ARB

Relocating Marine Corps rotary-wing assets from MCAS Tustin to

March ARB, an Air Force reserve facility approximately 35 air route

miles from Camp Pendleton, would not maximize operational efficiency.

Medium and heavy lift helicopters based at March cannot train with the

troops, equipment, and attack helicopters already at Camp Pendleton as

effectively as they could if located at Camp Pendleton. Also, as the

active duty component at March ARB, the Marine Corps would become the

host activity, a status which would require additional USMC personnel

to perform base functions.

6. Implementation of the Proposed Action

Implementation of the proposed action at Camp Pendleton includes

the addition of selected aviation assets, changes to aviation

operations, and the construction of necessary facilities to support

Marine Corps operations.

A. Addition of Aviation Assets

When the proposed action is complete, four CH-46E helicopter

squadrons (48 aircraft) and one detachment of CH-53E helicopters (four

aircraft) will be added to the existing MCAS Camp Pendleton loading

(consisting of six squadrons totaling 160 aircraft). Since one of the

existing UH-1/AH-1 (27 light attack/utility aircraft) squadrons and one

CH-46 (12 medium lift helicopters) squadron are normally deployed, the

loading supported by MCAS Camp Pendleton upon completion of this action

is projected to be approximately 173 rotary-wing aircraft and

approximately 3,900 personnel.

B. Changes to Aviation Operations

Implementation of the proposed action will involve changes in the

aviation operations at Camp Pendleton. These changes will include:

increased use of the primary runway, decreased use of the ``right

grass'' for skid-configured helicopters, increased use (within

established restrictions) of Temporary Alternate Landing Area (TALA),

and increased use of Red Beach VSTOL and LHA pads.

C. Construction of Facilities

Implementation of the proposed action will result in MCAS Camp

Pendleton being configured to accommodate three of the four assigned

CH-46 (medium lift) squadrons at any time, with the fourth on

deployment. Implementation of the proposed action will involve a

reconfiguration and expansion of existing aircraft aprons

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and pavements, flightline facilities, and associated support facilities

to meet USMC requirements. The potential for expansion to

simultaneously accommodate all four CH-46 squadrons on a long-term

basis has been identified as a possibility in the future. Any proposal

to routinely house and operate four CH-46 squadrons simultaneously will

be subjected to further NEPA analysis.

The action now under consideration would include the following

construction and reconfiguration of assets at the MCAS:

Expansion of aircraft parking apron to within 500 feet of

the runway centerline.

Relocation and consolidation of aircraft fueling

operations northwest of the runway with eight refueling points and one

stacking lane to accommodate waiting aircraft.

Construction of a compass calibration pad, water well,

crash crew ``hot spot'' facility, and connecting taxiways to replace

the facilities displaced by runway apron expansion.

Partial elimination of the existing ``right grass'' area,

currently being utilized for helicopter training, due to construction

of new facilities in that area.

Construction of a concrete pad for siting of Marine Air

Control Squadron (MACS-1, Det A) expeditionary radar gear.

Construction of maintenance hangars and centralized

hazardous material support facilities along the southeast side of the

flightline to support the relocating squadrons.

Expansion of the existing Marine Aviation Logistics

Squadron (MALS) aircraft maintenance complex in order to accommodate

CH-46E helicopters.

Expansion of supply functions, including construction of a

warehouse and concrete pads with supporting utilities for 35

maintenance vans.

Relocation and expansion of the aircraft bulk fuel storage

facility as well as the fuel truck parking/loading area and fill stand

southwest of the runway.

Expansion of administration and training-related

facilities to accommodate the additional personnel.

Modification to the engine test cell and expansion of the

armory.

Construction and modification of roads, parking lots,

utilities and support buildings.

