Opinion ID: 2155550
Heading Depth: 2
Heading Rank: 4

Heading: The Trial Judge's Factual Findings.

Text: Having concluded that the judge could properly make his own findings of fact and that he applied the correct legal standard to those facts, the remaining issue is whether he could find as a fact that there was a potential damage to the environment in the proposed runways project. The judge stated: If the landing thresholds and points for beginning of take-off roll are changed on runways 4L and 9 because of the extensions of runways 4L and 9, and if the STOL/GA addition is also used, I find that while some residential areas adjacent to Logan might benefit from significant reductions in noise exposure, other residential areas might suffer from significant increases in noise exposure. As all parties concede, the scope of review by this court of the judge's findings of fact is limited. This trial was governed by the new Rules of Civil Procedure, which provide that in nonjury cases [f]indings of fact shall not be set aside unless clearly erroneous. Mass. R. Civ. P. 52 (a), 365 Mass. 816 (1974). In our opinion the judge's findings were not clearly erroneous. 1. Effect of the Letter of the Secretary of Environmental Affairs. We have already noted our disagreement with Massport's contention that the judge arrived at his conclusion on environmental damage by erroneously treating the Secretary's letter as an administrative determination that an EIR was required. Nor are we impressed by the argument that the Secretary's letter was hearsay and, hence, inadmissible. This letter consists merely of the statement required by the regulations upon submission of a negative assessment form. EOEA Reg. 3.2 (c). EOTC Reg. 3.2 (c). Section 62 expressly requires the executive secretaries to promulgate regulations to carry out the purposes of this section. Broad authority is thus conferred on the executive offices limited only by the consideration that the regulations do not conflict with the statute. Scannell v. State Ballot Law Commn. 324 Mass. 494, 501 (1949). Bureau of Old Age Assistance of Natick v. Commissioner of Pub. Welfare, 326 Mass. 121, 124 (1950). Regulations aimed at assisting in the determination whether certain activities require preparation of impact statements are plainly within the scope of the act. Answer of the Justices, 364 Mass. 838, 845 (1973). Under these circumstances, we view the Secretary's comments on a negative assessment as part of the administrative record to be reviewed along with other competent and relevent evidence in connection with an agency decision not to file an EIR. It may further be considered that the judge could give the Secretary's letter due weight in light of the environmental expertise of the Secretary's office. That expertise derives from the unique role given the Secretary in administering § 62. See Boston v. Massachusetts Port Authy. 364 Mass. 639, 659, n. 35, 663, n. 42 (1974). [7] It would seem that since the Secretary's letter concluded that the runways project might cause environmental damage, that in itself would suffice to indicate that the judge's finding was not clearly erroneous. 2. Effect of Memorandum of Understanding. An expert witness for the plaintiffs testified that extension of runways 4L and 9 could have a significant effect on noise levels in certain locations by changing the landing threshold of incoming planes. For example, as a result of extending 4L, planes could land at a point farther south, meaning that planes would be at lower altitudes over South Boston during approaches to the extended 4L. There was also testimony of potential noise impact resulting from construction of the STOL runway. This would occur in the Jeffries Point area of East Boston if planes were to take off in a westerly direction, and if the STOL runway were used by turbojets taking off in either direction. Massport does not dispute these facts but relies on a Memorandum of Understanding agreed to by Massport and by the Secretary of EOTC. Under this memorandum the present threshold landing points would be retained despite the extensions of the runways. With respect to the STOL runway, the memorandum agrees that the runway will not be used by turbojets and that there will be no takeoffs to the west. These restrictions can be changed under the memorandum but, if they are, State and Federal environmental impact statements are to be filed. The judge discounted the protection afforded by this memorandum, stating that it cannot serve as a substitute for the procedural requirements of MEPA. He concluded, An impact report is offered, too late, after the concrete has hardened and the runways are in operation. The purpose of § 62 is to require that impact reports be prepared before an irreversible commitment to a project is made. Where the potential environmental damage involves the use of a project rather than its actual construction, there is of course no damage at all if the project is simply built and not used. But § 62 prescribes that the impact report must be prepared prior to construction, that being the proper time for the consideration of environmental factors. See EOTC Reg. 1.4. Were we to adopt Massport's argument on this point, an agency could postpone such considerations until construction was completed. That is not the contemplation of the statute. Again the basic question is whether the project may cause damage not insignificant to the environment. Assuming that Massport has no intention of employing the project in a harmful way, it is undeniable that the potential is there. Thus, in defining significant, the regulation states: Extremely improbable events may ... be significant if the magnitude of the possible effect is sufficiently important. EOTC Reg. 2.9. The judge stated that he considered the evidence in the context of whether there is a use of the runway extensions and new runway area which may cause damage to the environment. The judge applied the correct legal standard here and the application to the facts is not diminished by the Memorandum of Understanding. The only case cited by Massport to support its contention is Sierra Club v. Mason, 365 F. Supp. 47 (D. Conn. 1973). In that case the court did accept the defendant's assurances that a project would be carried out in a particular way so as to minimize environmental damage. However, these assurances were made as part of an EIR, the preparation of which had been ordered by the court, not (as Massport requests in this case) to avoid preparation of an EIR altogether. It follows that in this case the memorandum should be part of an EIR and could constitute important evidence that Massport had met its obligation under § 61 to minimize damage to the environment. It should not be employed, however, as a means of avoidance of completion of an EIR prior to commencing runway construction. 3. Other Evidence of Noise Impact. Even were the Memorandum of Understanding viewed as minimizing the noise impact from changing the landing thresholds on runways 4L and 9, and using the STOL runway for turbojets, other evidence exists of noise impact sufficient to indicate that the judge's views on this matter were not clearly erroneous. We do not document nor detail this evidence but it exists and was available for the judge's consideration. While the evidence, consisting of projections of various types of air traffic using the new runways and the effect on inhabited areas adjacent to the airport, is not necessarily conclusive, there is enough evidence of potential impact to establish a genuinely disputed issue, and we cannot fault the judge on his view of it. Under Mass. R.Civ.P. 52 (a), 365 Mass. 816 (1974), disputed questions of fact must be viewed in the light most favorable to the appellees. See, e.g., United States v. Disney, 413 F.2d 783, 787, n. 2 (9th Cir.1969). Moreover, the very existence of controversial and disputed factual claims of environmental effect underscores the necessity for an EIR. No Oil, Inc. v. Los Angeles, 13 Cal.3d 68, 85-86 (1974). Council on Environmental Quality, 40 C.F.R. § 1500.6 (a). Massport argues that the judge's findings are too vague and general to comply with Mass. R.Civ.P. 52 (a) which is said to require findings sufficiently detailed to permit intelligent review by this court. Massport asks for a remand for further findings. As we see it, however, in light of the low threshold of environmental damage required for an EIR, the judge's finding that some residential areas might suffer from significant noise exposure is sufficient. We see no necessity of requiring him to make specific findings of the precise increases in decibel levels in specific locations. That burden properly belongs to Massport to be discharged in the preparation of a detailed impact report.