[Federal Register Volume 69, Number 241 (Thursday, December 16, 2004)]
[Notices]
[Pages 75374-75379]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-27598]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

[Docket No. FAA-2004-19058; FAA Order 5050.4B]


NEPA Implementing Instructions for Airport Actions

AGENCY: Federal Aviation Administration, DOT.

ACTION: Notice of availability, and request for comments on Draft Order 
5050.4B, NEPA implementing procedures for airport actions.

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SUMMARY: The Federal Aviation Administration's Office of Airports (ARP) 
is proposing revisions to its National Environmental Policy Act (NEPA) 
implementing instructions for the airport development projects and 
other airport actions under its authority. ARP has prepared a draft 
order, FAA Order 5050.4B, NEPA Implementing Procedures for Airport 
Actions. The final version of that order would replace Order 5050.4A, 
Airports Environmental Handbook, dated October 8, 1985. The proposed 
order updates and adds to the instructions in the 1985 publication and 
is consistent with FAA Order 1050.1E, Environmental Impact: Policies 
and Procedures, discussed below.
    The draft order follows the Council on Environmental Quality's 
(CEQ's) NEPA implementing regulations at 40 CFR Part 1500 et seq. It 
also follows DOT's Order 5610.C, Policies for Considering Environmental 
Impacts, and FAA Order 1050.1E, Environmental Impact: Policies and 
Procedures. Information in this Notice's ``Summary of Proposed 
Changes'' section highlights the most substantial changes ARP is 
proposing for Order 5050.4B.

DATES: ARP publishes this order for public review and comment. ARP is 
providing a 60-day review period. Commenters must file their comments 
at the following address by February 16, 2005. FAA intends to issue a 
final version of Order 5050.4B by October 31, 2005.

ADDRESSES: Commenters must provide 3 copies of their comment letters. 
Commenters must mail their letters to the Federal Aviation 
Administration (FAA), Office of the Chief Counsel, Attn: Rules Docket 
(AGC-200), Docket No. FAA-2004-19058, 800 Independence Ave., SW., Room 
915-G, Washington, DC 20591. People wishing to review comments may do 
so in Room 915-G at the above address, weekdays between 8:30 a.m. and 5 
p.m., eastern time, except on Federal holidays.
    Anyone seeking FAA's recognition of receipt of their comments must 
send a self-addressed, stamped postcard with their comments. On the 
postcard, print: ``Comments to Docket No. FAA-2004-19058.'' FAA will 
date-stamp and return the postcard to the commenter.

FOR FURTHER INFORMATION CONTACT: Please contact Mr. Ed Melisky, 
Environmental Specialist, Community and Environmental Needs Division 
(APP-600), Office of Airport Planning and Programming, FAA, 800 
Independence Avenue, SW., Washington, DC, 20591; telephone (202) 267-
5869.

SUPPLEMENTARY INFORMATION: The National Environmental Policy Act (NEPA) 
and the regulations implementing it (40 CFR 1500-1508) provide Federal 
agencies with instructions on protecting the quality of the human and 
natural environment. The law and regulations require Federal agencies 
to carefully evaluate and take into account the environmental effects 
of their actions before the agencies make their decisions on proposed 
actions having the potential to disturb the environment. Section 102(B) 
of NEPA requires Federal agencies to develop procedures in consultation 
with the President's Council on Environmental Quality (CEQ) to carry 
out NEPA and CEQ's regulations for their specific activities.
    Draft Order 5050.4B presents ARP's proposed revisions of the NEPA 
instructions in Order 5050.4A, dated October 8, 1985. Readers may not 
use

[[Page 75375]]

