[Federal Register: August 22, 2003 (Volume 68, Number 163)]
[Notices]
[Page 50756-50760]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr22au03-53]
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DEPARTMENT OF DEFENSE
Office of the Secretary
Department of Defense Missile Defense Agency Record of Decision
Supplemental Environmental Impact Statement for the Airborne Laser
Program
SUMMARY: Pursuant to Section 102(2)(C) of the National Environmental
Policy Act (NEPA) of 1969, Public Law (Pub. L.) 91-90 (as amended) and
the regulations promulgated by the Council on Environmental Quality at
40 CFR 1505.2, the Department of Defense (DOD), Missile Defense Agency
(MDA), has prepared the following Record of Decision (ROD) on the
Supplemental Environmental Impact Statement (SEIS) for the Airborne
Laser (ABL) Program. The ROD contains the statement of decision,
identifies the alternatives considered, and discusses the factors on
which the decision was based, and any mitigating measures deemed
necessary
[[Page 50757]]
to avoid or minimize environmental impacts.
FOR FURTHER INFORMATION CONTACT: Mr. K. Rock, 703-697-5506.
SUPPLEMENTARY INFORMATION:
Overview
The United States (U.S.) requires a more accurate and effective
defense against ballistic missiles by destroying them during the boost
phase, just after launch. Currently, the U.S. and its allies are
limited to defense of troops of high-value assets within a small area
of a theater of operations as the missile nears its target.
Improvements in missile range and accuracy and the rapid increase in
the number of missile-capable nations increase the threat. The ABL
aircraft is a modified Boeing 747 aircraft that accommodates a laser-
weapon system and laser fuel storage tanks. The ABL aircraft
incorporates an Active Ranging System (ARS) laser, a Track Illuminator
Laser (TILL), and a Beacon Illuminator Laser (BILL); a laser-beam
control system designed to focus the beam on target; and a High-Energy
Laser (HEL) (i.e., chemical, oxygen, iodine laser [COIL]) designed to
negate the target. The ARS is a lower-power gas laser, and the BILL and
TILL are lower-power solid-state lasers. An onboard Battle Management
Command Center provides computerized control of aspects of the laser-
weapon system, communications, and intelligence. The ABL aircraft would
fly at high altitudes and would detect and track launches of ballistic
missile using onboard sensors. During flight-test activities, active
tracking of the missile with the BILL and TILL would begin at
approximately 35,000 feet above mean sea level.
The ABL program is one of the elements of the MDA Ballistic Missile
Defense System (BMDS) that is intended to provide an effective defense
for the U.S., its deployed forces, and its friends and allies from
limited missile attack during all segments of an attacking missile's
flight. The ABL element of the BMDS is being developed to provide an
effective defense to limited ballistic missile threats during the boost
segment of an attacking missile's flight.
The Final Environmental Impact Statement for the Program Definition
and Risk Reduction Phase of the Airborne Laser Program (FEIS) was
published in April 1997, The 1997 FEIS analyzed several alternatives
for establishing the Home Base, the Diagnostic Test Range, and the
Extended-Area Test Range that are required to effectively demonstrate
the ability of the ABL system. The 1997 FEIS considered Edwards Air
Force Base (AFB), California, and Kirtland AFB, New Mexico, as possible
Home Base locations; White Sands Missile Range (WSMR), New Mexico, and
China Lake Naval Air Warfare Center, California, as the Diagnostic Test
Range; and the Western Range, including Vandenberg AFB and/or Point
Mugu Naval Air Warfare Center Weapons Division, both in California, as
the Extended-Area Test Range.
The ROD for the 1997 FEIS identified Edwards AFB as the Home Base
(to support the ABL aircraft and conduct ground-test activities of the
ABL system), WSMR as the Diagnostic Test Range, and the Western Range
as the Expanded-Area Test Range (both for supporting proposed flight-
test activities of the ABL systems). Based upon operational and
environmental concerns in that FEIS, Edwards AFB was chosen as the
primary location for conducting ground-test activities. Kirtland AFB
and WSMR were identified as alternative ground-test locations in the
event that ground testing was not possible at Edwards AFB.