In addition to the facilities proposed at the MCAS, the proposed

action would require new construction in Area 24 on MCB Camp Pendleton,

including Bachelor Enlisted Quarters (BEQ's) with administrative

spaces, and a physical fitness building in order to accommodate

additional on-base enlisted personnel. The proposed action would also

require the construction of a Tactical Air Navigation (TACAN) facility

in Area 32 on MCB Camp Pendleton, adjacent to Building 32942. A TACAN

is primarily a military short-range (200 mile) navigational aid, which

would house ultra high frequency (UHF) transmitting equipment. A TACAN

provides omni-directional azimuth and distance information to aircraft

in flight.

7. Environmental Consequences

Environmental impacts on the following resources were analyzed in

the EIS: Geology and soils, air quality, hydrology and water quality,

biological resources, cultural resources, visual resources, land use,

public health and safety, hazardous materials and wastes, aircraft

operations, noise, transportation and circulation, socio-economics, and

community services and utilities. The impacts analyzed in the EIS are

grouped according to their degree of significance: residual significant

impacts (those which cannot be mitigated below the threshold of

significance); impacts mitigated below the threshold of significance;

and impacts that are not significant. As discussed below, the Marine

Corps will implement a number of mitigative measures to avoid or

minimize environmental harm from the proposed action.

A. Residual Significant Impacts

There will be no significant environmental impacts after the

mitigation measures described in the FEIS are implemented.

B. Impacts Mitigated Below Threshold of Significance

Geology and Soils

As discussed in the FEIS, the proposed action will include

incorporating appropriate erosion control measures and proper

excavation techniques to ensure protection of soil resources. The

proposed action will not affect geologic resources as the facilities

will be designed to reduce the potential for land slides and other

adverse geologic activities. No significant impacts to soil will occur

as a result of implementing the proposed action.

Hydrology

The MCAS facilities associated with the proposed action would be

situated within the 100-year flood plain of the Santa Margarita River

with the exception of the Area 24 and 32 construction. Although a

temporary levee exists along the northern boundary of the MCAS, the air

station is inadequately protected from flood hazards and impacts due to

flooding would be significant. To reduce the potential for flooding at

the Air Station, a construction project has been proposed for fiscal

year 1998. The project will construct a levee along the northern

boundary of the MCAS to protect facilities from a 100-year flood.

Separate NEPA documentation is being prepared for this project. The

proposed levee project is needed regardless of the proposed realignment

action, and is functionally independent of the proposed realignment

action. Under the proposed realignment action, the bulk fuel farm and

the hazardous material facility will be elevated by constructing them

on fill material to reduce their susceptibility to impacts from

flooding. The proposed realignment of helicopter squadrons has been

reviewed in accordance with Executive Order 11988 and has been found to

be the only practicable alternative for meeting mission requirements.

The proposed action and other planned construction have incorporated

accepted flood protection measures to the extent practicable.

Water Quality

Surface waters with in the Santa Margarita River and its coastal

estuary have been designated by the San Diego Regional Water Quality

Control Board (SDRWQCB [1995]) as having beneficial uses, which include

municipal and domestic supply, agricultural and industrial supply,

contact and non-contact recreation, warm and cold fresh water habitats,

wildlife habitat and preservation of rare and endangered species. The

proposed action would result in increased pavement and storm water

runoff. Construction-related activities such as clearing, grading, and

excavation often result in the potential for fuels, oil, grease, and

sediment to be carried in storm water runoff to nearby surface waters.

In addition, operation of aircraft and other equipment, as well as

fueling procedures such as those associated with the proposed

facilities, typically result in the release of fuels, oils and

solvents, and other compounds onto paved surfaces.

The potential release of these materials into the adjacent Santa

Margarita River, either directly during a large spill, or indirectly

from small releases via storm water runoff, represents a potentially

significant impact on water quality. Discharge of contaminated surface

water to the Santa Margarita River can potentially impact groundwater

quality via recharge of groundwater through the highly permeable river

alluvium. To reduce impacts on surface water quality from

[[Page 4737]]

