Opinion ID: 198660
Heading Depth: 4
Heading Rank: 2

Heading: Airport Station Design Refinements and Their Effect on Transit Capacity

Text: 38 Appellants next claim that the FHWA failed to evaluate the significance and consequences of the changes in the design and function of Airport Station. In particular, appellants point to the allegedly negative effect that one change -- the elimination of the separate bus platforms for the unloading and loading of passengers -- would have on the transit capacity of the station. Appellants argue that the district court discussed MHD's consideration of the transit capacity impacts of the proposed changes but made no findings regarding the FHWA's consideration of those impacts. 39 However, after MHD specifically determined in its Environmental Reevaluation that the revised plan did not diminish transit capacity from present levels, the FHWA independently reviewed and evaluated MHD's conclusions before determining that no SEIS was necessary. Therefore, even though the district court, in finding that the impact on transit capacity was properly considered, did not specifically state that the FHWA also considered that impact, we have no quarrel with the conclusion that the FHWA's decision was not arbitrary or capricious in this regard. 40 Appellants contest this conclusion, arguing that the FHWA's approval of MHD's evaluation of environmental impacts -- on this issue and others -- was not preceded by the type of independent review and evaluation that is required by NEPA. The CEQ regulations require that federal agencies independently evaluate any environmental information submitted by applicants for possible use by the agency in preparing an EIS. See 40 C.F.R. § 1506.5(a); see also Essex County Preservation Ass'n v. Campbell, 536 F.2d 956, 959 (1st Cir. 1976) (stating that a federal agency may even allow the state agency to prepare the EIS itself so long as the federal agency furnishes guidance, participates in the preparation, and independently evaluates the statement prior to its adoption). The regulation goes on to state that it is the intent of this paragraph that acceptable work not be redone, but that it be verified by the agency. 40 C.F.R. § 1506.5(a). Appellants claim that the administrative record shows that the FHWA did not conduct such an independent review of MHD's data, analysis, and conclusions. 41 We disagree. The district court accepted the declaration from Markle and specifically found it to be credible to the extent that it describes the steps taken by the FHWA in reviewing MHD's data and conclusions. Markle's declaration describes numerous activities undertaken by FHWA staff in assessing and reviewing MHD's Environmental Reevaluation and the information upon which it was based. In his declaration, Markle states that the FHWA independently reviewed and evaluated the documents and information contained in the MHD Environmental Reevaluation. He goes on to note dozens of conversations with his staff and with MHD staff to understand fully and to clarify the information submitted by MHD. The FHWA requested and received from MHD the public comment letters submitted on the changed design, as well as MHD's responses to those letters. Markle states that he and his staff participated in staff visits to the East Boston area to examine the affected locations with respect to the proposed changes. He states that the FHWA utilized the documentation and information generated by the state environmental review process, as well as additional documentation submitted directly to the FHWA. He notes that the FHWA received and considered several letters from appellant AIR in particular. In some areas, Markle goes into more detail regarding the verification of particular pieces of data employed by MHD. For instance, Markle describes at length the analysis of shuttle bus travel times under the revised plan that was undertaken by FHWA and how that analysis utilized, but differed from, MHD's analysis. Also, Markle states that the FHWA reviewed the Airport Station design refinements and considered whether the new design incorporated sufficient room for bus bays to accommodate future projected needs. According to Markle, the FHWA concluded that MHD's analysis was reasonable and that the design provided sufficient room for future bus bays. In sum, Markle states that the 1997-98 reevaluation at issue was the most extensive reevaluation of this kind that I have been involved with during my 22 ½ years experience with the FHWA. 42 Appellants argue that the declaration submitted by Markle does not address particular issues sufficiently enough. To the extent that appellants seek a written point-by-point recitation of each piece of information utilized by MHD and the particular steps undertaken by the FHWA to verify that piece of information, appellants are correct that they have not received it. However, such a detailed delineation is not required; in fact, none of the applicable regulations require any written findings at all for the determination of whether an SEIS must be prepared. See 23 C.F.R. § 771.130(a); 40 C.F.R. § 1502.9(c). The declaration accepted by the district court to explain the FHWA's processes need only be specific enough to convince us that the FHWA complied with the regulation requiring that the appropriate work be verified and stating that it need not be redone. 