Record of Decision for the Introduction of the V-22 to the Second Marine Aircraft Wing in Eastern North Carolina

DEPARTMENT OF DEFENSE

Department of the Navy

Record of Decision for the Introduction of the V-22 to the Second

Marine Aircraft Wing in Eastern North Carolina

AGENCY: Department of the Navy, Department of Defense.

ACTION: Notice of Record of Decision.

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

SUMMARY: The Department of the Navy, after carefully weighing the

operational, environmental, and cost factors associated with the

introduction of the V-22 `Osprey' as a replacement for the CH-46E

helicopters in present use by the Second Marine Aircraft Wing (2d MAW),

announces its Carolina. The squadrons receiving the new aircraft are

already decision to base the replacement aircraft at MCAS New River,

North based at MCAS New River, so no relocation of personnel and family

members will be required.

FOR FURTHER INFORMATION CONTACT: LtCol D.B. Bixler, USMC; Long Range

Planner, Installations and Logistics Dept (LFL-3), Headquarters, U.S.

Marine Corps, 2 Navy Annex, Washington DC 20380-1775; Telephone 703

695-8240.

SUPPLEMENTARY INFORMATION: The text of the entire Record of Decision

(ROD) is attached as follows:

The Department of the Navy (DoN), pursuant to Section 102 (c) of

the National Environmental Policy Act (NEPA) of 1969 (42 USC Section

4331 et. seq.), and the regulations of the Council of Environmental

Quality that implement NEPA procedures (40 CFR Parts (1500-1508),

hereby announces its decision to introduce the V-22 ``Osprey'', a new

type of tiltrotor, aircraft, to the Second Marine Aircraft Wing of the

US Marine Corps, based at Marine Corps Air Station, New River, North

Carolina. The decision includes the replacement or renovation of the

facilities used to house and maintain the aircraft, and development

within the USMC of the skills needed to employ the new aircraft during

wartime.

The introduction of the V-22, as mandated by Congress, is part of a

Marine Corps-wide process of replacing the CH-46E and CH-53D

helicopters currently used by the USMC MAWs. The USMC relies on a

veteran fleet of CH-46Es and CH-53Ds for medium-lift operations, such

as the delivery of troops and equipment in amphibious assault

operations. These Fleet aircraft will be replaced by the V-22 on an

essentially one-to-one basis.

The CH-46E aircraft represent 1960s technology, and are nearing the

end of their lifecycles. The CH-46E cannot travel great distances, and

is not well equipped for night or adverse weather operations. The V-22

is a tiltrotor aircraft capable of vertical/short takeoffs and

landings, and significantly greater flight distances, at a faster speed

and with a greater payload than the CH-46Es and CH-53Ds.

The basing and operating of the V-22 by the 2d MAW will be as

described in the Final Environment Impact Statement (FEIS) of October,

1999. The FEIS identifies the basing of the V-22 at MCAS New River as

the Preferred Alternative. To support the personnel, operations, and

maintenance effort associated with basing the V-22 at MCAS New River,

four construction projects will be required at that air station. These

projects include constructing an aircraft rinse facility, widening

taxiways, expanding the aircraft parking apron, and providing an

addition to an existing training building to accommodate additional

training simulators. Additionally, repavement of the runways at

Outlying Landing Field Oak Grove, in Jones County, is planned.

Operations will include training activities by the V-22 Fleet

Replacement and Fleet Replacement Enlisted Skills Training (FRS/FREST)

squadrons to develop initial capabilities in piloting and maintaining

the new aircraft. The action also includes readiness operations by the

V-22 tactical squadrons to develop proficiency in use of the V-22 for

warfighting. These training and readiness operations are similar to

those that have been conducted in Eastern North Carolina by the CH-46

FRS and tactical squadrons in recent years.

Training and readiness operations will be conducted at established

outlying landing fields (OLFs); established special use airspace such

as military operations areas (MOAs) and restricted areas; established

military training routes (MTRs), terrain-following routes (TERFs), and

low altitude routes (LATs); established targets and landing zones

(LZs); and civilian airports. No new OLFs, MOAS, MTRs, TERFs, LATs, or

restricted areas will be required as the result of the proposed action.

[[Page 72321]]

The first V-22 aircraft will be delivered to the V-22 Fleet

Replacement Squadron (FRS) during fiscal years 2000 and 2001, at which

point that squadron will reach Initial Operating Capability.

The V-22 FRS squadron will receive 20 V-22 aircraft during the

first five years of the program. The first four 2d MAW CH-46E tactical

squadrons will be transitioned to the V-22 by about fiscal year 2006,

and will each receive 12 V-22s, for a total of 48 V-22 aircraft.