construction-related and operational activities to an acceptable level,

the Marine Corps will: (1) Obtain coverage under the State of

California General Construction Activity Storm Water Permit to identify

the sources of sediment and other pollutants that affect the quality of

storm water discharges and to identify the measures to reduce sediment

and other pollutants in storm water discharges; (2) implement standard

construction best management practices including use of silt barriers

and vegetative cover to provide erosion control; (3) locate all

hazardous material and waste storage areas within containment

structures; (4) design pavement areas to prevent fuel spills or runoff

from directly entering natural drainage features; (5) direct storm

water discharge to concrete channels or swales that provide a single

point of discharge for non-point source storm water runoff from the

developed portions of the air station. Oil/water separators will be

constructed to remove the ``first flush'' (approximately the first 20

minutes of a storm event) of petroleum, oil and lubricant residue from

the storm water prior to release into the Santa Margarita River

watershed; (6) connect hangar trench drains to four 30,000 gallon

holding tanks for containment of the emergency Aqueous Film Forming

Foam (AFFF) fire suppression system discharges; (7) ensure all

discharges to natural drainages will comply with Section 402 of the

Clean Water Act, requirements for storm water discharges; and (8)

update the MCAS/MCB Camp Pendleton Oil and Hazardous Substances Spill

Contingency Plan, as well as the Spill Prevention Control and Counter-

measures (SPCC) and the Storm Water Pollution Prevention Plan (SWPPP)

as required under the Resource Conservation and Recovery Act (RCRA) and

the Clean Water Act, to provide for specific measures in the event of a

spill.

The EPA, in a comment on the FEIS, requested corroboration from the

Regional Water Quality Control Board (RWQCB) that proposed mitigation

measures were adequate to ensure compliance with the Clean Water Act.

While the RWQCB did not provide comments on the FEIS, the RWQCB has

reviewed the mitigation measures as part of the state water quality

certification process under section 401 of Clean Water Act. (The

certification process under Section 401 is part of the permit process

under Section 404 of the Clean Water Act.) Conditions identified in the

water quality certificate will be included in the 404 permit issued

under the Clean Water Act. The Marine Corps will comply with those

conditions.

As discussed in the FEIS, appropriate measures will be implemented

to ensure that the potential for release of fuels is minimized. The

installation spill response plan will be updated to cover the new

facilities. No significant impacts to water quality will occur as a

result of implementing the proposed action with the proposed mitigation

measures in place.

The proposed action will result in additional withdrawals of

groundwater from the San Margarita groundwater basin because of an

increase in military personnel and operational facilities. The

historical and current pumping rate of this groundwater basin totals

approximately 6,065 acre-feet per year (AFY). Safe yield for the Santa

Margarita groundwater basin is estimated to be 7,650 AFY.

Implementation of the proposed action could result in an overdraft of

the aquifer, which would be a significant impact. To reduce significant

impacts on groundwater supply to an acceptable level, the Marine Corps

will: (1) Limit groundwater withdrawals from the aquifer contained

within the Santa Margarita River watershed to established safe yield

(7,650 AFY); (2) continue to implement water conservation measures; and

(3) continue groundwater monitoring in all drainages where groundwater

is extracted.

Biology

The Department of the Navy has carefully studied the potential

impacts of the proposed action on endangered species and wetlands and

in consultation with the requisite agencies, has developed and will

implement appropriate measures to protect these sensitive resources.

The U.S. Fish and Wildlife Service (USFWS) has been formally consulted

during the preparation of the EIS. Based upon consultation with the

USFWS, three federally-listed endangered/threatened species were

identified as present on MCAS Camp Pendleton. The endangered species

that are included are the California gnatcatcher (gnatcatcher), the

least Bell's vireo, and the southwestern willow flycatcher. The

Department of the Navy prepared a Biological Assessment on these three

species and other biological resources. Information provided to USFWS

in the Biological Assessment is summarized in the DEIS and the FEIS.

Specifically, the DEIS and the FEIS discussed the existing condition of

these threatened and endangered species as well as other sensitive

species and their habitat in considerable detail. The DEIS and FEIS

identified the impacts associated with the proposed action and

discussed mitigation measures that would reduce the potential for

adverse impacts on the threatened and endangered species and their

habitat.