the draft to complete any NEPA process. They must continue to use FAA 
Order 5050.4A, which is now incorporated into FAA Order 1050.1E 
(paragraph 214. of Order 1050.1E). If conflicts between Orders 1050.1E 
and 5050.4A arise, instructions in 1050.1E supersede those in 5050.4A, 
except for instructions addressing internal FAA coordination and review 
of environmental documents. In those cases, continue to use 
instructions in FAA Order 5050.4A, paragraphs 63, 64, and 95.
    On June 8, 2004, FAA's Office of Environment and Energy issued 
FAA's revised, agency-wide, NEPA policies and procedures. FAA published 
those new instructions in Order 1050.1E, which updated FAA instructions 
last changed in October 1986. Order 1050.1E provides NEPA implementing 
instructions for all FAA organizations.
    ARP is publishing this Notice of Availability for Order 5050.4B to 
inform the public it is supplementing instructions in 1050.1E. Although 
FAA has issued agency-wide instructions, ARP has traditionally 
published Order 5050 to provide detailed instructions for airport 
actions. This ensures FAA's environmental reviewers and airport 
sponsors have NEPA instructions for airport actions that comply with 
Order 1050.1E. Readers wanting to know how other FAA organizations 
address NEPA requirements for non-airport projects should see FAA Order 
1050.1E.
    Request for Comments: ARP believes the public and other 
governmental agencies and organizations may be interested in the 
proposed changes draft order 5050.4B contains. By this Notice, ARP 
seeks comments on those changes. ARP requests that reviewers cite the 
chapter, page, and line number(s) corresponding to the text to which 
the comment applies. This will greatly facilitate ARP's review of 
comments and ensure it applies the comment to the correct text on each 
page. The following section summarizes the most substantial changes to 
FAA Order 5050.4A.
    Summary of Proposed Changes: Draft order 5050.4B, NEPA Implementing 
Procedures for Airport Actions, presents proposed revisions to current 
Order 5050.4A, Airports Environmental Handbook.
    The draft order provides information on many issues (see the Table 
of Contents), but the changes discussed here are the most important. 
Reviewers should note that the order is re-organized and includes new 
chapters, including one on Environmental Streamlining to address the 
requirements of the Century of Aviation Re-Authorization Act of 2003 
(``Vision 100'').
    Change 1. Draft Order 5050.4B proposes deleting the summary of 
requirements and procedures under special purpose environmental laws, 
regulations, and executive orders found in Order 5050.4A, paragraphs 
47.e.(1) thru (20) and 85.a. thru t. These paragraphs addressed various 
laws, regulations, and orders protecting environmental resources such 
as wetlands, Federally-listed endangered species, or historic 
properties. ARP proposes deleting the portions of these paragraphs that 
summarize requirements under other environmental review and 
consultation requirements from the Order 5050.4B to focus that Order on 
NEPA requirements. ARP is retaining from these paragraphs the impact 
intensity factors used to identify the appropriate level of NEPA 
review, as discussed below in Change 3. ARP will issue a separate 
document entitled, An Environmental Desk Reference for Airport Actions 
to ensure its staff and interested parties have information needed to 
integrate and comply with Federal environmental laws, regulations, and 
Executive Orders beyond NEPA's scope. ARP plans to provide the Desk 
Reference to its environmental staff and anyone interested in that 
information when it issues the final version of Order 5050.4B.
    In proposing to focus Order 5050.4B on policies and procedures to 
implement NEPA, ARP is adhering to the approach being used by other 
Federal agencies. ARP's review of NEPA implementing instructions 
published in the Federal Register during 2004 shows none of the six 
Federal agencies publishing NEPA instructions included substantial 
information about other Federal environmental laws, regulations, or 
Executive Orders (e.g., Endangered Species Act, Section 106 of the 
National Historic Preservation Act, etc.). ARP also is making this 
change to address recommendations it received when FAA published Order 
1050.1E for comment. Some commenters recommended that FAA delete 
Appendix A of Order 1050.1E so that 1050.1E would only provide 
implementing instructions for NEPA.
    Finally, reviewers should note that ARP will continue to integrate 
compliance with applicable environmental laws, regulations, and 
Executive orders with the NEPA process as appropriate. ARP's proposal 
to remove the summary of requirements under environmental laws and 
regulations other than NEPA from Order 5050.4B is not intended to 
reflect any lack of commitment to meet these requirements.
    Change 2. Draft Order 5050.4B provides definitions for important 
terms used during ARP's NEPA analysis for airport actions. Among other 
definitions, the draft order modifies definitions for the terms 
``approving FAA official'' and ``Federal actions.'' It also provides a 
proposed definition for the term ``reasonably foreseeable.'' Paragraph 
8.a. cites FAA Order 1100.154A, Delegation of Authority, dated June 
1990, as it relates to the approving FAA official to note that various 
environmental decisions may occur at different levels. Paragraph 8.d. 
adds the authority to authorize airport sponsor requests to impose and 
use Passenger Facility Charges. Readers should note that paragraph 8.k. 
presents a proposed definition for the term, ``reasonably foreseeable'' 
to help ARP staff better understand future actions a cumulative impact 
analysis should include.
    Change 3. Paragraph 3.c. informs the reader that ARP proposes to 
continue to use specific factors to determine the intensity of impacts 
airport development projects or airport actions may cause and the 
appropriate level of NEPA review, in addition to the significance 
thresholds in FAA Order 1050.1E., Appendix A. ARP proposes to continue 
to use these factors to supplement the thresholds in Order 1050.1E 
because they reflect ARP experience concerning resource-specific 
factors that should be considered for projects that involve large 
amounts of ground disturbance. ARP believes continued use of these 
supplemental factors will help ARP staff better determine impact 
severity and the NEPA document needed to properly address those 
impacts.
    Change 4. Paragraph 5.d. informs the reader the draft document is 
available at http://www.faa.gov/arp for anyone wishing to review an 
electronic version.
    Change 5. Paragraph 200.c. discusses how the final Order would 
relate to FAA Order 1050.1E. It notes Order 5050.4B supplements Order 
1050.1E by focusing on detailed information for airport development 
projects and airport actions.
    Change 6. Paragraph 200.d. informs the reader that Order 5050.4B 
focuses on procedures to implement NEPA. ARP will issue a Desk 
Reference for Airport Development Projects to provide ARP staff with 
the instructions they need to comply with other Federal requirements. 
Examples of those requirements include the Endangered Species Act, 
Section 106 of the National Historic Preservation Act, and various 
Executive Orders.