40 C.F.R. § 1506.5(a). The information provided in Markle's declaration satisfies us that the FHWA conducted a sufficiently independent review. 43 3. The Elevation of Route 1A Southbound and the Effect on the Bremen Street Residences 44 Appellants next argue that the FHWA failed to evaluate the effects of raising Route 1A Southbound on the nearby Bremen Street residences located west of the proposed roadway. Appellants argue that, under the new design, Route 1A Southbound will be raised at least sixteen feet to as high as thirty-six feet above grade, increasing the noise levels on Bremen Street. Appellants point to the noise analysis performed in the 1991 FSEIS, which described the residences on Bremen Street as sensitive receptors. Appellants note that MHD's own Environmental Reevaluation conceded that Route 1A Southbound would be expected to contribute to the traffic noise levels at Bremen Street. Appellants claim that these noise effects are significant enough to require the FHWA to prepare an SEIS, but were ignored by the FHWA. 45 However, Markle's declaration clearly states that the FHWA considered the proposed changes to Route 1A Southbound and concluded: (1) that its overall elevation was not materially different from its elevation in the 1991 FSEIS, and (2) that placing the roadway section in question on a viaduct structure, rather than on retained fill, would not have a significant environmental impact. Markle also notes that the new design would move Route 1A Southbound further away from Bremen Street. Markle states that the FHWA reviewed these changes for noise and visual impacts on the Bremen Street residences and concluded that, due to the shift away from Bremen Street and the insignificant elevation difference, the impacts would not be significant. The district court accepted this evaluation, finding that it is sensible to conclude that the modest increase in height would be offset by moving the highway away from the community. See Airport Impact Relief, 45 F. Supp. 2d at 106. 46 Appellants do not dispute that this conclusion is a sensible one, but instead argue: (1) that the district court should not have accepted the Markle declaration on this point, and (2) that the declaration does not state precisely what the FHWA did to make its determinations. Regarding the first argument, we need only note our decision in Sierra Club II, in which we approved the supplementation of the administrative record through affidavits, depositions, or other proof of an explanatory nature. See Sierra Club II, 976 F.2d at 772 (quoting Arkla Exploration Co. v. Texas Oil & Gas Corp., 734 F.2d 347, 357 (8th Cir. 1984)). Appellants argue that there is nothing in the administrative record to explain, so the Markle declaration is explanatory of nothing and should not have been admitted. However, it is precisely when there is nothing in the administrative record that affidavits such as the Markle declaration are needed and allowed under Sierra Club II. See id. So long as the new material is explanatory of the decisionmakers' action at the time it occurred (which we are convinced that it is) and does not contain post-hoc rationalizations for the agency's decision (which we are convinced that it does not), the new material may be considered. See id. at 772-73. 47 Appellants' second argument boils down to a claim that Markle's declaration is not specific enough in detailing the FHWA's review process. Appellants attempt to contrast the detailed noise analysis performed in the 1991 SEIS with the less-detailed (at least as documented) analysis performed here. However, a federal agency need not perform the detailed environmental analysis of an EIS before it can determine that no EIS need be prepared. Such a requirement would eliminate the threshold requirements of the regulations in favor of a full EIS or SEIS in every case. This is clearly not the law. See 40 C.F.R. § 1502.9(c)(1); 23 C.F.R. § 771.130(a). 48 Thus, from the materials submitted by the FHWA, it is clear that the FHWA properly considered the environmental effects of raising Route 1A Southbound. Therefore, we agree with the district court that the FHWA's decision was not arbitrary or capricious in this regard either.