The results of this consultation are provided in the USFWS

Biological Opinion 1-6-95-F-02, Programmatic Activities and

conservation Plans in Riparian and Estuarine/Beach Ecosystems on Marine

Corps Base Camp Pendleton, dated October 30, 1995. The Biological

Opinion states that the proposed action will not jeopardize the

existence of listed species. The Marine Corps will comply with all

terms and conditions of the Biological Opinion. The Biological Opinion

includes an Incidental Take Statement with reasonable and prudent

measures to minimize impacts on the species of concern. The Marine

Corps will comply with these measures.

As a result of the environmental review conducted in conjunction

with the Marine Corps' application for a permit under section 404 of

the Clean Water Act, the U.S. Army Corps of Engineers (ACOE) has said

that it will place conditions on dredge and fill aspects of the

proposed action. Those conditions resulted in a slight decrease in the

amount of wetlands that would be impacted. Under the conditions imposed

in the Clean Water Act permit, the proposed action will result in

permanent loss of approximately 9.5 acres of wetlands. Additionally,

approximately 5.0 acres of wetlands and waters would be temporarily

impacted by implementation of a 100 foot wide edge effect around the

fuel points. The Marine Corps has determined that the proposed project

would indirectly impact approximately 15 acres of endangered species

habitat through development, construction, and habitat fragmentation.

An undetermined amount of additional wetlands and waters adjacent to

the proposed project site would be indirectly impacted by noise,

helicopter downwash, and human activity at the fueling point. These

direct and indirect impacts may be significant if unmitigated.

Consistent with the Department of the Navy's policy for ``no net

loss'' of wetlands functions and values, as part of the Clean Water Act

Section 404 Permit process, the Marine Corps will mitigate direct

impacts to wetlands and waters of the U.S. by carrying-out restoration.

Also, the Marine Corps will conduct exotic weed control as part of its

mitigation for indirect impacts. This mitigation measure was subject to

public review, and approval by the ACOE as part of the Clean Water Act

[[Page 4738]]

permitting process. No construction activities will occur in wetland

areas until the permit from the ACOE is received. The Marine Corps will

comply with all the terms and conditions of the permit.

As set forth in the Biological Opinion, the Marine Corps will

minimize impacts to existing wetlands during construction by

implementing the following measures: (1) Delineating wetland boundaries

on contractor drawings and flagging the site to prevent impacts to

habitat outside project boundaries; (2) taking erosion and sediment

transport control measures (e.g. sediments basins, hay bales, silt

fences, etc.); (3) staging construction equipment at least 100 feet

from wetlands; (4) minimization of dust from construction activities;

(5) revegetation of temporarily impacted areas; and (6) education of

construction workers with regard to wetland habitats and their

sensitivity. Biological monitoring during construction shall occur in

areas adjacent to the Santa Margarita River Basin.

The federally endangered least Bell's vireo and southwestern willow

flycatcher occupy the wetland habitats of the Santa Margarita River

that surround the Air Station on two sides. The federally threatened

California gnatcatcher occupy coastal sage scrub habitat in the

vicinity of the Santa Margarita River. Annual surveys at the MCAS

indicate that the presence of helicopter activity has not precluded a

substantial increase in the least Bell's vireo population within the

Santa Margarita River drainage since 1981 (USFWS 1995 Biological

Opinion 1-6-95-F-02). Nesting has occurred in habitat adjacent to the

Air Station every year since survey data has been collected. Annual

survey maps indicate that the heaviest concentration of the nesting

least Bell's vireo appear to be influenced by the quality of riparian

habitat rather than distance to the MCAS. The proposed action may

result in indirect noise impacts on these species. The Marine Corps is

conducting on-going monitoring of the effects of helicopter flights

between 300 and 500 ft AGL in the adjacent habitat. Mitigation measures

described in the Terms & Conditions of the Biological Opinion are

designed to reduce impacts to an acceptable level.

No mitigation for biological impacts are required in Areas 24 and

32. Area 24 is a ``disturbed'' area, and Area 32, an Upland Area, was

surveyed for the Pocket Mouse and the California gnatcatcher, and found

to be devoid of those species.