[[Page 75376]]

    Change 7. Paragraph 302. discusses the importance of sponsors 
meeting with FAA environmental specialists and airport planners when 
developing proposed airport actions. This effort is intended to help 
streamline the NEPA process. It should help the sponsor develop plans 
very early in the project planning phase when the widest range of 
alternatives is available to avoid, if possible, potentially 
significant adverse effects on known, specially-protected environmental 
resources (wetlands, floodplains, or historic properties, etc.). If 
avoidance is not possible, this effort is intended to help the sponsor 
design proposed actions to minimize impacts on those resources during 
the preliminary design stage when the widest array of design options 
exists.
    Change 8. Paragraph 306.b. discusses the need to consult with 
Native American and Alaska Natives according to FAA Order 1210.20, 
American Indian and Alaska Native Tribal Consultation Policy and 
Procedures, dated January 28, 2004.
    Change 9. Paragraph 403.b. states the responsible FAA official may 
categorically exclude only those actions on lists in FAA Orders 1050.1. 
The public commented on those exclusions during the review period for 
Order 1050.1E. Except for two categorical exclusions discussed in 
Changes 17 and 18, Order 5050.4B (Chapter 4, Tables 1 and 2) presents 
alphabetically-arranged annotations of the airport portions of the 
categorical exclusions published in Order 1050.1E for reference. ARP 
responsible FAA officials must cite FAA Order 1050.1E as the 
``authorization'' for the categorical exclusion, not FAA Order 5050.4B.
    To fulfill the commitment FAA made in the preamble for FAA Order 
1050.1E, ARP has provided guidance to help define when passenger 
handling facilities are not substantially larger than an existing one. 
ARP proposes using the Noise Equivalent Model (NEM) and information 
from Section 2.1 of the FAA's Addendum to FAA's Air Quality and 
Procedures for Civilian Airports & Air Force Bases handbook as 
screening tools to help make this determination. If a proposed action 
would not trigger levels stated in the NEM or in Section 2.1, it is 
unlikely the terminal expansion would cause significant noise or air 
quality problems. Of course, the responsible FAA official must also 
examine other extraordinary circumstances to ensure the expansion does 
not significantly affect other environmental resources.
    Change 10. Paragraph 403.c. explains the process that would occur 
if updates to the categorical exclusion lists are needed. If ARP 
experience suggests that other airport actions may qualify as 
categorical exclusions, it will propose those actions to FAA's Office 
of Environment and Energy (AEE). AEE, which is responsible for FAA's 
agency-wide NEPA instructions, would complete the process needed to 
determine if changes to FAA's categorical exclusion lists are 
warranted. If AEE, after public review, determines changes to the 
categorical exclusion lists in FAA Order 1050.1E are warranted, it will 
revise that order to include the new actions.
    Change 11. Paragraph 403.e. notes that some categorically excluded 
actions rarely involve extraordinary circumstances. Table 1 of this 
paragraph alphabetically lists those actions, provides an annotation 
for the action as it relates to airports, and the paragraph(s) from FAA 
Order 1050.E authorizing the actions as categorical exclusions.
    Change 12. Paragraph 403.f. identifies categorical exclusions for 
other airport actions. Table 2 of this paragraph alphabetically lists 
those actions, provides an annotation for the action as it relates to 
airports, and the paragraph(s) from FAA Order 1050.E authorizing the 
actions as categorical exclusions.
    Change 13. Readers should note that Chapter 4, Table 2, action 13 
presents a modification of categorical exclusions in FAA Order 1050.1E, 
paragraphs 309g., 310f., 310n., and 310u. The modification addresses 
proposed projects involving low emission technology equipment, 
including the Voluntary Airport Low Emission Program. ARP believes the 
cited paragraphs from FAA Order 1050.1E supports this change because 
these projects normally benefit air quality by reducing air quality 
emissions. As a result, they would qualify for a categorical exclusion 
because they do not normally cause significant environmental effects 
under NEPA (see 40 CFR 1058.4).
    Change 14. The last entry in Chapter 4, Table 2 presents a proposed 
modification of the categorical exclusion in FAA Order 1050.1E, 
paragraph 310k. The modification addresses a categorically excluded 
action affecting waters or wetlands not under Corps of Engineers 
jurisdiction (``non-jurisdictional waters''). ARP believes this 
categorical exclusion is warranted because it includes only those 
actions whose design would meet the same standards as those that would 
be authorized under the Corps of Engineers' National Permit Program 
(NWP), had the project location been under the Corps' jurisdiction. By 
definition, projects qualifying for the NWP do not normally cause 
significant environmental impacts. Therefore, they meet CEQ's 
definition of a ``categorically excluded action'' (see 40 CFR 1508.4). 
ARP wishes to include this categorical exclusion to respond to numerous 
questions on how to address airport development projects and actions 
affecting non-jurisdictional waters for NEPA purposes.
    Change 15. Paragraph 403.g. provides information on categorically 
excluding an airport development project or airport action involving a 
``special-purpose Federal environmental law.'' If the action meets both 
of the specific requirements in paragraphs 403.g.(1)(a) and (b), FAA 
may be able to categorically exclude those actions. A footnote to the 
paragraph lists those ``special purpose environmental laws'' to which 
this categorical exclusion may apply.
    Change 16. For efficiency and user reference, paragraph 403.g. 
includes Table 3. The table alphabetically lists and annotates 
extraordinary circumstances that FAA Order 1050.1E, paragraph 304 
presents. Note that ARP is proposing a footnote to this table defining 
the terms, ``dividing'' and ``disruption'' of communities. ARP presents 
this proposed definition to address numerous questions it receives on 
these somewhat ambiguous terms as they relate to coounities airport 
projects may affect.
    Change 17. Paragraph 404. recommends that the responsible FAA 
official inform the airport sponsor via documentation (via memo, or e-
mail) that FAA has categorically excluded an airport development 
project or airport action. ARP includes this instruction to facilitate 
greater awareness on the airport sponsor's part about how FAA has 
complied with the NEPA for their particular airport projects.
    Change 18. Paragraph 405. expands the list of airport actions 
normally requiring an environmental assessment (EA). ARP proposes to 
revise the list in FAA Order 5050.4A, paragraph 22 to answer many 
questions about certain airport development projects and airport 
actions it has received since publishing Order 5050.4A in 1985.
    Change 19. Paragraph 407. discusses some updated information on 
cumulative impacts and airport actions to highlight this important part 
of NEPA analysis. It discusses how to consider past, present, and 
reasonably foreseeable actions when establishing a scope of work for 
analyzing cumulative impacts.