Purpose and Need
The SEIS sets forth the supplemental environmental analysis
required based on changes in the proposed test program that have
occurred since the 1997 FEIS was completed and examines proposed test
activities at Edwards AFB, Kirtland AFB, WSMR/Holloman AFB, and
Vandenberg AFB. Holloman AFB is a U.S. Air Force installation that
shares most of its boundary with WSMR. The 1997 FEIS previously
examined test activities and test locations and is considered the No-
Action Alternative for this SEIS. The following is a list of new or
refined actions that require the preparation of an SEIS:
[sbull] Testing of two ABL aircraft (referred to as the Block 2004
aircraft and an improved follow-on aircraft, the Block 2008) rather
than the individual aircraft addressed in the 1997 FEIS
[sbull] Proposed ground testing that was not considered in detail
in the 1997 FEIS
[sbull] Potential effects due to off-range lasing during test
activities
[sbull] Potential effects of lowering the test altitude of the ABL
aircraft from 40,000 feet to 35,000 feet or higher
[sbull] Testing of the ARS laser, the BILL, the TILL, and the
Surrogate High-Energy Laser (SHEL) systems that were not considered in
detail in the 1997 FEIS
[sbull] Refinement of proposed ABL test activities (i.e., location
of tests, types of tests, and number of tests).
These new or refined actions will maximize testing efficiencies and
realism, and provide further clarification of the ABL weapon system
test program.
Decision
The MDA will proceed with the Proposed Action as described in the
SEIS and summarized below. Appropriate management plans and regulations
would be adhered to and suitable mitigation measures would be initiated
to minimize potential adverse effects.
Proposed Action and Alternatives
The Proposed Action is to conduct test activities of the ABL system
at test ranges associated with Edwards AFB and Vandenberg AFB,
California, and Kirtland AFB and WSMR/Holloman AFB, New Mexico. Test
activities would involve testing the laser components on the ground and
in flight to verify that laser components operate together safely and
effectively. Two ABL aircraft (Block 2004 and Block 2008) would be
utilized during test activities. Software upgrades to the Block 2004
aircraft would be tested and added to that test aircraft under a Block
2006 effort. Once upgraded with the newer operating system, the Block
2004 would be designated as the Block 2006 aircraft. Ground testing of
the ABL system is proposed at Edwards AFB. Kirtland AFB and WSMR/
Holloman AFB have been identified as alternative ground-test locations
if ground tests cannot be conducted at Edwards AFB. Flight testing is
proposed at the R-2508 Airspace Complex (Edwards AFB), Western Range
(Vandenberg AFB), and WSMR (including Federal Aviation Administration
[FAA]-controlled airspace and airspace utilized by Fort Bliss).
The ABL aircraft would be housed at an existing hanger at Edwards
AFB. Edwards AFB is also the location where the laser systems would be
integrated into the aircraft, where ground tests would occur, and is
the location for initial aircraft flight test. Although flight testing
of the ABL system would occur within the R-2508 Airspace Complex,
Western Range and WSMR, ABL test flights would begin and end at Edwards
AFB. The ABL aircraft could be used to support other BMDS incidental
exercises and deployments from other locations. These operations would
be supported by other environmental analysis as appropriate.
Ground-Testing Activities. Ground testing of the lower-power laser
systems (i.e., ARS, BILL, TILL, and SHEL) would be performed at Edwards
AFB. Ground-testing activities would be conducted from an aircraft
parking pad or the end of a runway with the laser beam
[[Page 50758]]
directed over open land toward ground targets with natural features
(e.g., mountains, hills, buttes) or earthen berms as a backstop. Lower-
power lasers could also be fired from the System Integration Laboratory
(SIL) at the Birk Flight Test Facility to range targets for atmospheric
testing. Appropriate automatic hard-stop limits and beam path
restrictors would be incorporated into the test design to ensure that
laser energy does not extend beyond natural features and backstops.