Ultimately, by about fiscal year 2008, the six 2d MAW tactical

squadrons that presently use the CH-46E helicopters will be re-equipped

with the V-22. These Fleet squadrons are part of Marine Aircraft Group

26 and 29, currently stationed at MCAS New River. Initiating deployment

through MCAS New River will therefore allow the DoN to take advantage

of the existing facilities and organizational structure at the site.

The V-22 FRS staff will begin training in the operation and

maintenance of the V-22 upon arrival of the first V-22, scheduled for

February 2000. The training of these personnel will be completed during

March 2001, at which time they will begin to train tactical squadron

personnel, starting with the first four of the 2d MAW tactical

squadrons that are to be equipped.

The air emissions from sources associated with construction and

operation of the proposed action would occur in counties within the

Southern Coastal Plain Intrastate Air Quality Control Region. Each of

these counties is an air quality area for purposes of National Ambient

Air Quality Standards (NAAQS) designations under the Clean Air Act

(CAA), and each has been designated as being in attainment for all

criteria pollutants (40 C.F.R. 81.334). Thus, the Federal General

Conformity Rule implementing the CAA Sec. 176, and the North Carolina

General Conformity Rule (15A NCAC 2D.1600) are not applicable.

Process

The NOI to prepare an Environmental Impact Statement (EIS) for the

introduction of the V-22 to the 2d MAW was published in the Federal

Register on August 14, 1998. Four public scoping meetings were held

between August 31, 1998 and September 3, 1998 in the four North

Carolina communities closest to where V-22 operations would occur:

Atlantic, Pollocksville, Jacksonville, and Havelock.

The public scoping meetings were attended by a total of 25 persons,

with only one formal comment offered. An additional 13 individuals and

state/local agencies submitted comments via letter, facsimile, or

electronic mail.

The Draft Environmental Impact Statement (DEIS) was distributed to

Congressional members and committees, agencies and officials of

federal, state, and local governments, citizen groups and

organizations, and other interested parties during the week of June 14-

18, 1999.

The Notice of Availability for the DEIS was published in the

Federal Register on June 25, 1999. The DEIS was subject to public

review during a 45-day public comment period. The Marine Corps also

held four public hearings during the public comment period as follows:

July 19, 1999--Jacksonville, NC; July 20, 1999--Havelock, NC; July 21,

1999--Atlantic, NC; and July 22, 1999--Pollocksville, NC.

Comments on the DEIS were received by letter, by oral statements

provided to the court recorder at the public hearings, and written

statements received by facsimile. Written and oral statements were

received from a total of 21 commentors, including federal, state,

regional, and local agencies, and private individuals. All comments

received were reviewed and addressed in the FEIS.

The FEIS was distributed for public comment on October 25, 1999.

The public comment period ended on December 6, 1999. Two comments were

received on the FEIS, and were reviewed before issuing this ROD.

Alternatives Considered

The DoN conducted a two-tiered screening process to identify

reasonable alternatives that would fulfull the purpose and need for the

proposed action. The first stage identified all DoD aviation facilities

that would meet certain fundamental criteria that are essential for the

introduction of the V-22 within the 2d NAW. The second stage of the

process screened those facilities that met the fundamental criteria

against several preferential criteria that would significantly affect

the cost and efficiency of the proposed action. The fundamental

criteria included location within 200 nautical miles (nm) (370

kilometers [km]) of the ground forces that are supported by the 2d MAW

(these ground forces are located at Marine Corps Base (MCB) Camp

Lejeune); and the presence at the facility of a Marine Aviation

Logistics Squadron (MALS).

The first criterion is based on the specified radius of action (200

nm) for the Marine Corps version of the V-22. It reflects the distance

the V-22 can travel and return, without refueling with a full load of

18 to 24 combat troops.

The second criterion is necessary because the V-22 is a new

aircraft, and there has been no opportunity to develop a maintenance

capability through a MALS. The first opportunity for development of

this capability will occur as the new aircraft is introduced to the FRS

and initial fleet tactical squadrons. It is important that the V-22

squadrons be home-based at the same air station as a MALS, to avoid

significant degradation of the maintenance, logistics, and training

support that a MALS provides. Collocation with other USMC aviation

assets would also significantly aid the integration of the new aircraft

into the overall USMC aviation team.

Under these circumstances, establishing a new MALS at a non-Marine

Corps facility would not be reasonable, as it would require the Marine

Corps to undertake a change in force structure, necessitating higher

support costs, and duplication of personnel and facilities at a time

when DoD is streamlining.