Cultural Resources

In accordance with 36 CFR Part 800, regulations implementing

Section 106 of the National Historic Preservation Act, three cultural

sites were evaluated for eligibility for inclusion in the National

Register of Historic Places (NRHP). Only one site, CA-SDi-10156/12599/

H, was determined to be eligible. The State Historic Preservation

Officer agrees with this determination. Similarly, the State Historic

Preservation Officer has concurred in the determination that the

proposed action will not affect this or any other historic properties.

Therefore, due to avoidance, the proposed realignment of MCAS Camp

Pendleton will not significantly impact cultural resources listed or

determined eligible for listing on the National Register of Historic

Places.

As there are no cultural resources recorded within the limits of

construction for the proposed action, no direct impacts to known

cultural resources will occur. However, one extensive archaeological

site, CA-SDi-10156/12599/H, is located near the limits of the proposed

action and is associated with the Santa Margarita Ranch House complex,

a site listed on the National Register of Historic Places. Therefore,

significant indirect impacts form the proposed action could occur if

measures to protect the site during construction are not implemented.

To reduce potentially significant indirect impacts on cultural

resources to below the threshold of significance, the Marine Corps

will: (1) Prior to commencement of construction activities, protect (by

fencing or other means) portions of site CA-SDi-10156/12599/H outside

of the project area from potential incidental construction-related

impacts; and (2) pursuant to 36 CFR 800.11, if any archaeological

resources are discovered during project grading or construction, halt

all activities in that particular location until an archaeologist is

notified and the resources assessed. The archaeologist will establish

procedures for redirecting or halting work to permit the sampling,

identification and evaluation of previously unidentified archaeological

resources.

Aircraft Operations

Aircraft operations for the proposed action would result in a

significant increase in the use of runways, established military

airspace, and military flight tracks. The Marine Corps will mitigate

these impacts to an acceptable level by using as necessary the

following measures: (1) Scheduling training other than during morning

peak times, (2) scheduling block training times, (3) utilizing the Red

Beach area, and (4) utilizing the Temporary Alternate Landing Area

(TALA).

C. Impacts That Are Not Significant

Air Quality

The San Diego Air Basin is federally classified as a serious ozone

non-attainment area and a moderate carbon monoxide (CO) non-attainment

area. Pursuant to Section 176(c) of the Clean Air Act, US EPA

promulgated a final rule ``Determining Conformity of General Federal

Actions to State or Federal Implementation Plans'' (General Conformity

rule), 58 Fed. Reg. 63214 (Nov 30, 1993) (40 C.F.R. Parts 51 and 93). A

conformity applicability analysis of the air emissions associated with

the proposed action was conducted. The conformity applicability

analysis determined that air emissions associated with the proposed

action (reduced by the amount of emissions associated with the

departing Marine Corps aircraft) are: (1) Below de minimis levels

(i.e., the net changes in emissions of criteria pollutants do not

exceed threshold levels established in the General Conformity Rule);

and, (2) not regionally significant (they do not exceed 10% of the San

Diego Air Basin's total emissions inventory for any applicable criteria

pollutant). Consequently, the proposed action is not subject to the

General Conformity Rule. (FEIS, Sec. 4.2 and FEIS Appendix B)

In conducting a conformity applicability analysis for the proposed

action, the Department of the Navy selected 1990 as the most

appropriate year to reflect Marine Corps aircraft operations and

activities at MCAS Camp Pendleton as a fully operational Air Station in

normal circumstances. As such, 1990 was used as a basis to calculate

emissions increases and decreases caused by the proposed action; i.e.,

the ``net'' emissions considering all incoming and outgoing direct and

indirect emissions. The ``netting'' of emissions in this manner

appropriately accounts for the total direct and indirect emissions

associated with the proposed action and is in accordance with

provisions of the General Conformity Rule. The Department of the Navy's

use of 1990 to analyze net emissions is also consistent with the San

Diego Air Pollution Control District's (APCD) use of 1990 for

determining emissions inventories. Even though total operations dropped

in 1990 from previous years' totals due to deployments for Operation

Desert Shield and Storm, a comparison of yearly level of operations for

years when the OV-10 aircraft was still operational

[[Page 4739]]

reveals that 1990 is a representative year for calculating pre-BRAC

operations and emissions.