Additionally, the proposed ground test area would be cleared of
personnel prior to initiating test activities. The ground-testing
activities could also be conducted using a ground-based simulator
within Building 151 at Edwards AFB. No open range testing of the HEL
(COIL) would be conducted. Ground testing of the HEL would be conducted
at Edwards AFB within Building 151 and the SIL using a ground-based
simulator or an enclosed test cell. In the event that ground testing is
not possible at Edwards AFB, ground testing of the ARS, BILL, TILL, and
SHEL systems only could be conducted at Kirtland AFB or Holloman AFB/
WSMR.
Flight-Testing Activities. Flight tests at ranges associated with
WSMR (including FAA-controlled airspace and airspace utilized by Fort
Bliss), Edwards AFB (R-2508 Airspace Complex), and Vandenberg AFB
(Western Range) would be used to test the ARS, BILL, TILL, SHEL, and
HIL systems.
The ABL tests would include acquisition and tracking of targets at
short-range as well as high-energy tests. These tests would be
conducted against instrumented diagnostic target boards carried by
balloons, missiles, or aircraft. Missiles would incorporate a flight-
termination system, when required, to ensure that debris would be
contained on the range in the event the target must be destroyed during
flight. Proteus aircraft (a manned aircraft with a target board
attached) and Missile Alternative Range Target Instrument (MARTI) drops
(balloon with a target board attached) would be utilized for testing of
the lower-power laser systems (i.e., ARS, BILL, TILL, and SHEL). MARTI
drops would also be used for testing the HEL.
The MARTI is a diagnostic target for ABL that is similar in size
and geometry to a ballistic missile. The basic construction consists of
a shell of aluminum with aluminum fins attached, coated with paint
selected to represent the properties of the paint on ballistic missiles
(no fuel would be onboard). The balloon would rise to an approximate
height of 100,000 feet and may pass over private and BLM-managed lands,
depending on wind conditions aloft. When the balloon is over the target
drop box and at the desired altitude the MARTI payload would be
released. The MARTI would free-fall to 50,000 feet allowing
approximately 55 seconds of engagement time, allowing multiple
engagements on each drop. A nominal three engagements per MARTI drop
are planned. Approximately 60 pounds of flare attached to the MARTI
would burn during the entire ABL engagement to provide an infrared
source for the ARS. The flare would be exhausted prior to the MARTI
reaching the ground. After the ABL engagement is complete, a parachute
system would be deployed to slow down and recover the complete MARTI
unit for reuse.
During flight tests with the ABL aircraft, up to two ``chase
aircraft'' may be utilized to monitor test activities. The ABL aircraft
would fly at an altitude of 35,000 feet or higher. The laser systems
would be directed above horizontal in an upward direction to minimize
potential ground impact or potential contact with other aircraft. The
energy from the HEL would heat the missile's booster components and
cause a stress fracture, which would destroy the missile.
Missile debris would be contained within the range boundaries. The
geometry of the tests would preclude operation of the laser except at
an angle that is above the horizon. The onboard sensors and laser
clearinghouse data would be used to confirm that no other aircraft or
satellites are within the potential path of the beam, although
controlled airspace would be utilized during ABL test activities and
would be verified cleared. Airborne diagnostic testing would revalidate
and expand on-the-ground test activities, confirm computer model
predictions, and enable complete system tests.
No-Action Alternative. The No-Action Alternative is to proceed with
ABL testing activities as addressed in the 1997 FEIS and associated
ROD.
NEPA Process
The Notice of Intent (NOI) to prepare an SEIS for ABL Program test
actions was published in the Federal Register on March 22, 2002,
initiating the public scoping process. Public scoping meetings were
held in April 2002 in communities perceived to be affected by the ABL
tests. The Notice of Availability (NOA) of the ABL Draft SEIS was
published in the Federal Register in September 2002. This initiated a
public review and comment period for the Draft SEIS. Four public
hearings were held in October 2002 in the same locations as the public
scoping meetings. Comments on the Draft SEIS were considered in the
preparation of the Final SEIS. A Department of Defense NOA for the
Final SEIS was published in the Federal Register on June 16, 2003. An
Environmental Protection Agency NOA for the Final SEIS was published on
July 3, 2003, initiating an additional 30-day comment period. Comments
were considered in the decision process, culminating in this ROD.