[[Page 75377]]

    Change 20. Paragraphs 408.a.(1) through (20) discuss various 
intensity factors ARP proposes to continue to use to supplement the 
significance thresholds in FAA Order 1050.1E, Appendix 1. ARP believes 
this guidance is helpful due to the amount of disturbance airport 
development often causes. ARP believes these factors are necessary to 
aid its staff in effectively determining whether an EA or an 
environmental impact statement (EIS) is the proper NEPA document for a 
proposed airport development project or an airport action.
    Change 21. Paragraph 502, 503, and 504 provide detailed policies 
and procedures for the FAA's State Block Grant Program (SBGP). 
Paragraph 502 discusses the participants in the SBGP (paragraph 
502.c.), and the responsibilities SBGP participants must fulfill for 
non-primary airports (paragraph 502.b.). These duties include include 
all environmental requirements FAA would normally fulfill for approval 
of funding under the AIP paragraph 503). FAA's issuance of state block 
grant funds normally qualifies for a categorical exclusion. (see FAA 
Order 1050.1E, paragraph 307.o). The paragraph notes FAA does not have 
funding and approval authority for projects funded under the SBGP, so 
awarding grants for actions through the SBGP to individual airports is 
not a ``Federal action.'' For policy reasons, FAA contractually 
requires that SBGP states fulfill those environmental duties. This 
ensures that those states properly evaluate and take into account the 
potential environmental impacts resulting from specified airport 
development projects before deciding to fund those projects under the 
SBGP. Paragraphs 502.e. and 504 discuss those actions outside the SBGP 
for which FAA retains authority and, therefore, remains responsible for 
complying with NEPA and other applicable environmental laws. These 
paragraphs provide the detailed guidance promised in the preamble to 
FAA Order 1050.1E in response to comments concerning the state block 
grant program.
    Change 22. Paragraph 505b.(3) limits conditional approvals for 
airport layout plans (ALPs) when a sponsor or its consultant is 
preparing an QEA or FAA is preparing an EIS for actions at an airport. 
FAA limits such approvals to avoid the appearance that FAA is taking an 
action prematurely before it completes its required NEPA process. This 
limitation does not prevent FAA from conducting or issuing air space 
determinations to airport sponsors.
    Change 23. Paragraphs 505.e.(1) and (2) provide suggested language 
for conditional and unconditional approval letters, respectively.
    Change 24. Paragraph 508. discusses FAA's roles and 
responsibilities under NEPA when an airport sponsor wishes to 
participate in a joint-use program or program to convert a military 
airfield to civilian use program. Here, the sponsor may wish to share 
use of an airport with the military or convert an excess military base 
to a public-use airport. In these instances, FAA normally will be a 
cooperating agency for NEPA purposes.
    Change 25. Paragraph 511. provides instructions to the responsible 
FAA official on complying with Executive Order 12114, Environmental 
Effects Abroad of Major Federal Actions. The official must meet the 
Executive Order's requirements if NEPA analysis shows an airport action 
would cause a significant impact in a foreign land.
    Change 26. Paragraph 512. provides more information on complying 
with Executive Order 13175, Consultation and Coordination with Indian 
Tribal Governments. The paragraph discusses the need for government-to-
government meetings when a project may involve or affect Federally-
recognized tribes, their trust resources, or other rights. The 
paragraph also notes FAA personnel must follow FAA Order 1210.20, 