Only two sites meet both fundamental criteria: MCAS Cherry Point

and MCAS New River. These sites were then evaluated against the

preferential criteria, namely operational readiness factors such as:

the availability of adequate training areas (MTRs, LATs, TERFs, OLFs,

LZs, restricted areas and associated targets, MOAs, and Warning Areas)

within a reasonable distance of the home base; collocation of the FRS/

FREST squadron with the majority of the V-22 Fleet squadrons; available

capacity at the facility to accommodate the aircraft and personnel;

costs associated with implementation of the alternative; and, proximity

of the selected facility to the Fleet ground combat element (CGEs)

requiring rotorcraft support at MCB Camp Lejeune. While MCAS New River

is clearly the preferred alternative when evaluated against these

factors, full basing at MCAS Cherry Point or partial basing of the FRS/

FREST and six tactical squadrons at both New River or Cherry Point

would also be reasonable. Thus, the EIS addressed the environmental

impacts of these three alternatives.

Because Congress directed replacement, the No Action Alternative

was not analyzed in detail.

Environmental Impacts

The DoN analyzed the potential impacts of the selected action on 15

categories of resources, namely: airfields and airspace, land use and

coastal zone management, socioeconomics, community facilities and

services, ground traffic and transportation, air

[[Page 72322]]

quality, noise, infrastructure and utilities, cultural resources,

hazardous materials management, topography and soils, vegetation and

wetlands, wildlife, water resources, and rare and protected species.

The DoN also considered potential cumulative impacts of the proposed

action and consistency of the proposed action with federal policies

addressing environmental justice. None of the impacts of the preferred

alternative are considered to be significant. This record of decision

focuses on the issues of most concern to the public or other government

agencies.

Noise--Public comments throughout the EIS process have indicated

concern for aircraft noise, particularly overflights of national and

state parks and other natural areas. The Day-Night Average Sound Level

(DNL) was used to assess changes in the noise environment around the

air stations and landing fields. The Onset-Rate Adjusted Day-Night

Average Sound Level (Ldnmr) was used to assess changes along

MTRs, within MOAs, and within Restricted Areas/Ranges. The Sound

Exposure Level was used for representative sensitive receptor

locations.

Full basing of the V-22 at MCAS New River will result in little

change in flight patterns or noise levels in the vicinity of the air

station. The V-22 is slightly less noisy than the CH-46E helicopter,

and will conduct somewhat fewer operations than the CH-46Es. The same

will be true for many of the areas to be used for training, including

the OLFs, TERFs, MTRs and MOAs. In some areas, there will be a decrease

in the noise levels due to a decrease in the number of flight

operations projected for not only the V-22 (former CH-46E) squadrons,

but also other aircraft squadrons, as well (Executive Summary).

There will be an increase in operations and therefore noise impacts

at both OLF Oak Grove and the Albert J. Ellis Airport, in Jacksonville,

NC. However, although the area affected by 65-dB DNL or greater will

increase at both OLF Oak Grove and the Albert J. Ellis airport, it will

not extend beyond the airport property, and will not, therefore,

significantly impact people or dwellings.

Noise along the TERF routes will not change significantly. three of

the TERF routes are located almost wholly over the Croatan National

Forest and Hofmann Forest. The fourth TERF Route (Holly Shelter) is

located over forest and agricultural land. The number of operations

along the TERF routes will actually decrease. Average noise levels

along the Great White and Ellis Lake routes are anticipated to remain

the same; the average noise level on the Hofman Forest route will

decrease by one dB; and the average level on Holly Shelter route will

increase by one dB. Average noise levels would not exceed the 65 dB

standard considered to be protective of humans and wildlife along any

of the routes. While the number of operations along the MTRs will

increase (the CH-46E helicopters do not use MTRs, but the V-22 aircraft

will use these routes), these noise levels along these routes would

remain below the 55 dB DNL.

Air Quality--The proposed action and alternatives occur in air

quality areas (counties), that have always been designated as being in

attainment of NAAQS for all criteria pollutants. Given this fact, the

DoN selected the major stationary source definition from the CAA

prevention of significant deterioration program--250 tons per year

(tpy) or more of any air pollutant--that applies in these counties as

the criteria for determining the potential significance of air quality

impacts.

The DoN carefully analyzed the air quality impacts of the

replacement of CH-46E operations with V-22 operations, and has

continued to update and refine the analysis as new information has

become available.

The most recent refinement (post FEIS) of the air quality impacts

analysis included recalculating emissions attributable to CH-46E

aircraft using new gaseous and particulate emission factors developed

by the Navy's Aircraft Environmental Support Office during November and

December 1999. Initial recalculations revealed potentially significant

NOx emissions for Onslow County. However, since all

emissions from training areas were attributed in the FEIS analysis to

Onslow County, even though they actually partially occur in neighboring

counties, the NOx emissions are still considered to be

insignificant. When operational emissions are more accurately

attributed among the counties that include the areas north and west of

MCAS New River, the conclusion for all counties remains the same. The

net increase in emissions for each county within the AQCR resulting

from the proposed action and the alternatives (including operations at

outlying landing fields and training areas) would be below 250tpy for

all criteria pollutants. Thus, neither the proposed action nor any of

the alternatives would have a potential significant adverse impact on

air quality. The new emissions factors and the results of recalculation

of operational emissions are not significant new information requiring

re-publication of the FEIS.