Environmental Issues
The proposed activities addressed in the SEIS do not change the
scope, quantity, or quality of the actions analyzed in the 1997 FEIS;
therefore, only the following resources were analyzed in the SEIS for
potential impacts: airspace, hazardous materials and hazardous waste
management, health and safety, air quality, noise, biological
resources, cultural resources, and socioeconomics. Environmental issues
identified during the analysis are summarized below. The complete SEIS
is available at the following Web site: http://www.afcee.brooks.af.mil/ec/eiap/eis/abl/ABL_F-SEIS_Apr_03.pdf
.
Environmental Effects of the Proposed Action. The current regional
airspace restrictions would continue due to ABL testing activities.
Flight-testing activities occurring within FAA-controlled airspace
would be coordinated with the FAA prior to conducting test activities.
Hazardous materials used and hazardous waste generated during ABL
testing activities would be managed in accordance with applicable
federal, state, DOD, and Air Force regulations regarding the use,
storage, and handling of hazardous materials, hazardous waste, and
hazardous chemicals identified under the hazardous Materials Management
Plan. ABL testing activities would involve ground-level and in-flight
lasing. Performance of ABL testing activities in accordance with
appropriate safety measures would reduce the potential for health and
safety impacts. There would be short-term, negligible increases in
pollutant emissions due to ground- and flight-testing activities. The
minimal increases would not delay regional progress toward attainment
of any air quality standard. The negligible increases in pollutants
would not exceed the de minimus threshold of any regional air basin.
Due to the location of the ground-test activities and the altitude of
the flight-test activities, no residential areas would be exposed to
continuous noise levels exceeding 65 decibels (dBA). Because ABL
testing activities would be conducted in accordance with the applicable
regulations and existing
[[Page 50759]]
standard operating procedures for debris recovery, adverse biological
resource and cultural resource impacts are not anticipated. The
proposed ABL testing activities would require a long-term increase of
approximately 750 personnel at Edwards AFB to support the ABL program
and a short-term increase of up to 50 program related temporary
personnel during test activities. These personnel would provide a
small, positive, yet largely unnoticeable effect on population, income,
and employment in the vicinity of the installations.
Environmental Effects of the No-Action Alternative. ABL test
activities would continue in accordance with those actions addressed in
the 1997 FEIS and associated ROD. The regional airspace restrictions at
the installations would continue due to ongoing mission activities.
Management of hazardous materials and waste at the installations would
continue to in accordance with current practices. Current range safety
measures at the installations would continue with current practices.
Current range safety measures at the installations would continue to
ensure public safety and the environment are protected. Based on the
1997 FEIS, no adverse air quality, noise, biological, cultural, or
socioeconomic impacts are anticipated.
Preferred Alternative. The Proposed Action is the preferred
alternative. This would involve conducting test activities of the ABL
system at test ranges associated with Edwards AFB and Vandenberg AFB,
California, and Kirtland AFB and WSMR/Holloman AFB, New Mexico. Test
activities would involve testing the laser components on the ground and
in flight to verify that laser components operate together safely and
effectively. Edwards AFB has been selected as the Home Base and will be
the primary location for ground-testing activities. White Sands Missile
Range has been selected as the Diagnostic Test Range and the Western
Range has been selected as the Expanded-Area Test Range.
Environmentally Preferred Alternative. The environmentally
preferred alternative is the no-action alternative.
Cumulative Impacts. The SEIS found no cumulative impacts on the
human environment from proposed ABL testing activities. However, due to
the nature of test activities at the Western Range and and WSMR, other
missile test and rocket launch activities at the Western Range and
WSMR, other missile test and rocket launch activities within the ranges
to support other military and commercial functions would be occurring.
These missile tests and rocket launches have been addressed in
Environmental Assessments (EAs) and Environmental Impact Statements
(EISs) that limit the number of launches and are carefully scheduled/
coordinated to prevent conflicts with overlapping missions.