American Indian and Alaska Native Tribal Consultation Policy and 
Procedures when addressing issues with these tribes.
    Change 27. Paragraph 513. clarifies that NEPA applies to FAA 
approval of wildlife hazard management plans under 14 CFR 139.337, when 
and to the extent that FAA has discretion about methods and procedures 
to minimize environmental effects, while still assuring aircraft 
safety. When FAA lacks such discretion, there is no Federal action and 
NEPA does not apply. ARP includes this information to address the 
numerous questions it has received on approvals for these plans, which 
are important to airport operations.
    Change 28. Paragraphs 600. and 602. inform the responsible FAA 
official that documentation for categorically excluded actions is not 
needed for NEPA purposes. However, documentation is necessary to 
demonstrate compliance with ``special purpose'' environmental laws and 
to support the determination that such compliance demonstrates that 
there are no extraordinary circumstances warranting preparation of an 
EA.
    Change 29. Paragraph 601.b. suggests that the airport sponsor 
seeking FAA action to support for an airport project provide certain 
information to assist the responsible FAA official in determining 
whether the action qualifies for categorical exclusion. Accurate, 
complete information will improve the efficiency and effectiveness of 
the responsible FAA official's review of potential categorically 
excluded actions.
    Change 30. Paragraph 603. restates the recommendation in paragraph 
404. that the responsible FAA official inform the airport sponsor when 
FAA has determined a proposed action qualifies for a categorical 
exclusion.
    Change 31. Paragraph 704. discusses a suggested format for an EA 
and for use of references. Using this format should enhance document 
content and ensure the necessary interdisciplinary analyses has 
occurred and is documented.
    Change 32. Paragraph 705. discusses public review of an EA and the 
timing of an airport sponsor's submittal of the EA to FAA.
    Change 33. Paragraph 706. contains guidance for preparing a written 
re-evaluation of and supplement to an EA to comply with FAA Order 
1050.1E, paragraph 411.
    Change 34. Paragraph 801. discusses the continued use of impact 
intensity factors for EAs as established in Order 5050.4A. (See 
discussions for Changes 1, 3, and 20 for more information.).
    Change 35. Paragraph 803. provides instructions to the responsible 
FAA official for an EA when the approving FAA official selects a 
preferred alternative that differs from the airport sponsor's proposed 
action.
    Change 36. Paragraphs 804.a.-c. discuss coordinating FONSI reviews 
within FAA. Paragraph 804.a. notes when the Regional Administrator must 
sign the FONSI. Paragraph 804.b. provides instructions for seeking 
legal sufficiency review for a proposed FONSI. Paragraph 804.c. notes 
that ARP's Community and Environmental Needs Division (APP-600) is 
available to review FONSIs on request.
    Change 37. Paragraph 806. provides information the responsible FAA 
official may consider when determining if a Record of Decision for a 
FONSI (``FONSI-ROD'') is needed. A FONSI-ROD is a decision document and 
order subject to the exclusive review by U.S. Circuit Courts of Appeal.
    Change 38. Paragraph 809. directs the responsible FAA official to 
include mitigation a FONSI contains in a grant assurance or 
unconditional letter of approval for the airport layout plan. The 
paragraph also recommends that the official to track the sponsor's 
compliance with the mitigation by using an Environmental Management 
System.
    Change 39. Paragraphs 902. and 903. provide more detailed 
information on the scoping process than Order 5050.4A.