Refinements of FEIS Tables 3.6-2; 4.6-2; 4.6-3; E-1 through E-3; E-

7; and E-9 through E-1-, incorporating the recent CH-46E emission

factors and distributing emissions among the counties that include the

areas north and west of MCAS New River, appear in Appendix A of this

Record of Decision.

Water Resources--Several agencies expressed concern over the

filling of a channelized stream in connection with expansion of the

aircraft parking apron at MCAS New River. An Army Corps of Engineers

permit will be required under Section 404/401 of the Clean Air Act for

relocating or culverting the stream channel. This channel has been

previously modified as part of the stormwater conveyance system at MCAS

New River. Mitigation for the loss of habitat will be developed as part

of the Section 404/401 permitting process. Work at OLF Oak Grove will

not directly impact any surface waters. Runoff would be carefully

controlled during construction to comply with all applicable state

policies, rules and regulations.

Wildlife, Threatened and Endangered Species--No protected

(threatened or endangered) or significantly are species are documented

as occurring within the construction areas at MCAS New River, MCAS

Cherry Point, or OLF Oak Grove. At OLF Atlantic, no federally protected

(threatened or endangered) species have been documented as occurring.

One state endangered/federal species of concern, the Carolina

goldenrod, and four state significantly rare species are present near

the runways at OLF Atlantic. While no construction would occur at OLF

Atlantic under the proposed action, downdraft from the V-22 could

damage fragile species.

The U.S. Fish and Wildlife Service's comments on the DEIS expressed

concern over low-level flight exercises, and their impact on bald

eagles, red-cockaded woodpeckers, and other federally-listed coastal

birds. They also expressed concern over colonial waterbirds and

waterfowl. V-22 flights will mainly take place along the MTRs, the

Holly Shelter, Hofmann Forest, Great White, and Ellis Lake TERF routes,

and the LAT route within R-5306A. These routes have been in use many

years. While flights along the MTRs would increase by 548 operations,

flights along TERF routes would decrease by about 979 operations as

compared to the level of CH-46E operations in recent years. Also, many

of the flights on the MTRs occur at higher altitudes (300 ft to over

1,000 ft) [91 m to 305 m] than the operations

[[Page 72323]]

along the TERF routes. The DON does not anticipate that the proposed

action will cause adverse impacts, such as changes in species

distribution or populations within these areas, because the operational

patterns and associated noise levels will be similar to current

operations.

Response To Comments Received Regarding the Final Environmental

Impact Statement

Two written letters were received. One commentor, EPA Region 4,

Atlanta restated the Agency's lack of objection to the proposal. The

State of North Carolina also submitted a comment which concurred with

the proposed action.

Conclusions

In determining where to introduce the V-22 to the 2d MAW, I have

considered the following: all DoD air facilities with an existing MALS

within the operational radius of the aircraft; environmental impacts;

operational readiness factors such as the availability of adequate

training areas within a reasonable distance of the home base and

collocation of the FRS/FREST squadron with the V-22 Fleet squadrons;

available capacity at the selected facility to accommodate the aircraft

and personnel; costs associated with implementation of the alternative;

proximity of the selected facility to the units of the Ground Combat

Element requiring rotorcraft support at MCB Camp Lejeune; and comments

received during the DEIS and FEIS public involvement periods.

After carefully weighing all of these factors, analyzing the data

presented in the FEIS along with the additional information concerning

air emissions, and considering public comments, I have determined that

the Preferred Alternative, homebasing of the V-22 at MCAS New River,

best meets the operational requirements for the V-22, and is the least

costly of the alternatives evaluated. This alternative is also the

environmentally preferred alternative. Therefore, on behalf of the

Department of the Navy, I have decided to implement the proposed action

by basing the V-22 aircraft at MCAS New River.

Dated: December 20, 1999.

Duncan Holaday,

Deputy Assistant Secretary of the Navy

(Installations and Facilities).

BILLING CODE 3810-01-M

[GRAPHIC] [TIFF OMITTED] TN27DE99.000

[[Page 72324]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.001

[[Page 72325]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.002

[[Page 72326]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.003

[[Page 72327]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.004

[[Page 72328]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.005

[[Page 72329]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.006

[[Page 72330]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.007

[[Page 72331]]

[GRAPHIC] [TIFF OMITTED] TN27DE99.008

[FR Doc. 99-33505 Filed 12-23-99; 8:45 am]

BILLING CODE 3810-01-C