I took a hard look at the Department of the Navy's method for

estimating air emissions and the supporting data. The Department of the

Navy's method for calculating aircraft emissions applies the following

elements: number of aircraft operations; type or mode of operation

(power setting); number and type of aircraft engines per aircraft; time

in mode; and, corresponding emission factors. The emission factors were

obtained from studies conducted by the Navy Aircraft Environmental

Support Office (AESO) that are referenced in the EPA ``Compilation of

Air Pollutant Emission Factors (AP-42).''

In summary, the Department of the Navy has conducted a thorough

review of the data and methods used to analyze whether the requirement

for a conformity determination applies to this proposed action. My

review of the record indicates that the proposed realignment of MCAS

Camp Pendleton represents a net decrease in the total emissions of

those air pollutants for which the San Diego area is in nonattainment.

During the most recent review done in preparation for making this

Record of Decision, however, the Department of the Navy has accounted

for a number of changed circumstances. Some of these changes, such as

shifts in projected construction schedules and delays in the migration

of the realigning aircraft, resulted from delays in the EIS process. As

a result, some of the data and dates in the conformity applicability

analysis as summarized in the FEIS have changed. The Marine Corps

carefully recalculated its emission estimates for the proposed action's

conformity applicability analysis to reflect these changes and other

refinements of data. These recalculations demonstrate that the net

emissions from the proposed action remain below de minimis levels. Some

of the changes of note in the applicability analysis include using an

on-site batch concrete plant at MCAS Camp Pendleton during construction

and defering the construction of the hot refueling pits from 1997 to

1998. Data refinements included correcting some emission factors and

hours of operations for equipment and aircraft. These changes and

refinements indicate that emissions from the proposed action will

remain below de minimis levels, as shown in the table below.

----------------------------------------------------------------------------------------------------------------

Emission rates (tons per year)

Annual net emissions (as compared to 1990) --------------------------------------

NOX CO ROG/HC

----------------------------------------------------------------------------------------------------------------

1997 Net Emissions....................................................... 38 -619 -18

1998 Net Emissions....................................................... -27 -695 -28

1999 Net Emissions....................................................... 13 -243 20

2000 Net Emissions....................................................... 10 -287 17

De minimis threshold level............................................... 50 100 50

----------------------------------------------------------------------------------------------------------

Visual Resources

As discussed in the FEIS, the proposed action will not have any

significant impacts on the visual resources.

Land Use

As discussed in the FEIS, the proposed action will not result in

the change of any off-base land use designation, and therefore will not

have any significant impacts on the land use of developed areas.

Public Health and Safety

As discussed in the FEIS, the proposed action will not have any

significant impacts on the local or regional public health and safety.

Hazardous Material and Wastes

As discussed in the FEIS, the proposed action will not have any

significant impacts on the life cycle (procurement, storage, use,

through disposal) of hazardous materials or wastes.

Socioeconomics

As discussed in the FEIS, the proposed action will not have any

significant impacts on the local or regional socio-economics. In

compliance with Executive Order 12898, an analysis was conducted to

determine if minority or low-income populations would suffer

disproportionate environmental impacts as a result of the proposed

action. It was determined that these populations would not suffer

disproportionate impacts.

Noise

The FEIS carefully analyzed the issue of noise, recognizing that

some members of the public are concerned about noise that would be

generated by additional helicopter operations at MCAS Camp Pendleton.