[[Page 75378]]

    Change 40. Paragraph 905. provides information on the Notice of 
Intent to Prepare an EIS (NOI). The paragraph also discusses the NOI's 
content and its publication in the Federal Register relative to the 
start of Scoping. Paragraph 905.c., provides information on notifying 
the public if the responsible FAA official determines that an EIS is 
not needed after FAA issues an NOI. ARP provides this information to 
address many questions it has received on this topic. After 
anticipating significant impacts during the scoping process, ARP has 
occasionally found that an EIS was not needed because impact analyses 
showed a proposed airport development action would not cause 
significant impacts.
    Change 41. Paragraph 906. provides expanded information on the 
responsible FAA official's duties during the scoping process. ARP 
includes this information to highlight the varied roles the official 
must fulfill during this stage of EIS preparation. Paragraph 906.b. 
states that the responsible FAA official must invite agencies having 
permitting or approval authorities to be cooperating agencies during 
EIS preparation. It may also help to improve the efficiency of the 
environmental review process. Paragraph 906.j. highlights the need for 
cooperating agencies to provide important information during scoping.
    Change 42. Paragraph 908. states that FAA's may be a cooperating 
agency In special situations addressing airport actions, FAA normally 
fulfills this role for projects involving military base joint-use or 
re-use or conveyance of Federally-owned land for airport purposes.
    Change 43. Paragraph 909. discusses using the scoping process in 
preparing an EA. Although this process is not mandatory for EA 
preparation, the Process may help the sponsor or its consultant prepare 
a thorough EA. sponsors may find scoping useful particularly for an 
action that may be highly controversial or assessing many environmental 
impacts (e.g., ``special purpose laws'').
    Change 44. Paragraph 1003. clarifies FAA, airport sponsors, and 
environmental consultant roles during FAA's EIS preparation. It 
reflects policy and procedures FAA has adopted for EIS preparation in 
response to Citizens against Burlington v. FAA, 938 F2d 190 DC Cir. 
1991. The paragraph notes that FAA decides EIS content, even through 
the airport sponsor may pay the environmental consultant costs for EIS 
preparation and a Third Party MOU. The Order provides a sample 
Disclosure statement (Appendix 2, Attachment A) environmental 
consultants must sign to be part of EIS preparation. It also includes 
examples of Memoranda of Understanding defining the roles of FAA, 
airport sponsor and environmental consultant personnel during EIS 
preparation (Appendix 2, Attachments B and C).
    Change 45. Paragraph 1004. provides more detailed guidance 
concerning limitations on sponsor activities during EIS preparation. 
ARP provides this to alert users of the Order about the requirements in 
40 CFR 1506.1 (Limitations on actions during the NEPA process) and to 
address questions ARP has received on this topic.
    Change 46. Paragraph 1005. provides instructions for adopting 
another Federal agency's EIS to streamline (i.e., improve efficiency) 
NEPA and reduce paperwork.
    Change 47. Paragraph 1007. provides re-organized and updated 
information on EIS format and content to more closely track information 
in FAA Order 1050.1E. The paragraph also includes information from the 
best practices ARP has found important in preparing EISs. Paragraphs 
1007.m and n. discuss how to use appendices and references to reduce 
the bulk in an EIS's main body. This effort promotes CEQ's intent to 
keep EISs to manageable sizes.