In the event that ground tests are conducted at Holloman AFB,
potential mission conflicts could occur at Holloman AFB due to parking
the ABL aircraft and associated support equipment at the western end of
the base runway. This arrangement would prevent aircraft from taking-
off or landing (i.e., require closure of the runway). In order to
avoid mission conflicts at Holloman AFB, other less frequently or
unused runways, taxiways, or aircraft apron locations could be
identified/dedicated to support the ABL aircraft during the short
period of ground-test activities. If a suitable ground-test location
that avoids Holloman AFB mission activities cannot be identified, the
ABL ground-test program would be postponed until conditions at Edwards
AFB or Kirkland AFB are suitable. In addition, during ABL flight-test
activities, conflicts with the Holloman AFB flying mission could occur
due to the ABL test activities using restricted airspace that is also
used by Holloman AFB aircraft. This potential concern would be avoided
through scheduling of test activities so that mission conflicts would
not occur.
Measures to Minimize Impacts. All practicable means to avoid,
minimize, or mitigate harm to the environment would be taken under the
selected alternative. Because of the negligible impacts that ABL test
activities would have on most environmental factors and measures
already taken by the MDA, Air Force, and Army, no separate mitigation
plan beyond adherence to applicable laws, regulations, and DOD
guidelines is deemed necessary. ABL test activities would comply with
applicable federal, state, DOD, Air Force, and Army regulations
regarding the management of hazardous materials and hazardous waste.
Evacuation plans and emergency response plans will be developed and
implemented as required. Emergency planning documents will be updated
and emergency response personnel trained and equipped prior to
introduction of new hazardous materials.
To minimize potential laser hazards, multiple controls would be
used to reduce the potential for off-range lasing and accidental lasing
of unsuspecting receptors. These controls include the use of backdrops
and enclosures, horizontal and vertical buffer zones, administrative
controls, and removal of mirror-like reflecting surfaces from the test
area. Safety interlocks associated with the laser systems are in place
to stop lasing activities in the event that the beam control steers the
beam from the anticipated beam path. Evacuations, clearances, and road
closures would be implemented to ensure worker and public health and
safety. Any debris from target missile impact areas would be recovered
in accordance with established Standard Operating Procedures (SOPs) and
regulations.
Consultation with appropriate federal and state agencies (e.g.,
U.S. Fish and Wildlife Service, SHPO) will be completed. Notice of
launch activities will be provided to any concerned agencies, local
communities, and recreational users. Efforts will be made to schedule
ABL test activities to avoid impacts on other activities at the
installations.
With regard to airspace, avoidance of the R-5119 Restricted Area
associated with WSMR would mitigate the potential impact to the J13 and
J57 high-altitude jet routes that transit through the Restricted Area.
In order to avoid operational impacts at Holloman AFB, other less
frequently used or unused runways, taxiways, or aircraft apron
locations could be identified/dedicated to support the ABL aircraft
during the short period of ground-test activities. If a suitable
ground-test location that avoids Holloman AFB mission activities cannot
be identified, the ABL ground-test program would be postponed until
conditions at Edwards AFB or Kirtland AFB are suitable.
In the event that target debris affects White Sands pupfish
habitat, specific operational steps for emergency responses would be
determined on a case-by-case basis in accordance with the WSMR Missile
Mishap Plan, Annex P to the Disaster Control Plan.
Conclusion
The refinements in the original testing program analyzed in the
SEIS serve to increase testing efficiencies and realism, and provide
further advancement of the ABL testing program.
The factors and considerations offered above justify the selection
by MDA of the Proposed Action as presented in the Final Supplemental
Environmental Impact Statement for the Airborne Laser Program.
Dated: August 18, 2003.
[[Page 50760]]
Signed By Ronald T. Kadish, Lieutenant General, USAF, Director.
L.M. Bynum,
Alternate OSD Federal Register Liaison Officer, Department of Defense.
[FR Doc. 03-21478 Filed 8-21-03; 8:45 am]
BILLING CODE 5001-08-M