Noise impacts were assessed using the State of California's

standard, the Community Noise Equivalent Level (CNEL), expressed in

units of decibel (dB). The State of California's Title 21, Subchapter

6, Section 5006 states: ``The level of noise acceptable to a reasonable

person residing in the vicinity of an airport is established as a

community noise equivalent level (CNEL) value of 65 dB for purposes of

these regulations. This criterion level has been chosen for reasonable

persons residing in urban residential areas where houses are of typical

California construction and may have windows partially open. It has

been selected with reference to speech, sleep and community reaction.''

Section 5014 describes the land use that are incompatible within the

noise impact boundaries. It provides that noise exposure levels less

than 65 dB are generally compatible for noise sensitive land uses,

including residential areas and schools. The aircraft operations-

related noise analysis is based on data presented in the ``Aircraft

Noise Study for Marine Corps Air Station, Camp Pendleton, CA''

(NAVFACENGCOM 1995). The aircraft noise study utilized aircraft

operations data from the Naval Aviation Simulation Model (NASMOD)

report. Noise contours defining the areas of impact in 5 dB increment

were developed using the NOISEMAP model and projected operational tempo

data. The analysis considered the existing six squadrons, with one

deployed, and the addition of four squadrons and the detachment of four

helicopters.

Although the standard for significance is 65 dB, the noise contours

as low as 60 dB CNEL associated with the proposed action will remain

entirely contained within the base boundaries of MCB Camp Pendleton.

The average annual day 60-65 dB CNEL noise contour would increase by

approximately 564 acres, while the total acreage increase within the

65-70 dB CNEL noise contour would be 141 acres. No additional on-base

sensitive noise receptors will be contained within the new 65-70 dB

noise contour. Most notable is the increase in area of the 60-65 dB

CNEL noise contour by about 42

[[Page 4740]]

percent (or from 1,339 to 1,903 acres). This increase is attributed to

the large increase in Ground Control Approach (GCA) pattern operations,

the use of the pattern during evening and nighttime hours (when larger

weighting factors are used to compensate for quieter background noise,

resulting in larger noise contours than would be created by daytime

flights), and a significant increase in arrivals using the North

initial approach route. Similarly, there is a major projected increase

in aircraft departures and arrivals, causing the 60-65 dB CNEL noise

contour to extend farther southwest. The remaining increase in the 60-

65 noise contour is consistent with increased operations for most

departures, arrivals, and pattern operations.

In addition, two off-base locations, located in the town of

Fallbrook, were identified as potential noise sensitive receptors (the

intersection of Mission Road and Industrial Way, and the Fallbrook

Union High School). Under the proposed action, the intersection of

Mission Road and Industrial Way (currently 46 dB CNEL), and the

Fallbrook Union High School (currently 38 dB CNEL) will be exposed to

sound level increases of 5 dB at the intersection, and 6 dB at the High

School, during an average annual day. These increases and resulting

noise levels are compatible with the established noise impact standards

contained within the State of California Regulations (Title 21) for

these land uses.

The Marine Corps will continue to examine operations for ways to

further reduce noise impacts on communities subject to routine

overflight of MCAS Camp Pendleton aircraft. The MCB Camp Pendleton

Community Plans and Liaison (CP&L) Office will continue to coordinate

efforts with the local community by working with community leaders,

local elected officials and professional staffs through established

community relations and local government processes, e.g., the Fallbrook

Ad Hoc Committee, to ensure that the concerns of local communities

regarding Marine Corps operations will be taken into consideration.

Construction noise associated with the proposed action would raise

ambient noise levels in the vicinity of individual construction sites.

Noise levels produced by typical construction equipment (e.g. heavy

trucks, loaders, backhoes, cranes, and assorted pneumatic and diesel

equipment) are of the same intensity as the 75-80 db CNEL noise contour

created by aircraft operations. Impacts due to noise produced by

construction equipment will be temporary, and although audible in the

immediate vicinity, will not occur outside of the MCAS/MCB area of

construction and will not increase noise levels beyond the MCAS/MCB

boundaries. Traffic generated by construction activity is estimated to

be approximately 30 to 50 construction-type vehicles per day. The

increase in traffic noise would be approximately 0.5 dB and is not

significant.