    Change 48. Paragraph 1101. provides added guidance for distributing 
DEISs for public and inter-agency reviews. Various paragraphs give 
addresses for the headquarters' offices of the Federal department that 
review DEISs. They also provide the number of DEIS copies to send to 
those departments. Paragraph 1101.b.(4)(c) provides standard language 
certifying that FAA has issued DEISs to the public at the same time or 
before it filed the documents with the U.S. Environmental Protection 
Agency (EPA).
    Change 49. Paragraph 1104. provides instructions for re-circulating 
DEISs. ARP provides this information to answer questions it has 
received on this topic.
    Change 50. Paragraph 1202. notes that CEQ requires that the final 
EIS (FEIS) must identify the agency's preferred alternative, unless a 
law prohibits FAA from doing so. This is to clarify that FEISs must 
contain this information, if FAA has not selected its preferred 
alternative when it prepared the DEIS. FAA Order 5050.4A noted, but did 
not highlight, this requirement of 40 CFR 1502.14(e).
    Change 51. Paragraph 1203.b.(2) requires the responsible FAA 
official to ensure the FEIS contains evidence that an airport sponsor 
has certified that the airport management board has voting 
representation from the communities where a new airport location, a 
runway, or major runway extension is proposed. Alternatively, the 
paragraph also notes the sponsor must advise these communities that 
they may petition the Secretary of Transportation about a proposed 
project. FAA includes this change to meet the requirements of 49 U.S.C. 
47106(c)(1)(A)(ii).
    Change 52. Paragraph 1203.b.(3) directs the responsible FAA 
official to ensure the sponsor has made available and provided an 
existing metropolitan planning organization in the area where the 
project is located a copy of: a proposed ALP amendment depicting a 
proposed project at a medium or large hub airport and the master plan 
describing or depicting that project. ARP includes this assurance to 
meet the requirements of 49 U.S.C. 47106(c)(1)(A)(iii).
    Change 53. Paragraph 1203.e. discusses the need for the FEIS to 
include evidence support necessary determination regarding impacts to 
jurisdictional and non-jurisdictional waters and wetlands. ARP includes 
information on non-jurisdictional wetlands to address many questions it 
has received about environmental review of impacts to these resources. 
Many people believe ARP need not address impacts or provide assurances 
for waters or wetlands not under U.S. Army Corps of Engineers 
jurisdiction. ARP notes analyses of impacts to all wetlands are needed 
to comply with NEPA and other laws and Executive Order 11990, 
Protection of Wetlands, and DOT Order 5660.1A, Preservation of the 
Nation's Wetlands.
    Change 54. Paragraph 1203.g. discusses the need for the FEIS to 
include evidence to support determinations in any ROD for proposed 
actions that affect areas inside and outside the coastal zone area, if 
project impacts affect coastal zone resources. ARP includes this 
information to address Coastal Zone Management Act (CZM Act) 
amendments. Among other things, these requirements address impacts to 
coastal zone resources, even if a project occurs outside CZM 
boundaries.
    Change 55. Paragraphs 1203.g.(1) and (2) discuss the evidence that 
must be included in the FEIS to support determinations in a ROD 
regarding Subparts D and C of 15 CFR, Part 930 (regulations 
implementing the CZM Act). Paragraph 1203.g.(1) provides consistency 
requirement information for a project FAA approves, such as a sponsor's 
request for FAA approval of an ALP change. Paragraph 1203.g.(2) 
provides consistency information for projects FAA itself undertakes, 
such as

[[Page 75379]]

installing a NAVAID in the coastal zone. ARP includes this information 
to highlight the different CZM Act requirements that may apply to an 
ARP action.
    Change 56. Paragraph 1204.a. discusses the various approval levels 
ARP follows to meet FAA Order 1100.154A, Delegation of Authority, dated 
June 12, 1990. The Order delegates approval authority for certain 
airport projects from the FAA Administrator to the Associate 
Administrator for Airports (ARP-1). ARP-1 may further delegate that 
authority, per Order 1100.154A, as paragraph 1204.a. explains.
    Change 57. Paragraphs 1205.d., e., and f. provide updated 
information on the number of copies of the FEIS the responsible FAA 
official must send to the U.S. EPA (EPA) regional office reviewing an 
ARP project and to EPA and the Department of the Interior headquarters.
    Change 58. Paragraph 1206. discusses more detailed information 
concerning the process for referring EISs to CEQ under 40 CFR 1504. ARP 
includes this information to ensure personnel knew about this little 
used, but important CEQ NEPA regulation.
    Change 59. Paragraph 1301.g. requires FAA to ensure the agency and 
the airport sponsor complete required mitigation. The paragraph 
suggests using an Environmental Management System (EMS) to track 
mitigation compliance. ARP includes EMS tracking to comply with EO 
13148, Greening the Government Through Leadership in Environmental 
Management.
    Change 60. Chapter 14 provides guidance on the longevity of EAs and 
EISs, supplementing those documents, written re-evalautions, and 
tiering. It also notes that FAA is applying the same standards it uses 
for EISs to EAs. The paragraph also notes that the responsible FAA 
official may use his or her best professional judgment when determining 
the need for a written re-evaluation. ARP provides that information to 
address questions about EA longevity and to comply with FAA Order 
1050.1E, paragraphs 410 and 411. ARP agrees that accurate EAs and EISs 
are needed to ensure approving FAA officials have the best available 
information when making decisions on proposed airport development 
projects and airport actions.
    Change 61. Paragraph 1404. provides instructions on applying NEPA 
to emergency situations. ARP includes this information to ensure order 
users are aware of this requirement.
    Chapter 62. Chapter 15 provides information on streamlining the EIS 
process for certain airport projects. This information addresses 
requirements of Century of Aviation Reauthorization Act also known as 
``Vision-100.'' Among other things, Vision-100 requires streamlining 
the environmental process for airport capacity projects at congested 
airports. These are airports that account for at least 1% of all 
delayed aircraft operations in the nation. Vision 100 also applies to 
airport safety and airport security projects throughout the nation, 
regardless of their delay status.
    Change 63. Appendix 1 includes updated flowcharts on completing the 
NEPA processes for categorical exclusions, EAs, FONSIs, EISs, and RODs.
    Change 64. Appendix 2 includes information on the third-party 
contracting process FAA uses to select contractors to help the agency 
prepare EISs, as explained in Change 44. It also includes a sample 
Disclosure Statement and two types of Memoranda of Understanding 
describing the respective duties of FAA, the airport sponsor, and the 
FAA-selected consultant.
    Change 65. Appendix 3 provides an example of a ``short-form'' EA. 
ARP provides this as one example of how to prepare an EA that meets 
CEQ's recommended length for an EA (i.e., maximum of 15 pages).
    ARP encourages full public participation during this comment 
period. ARP will consider filed comments on the draft order as it 
prepares the final Order 5050.4B.

    Dated: December 13, 2004.
Dennis E. Roberts,
Director, Office of Airports Planning and Programming.
[FR Doc. 04-27598 Filed 12-15-04; 8:45 am]
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