Transportation and Circulation

Traffic-related impacts to either the on- or off-base circulation

system, due to both construction and operation of the proposed action,

would not be significant. Construction volumes would represent a small

and temporary portion of daily traffic volumes on area roadways,

carrying materials and heavy equipment to the site. Heavy construction

equipment and vehicles would comprise a small portion of off-base

traffic, since the vehicles would be driven to the site, and then kept

on-site for the duration of the construction. It is estimated that

construction traffic would range from 150 to 200 vehicles per day

(including personal vehicles of construction employees), depending on

the timing of construction of each facility. It is also assumed that

traffic would approach the project sites equally from the Main Gate

near 1-5, and the San Luis Rey Gate, near Oceanside, with the

concentration of heavy construction vehicles using the Main Gate.

Service contractors (equipment suppliers, maintenance, fuel trucks,

etc) would comprise approximately 50 trips to and from the facilities

each day.

The proposed action is expected to generate a total of

approximately 1,485 vehicles on off-base roadways during the weekdays.

The Level of Service (LOS) and capacity on primary off-base roadways in

the vicinity of MCB Camp Pendelton would not be lowered. Project-

related traffic would represent a negligible increase to off-base major

intersections, which would not result in lowering the LOS with the

addition of project-related traffic.

Community Services and Utilities

Of the projected approximately 800 personnel associated with the

proposed action, approximately 43 would be civilians who would be

housed off-base, independent of the military personnel. School-aged

dependents of civilian personnel would be absorbed into the local

community. It is estimated that 363 school-aged military dependents

will be introduced into the Oceanside, Fallbrook and Capistrano School

Districts upon implementation of the proposed action. The additional

families and their school-aged children would be disbursed throughout

the existing housing stocks on base and in adjacent communities in San

Diego and Orange Counties, and would not significantly impact school

districts.

8. Comments Received on the Final EIS Public Review

Twelve comment letters were received following publication of the

FEIS. With the exception of an issue with cumulative impacts addressed

below, the comments received were addressed in the sections

corresponding to the issues of concern.

The EPA expressed a concern that the FEIS should contain an

explanation as to why several projects identified in the Draft EIS

cumulative impacts analysis appear to be in support of the proposed

action, but are analyzed under separate NEPA documentation. The

projects identified in the cumulative impacts portion of the FEIS, both

at MCB and MCAS Camp Pendleton (e.g., sewage treatment upgrades and

construction of an outlying landing field) do not directly support the

proposed BRAC action, and would be undertaken irrespective of the

realignment of MCAS Tustin assets to Camp Pendleton. Many of the

actions identified in the cumulative impacts section are only in the

conceptual planning stage. The FEIS Cumulative Impacts section was

expanded to address potential impacts for each project to the extent

known; however, the available information was limited since many of

these projects are only in the early stage of planning. The impacts

associated with each of these projects would be mitigated at the

project-specific level to ensure the continued protection of the

natural and cultural resources, including the Santa Margarita River

Basin.

9. Conclusion

On behalf of the Department of the Navy, I have decided to realign

selected aviation assets (four twelve-aircraft squadrons of mediun-lift

CH-46E helicopters and one four-aircraft detachment of heavy-lift CH-

53E helicopters), along with their dedicated personnel, equipment, and

support, from MCAS El Toro and MCAS Tustin to MCAS Camp Pendleton,

which is located within MCB Camp Pendleton. After reviewing the FEIS,

supporting documents, and comments and information received during the

environmental review process, I have decided to implement this action

using Camp Pendleton Site Alternative B (fuel pits to Northwest of

existing airfield infrastructure), which was both the

[[Page 4741]]

Preferred Alternative and also the Environmentally Preferred

Alternative.

10. Where to Obtain Further Information

For further information, contact Major Pat D. Pinkston at (714)

726-4047.

Dated: January 27, 1997.

Duncan Holaday,

Deputy Assistant Secretary, Installations and Facilities.

[FR Doc. 97-2349 Filed 1-30-97; 8:45 am]

BILLING CODE 3810-FF-M