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Notices Federal Register Vol. 84, No. 8

Friday, January 11, 2019

This section of the FEDERAL REGISTER Procedural Provisions of the National pilot full-rate Basic Course. Hurricane contains documents other than rules or Environmental Policy Act provide for Michael’s subsequent devastation of proposed rules that are applicable to the situations when emergency Tyndall AFB further aggravated public. Notices of hearings and investigations, circumstances make it necessary to deficiencies in the F–22 pilot committee meetings, agency decisions and make a decision and take action with production pipeline by rendering many rulings, delegations of authority, filing of petitions and applications and agency potentially significant environmental of the FTU’s facilities unusable for the statements of organization and functions are impact without observing the provisions foreseeable future. The production of examples of documents appearing in this of the CEQ Regulations (40 CFR trained and qualified F–22 pilots section. 1506.11). Specifically, the agency completely stopped for two months, should consult with CEQ about exacerbating the current pilot shortage alternative arrangements for actions that the Air Force is facing. This DEPARTMENT OF DEFENSE necessary to control the immediate situation will worsen unless the Air impacts of the emergency. Force can restart F–22 FTU full-rate Department of the Air Force F–22 Raptor: The F–22 is the United training by January 2019, because all States’ premier , which is student pilots are currently unable to Decision Memorandum Accepting essential to national security. It is a perform qualifying flights. As current F– Alternative Arrangements for the U.S. specialized ‘‘Fifth-Generation’’ fighter 22 pilots retire or separate from the Air Force’s Interim Beddown of the which introduces a large array of Service, the Air Force needs to produce F–22 Formal Training Unit at Eglin Air sensors that can detect both air and the same numbers and more to maintain Force Base, Florida ground targets and share that data with its combat readiness. AGENCY: Department of the Air Force, other U.S. and Allied aircraft. The F–22 When Hurricane Michael struck DoD. possesses a sophisticated sensor suite Tyndall AFB, the F–22 FTU had 14 ACTION: Notice of Decision allowing the pilot to track, identify, Basic Course students, two Track 2 Memorandum. shoot and kill air-to-air threats before students, and one Track 1 student being detected. Significant advances in enrolled in training. Track 2 is for SUMMARY: The Department of the Air cockpit design and sensor fusion previously qualified F–22 pilots who are Force announces its decision to accept improve the pilot’s situational no longer current, and Track 1 is for alternative arrangements approved by awareness. It is also ‘‘Low Observable,’’ current fighter pilots who have not the Council on Environmental Quality which makes it a stealth platform that flown the F–22. The Track 1 student (CEQ) for the Air Force’s interim can be extremely difficult to detect. This had completed a majority of his training beddown of the F–22 Formal Training combination means that F–22 pilots can and returned to his operational unit to Unit at , Florida. see the enemy, but cannot be seen. The complete his transition. The two Track ADDRESSES: For further information F–22’s characteristics provide a 2 students were returned to their contact: Mr. Jack Bush, 703–614–0237 synergistic effect ensuring F–22 lethality gaining operational units without or [email protected] against all advanced air threats. The accomplishing any training. The gaining SUPPLEMENTARY INFORMATION: The text of combination of stealth, integrated operational units will assume the the entire Decision Memorandum is avionics and supercruise (traveling resource burden and risk to train the provided as follows: faster than the speed of sound without one Track 1 and the two Track 2 using afterburner) drastically shrinks students. The 14 Basic Course students Decision Memorandum—Alternative surface-to-air missile engagement were approximately 90 days into their Arrangements for Interim Beddown of envelopes and minimizes enemy 160 day course. On average the students F–22 Formal Training Unit capabilities to track and engage the F– had completed only 8 of the 38 total On December 21, 2019, the 22. The combination of reduced syllabus flying sorties. The F–22 FTU Department of the Air Force (Air Force) observability and supercruise restarted limited student flying at Eglin sought Council of Environmental accentuates the advantage of surprise in AFB on December 6, 2018, after nearly Quality (CEQ) approval of alternative a tactical environment. Maintenance of two months of no flying. Flying was arrangements pursuant to 40 CFR these advantages is vital as the Air Force limited so that operations would fall 1506.11 for implementing the prepares for conflicts with near-peer within the parameters of an existing Air procedural provisions of the National nations, and would also be invaluable Force Categorical Exclusion (CATEX), Environmental Policy Act, 42 U.S.C. against others emerging threats. CATEX A2.3.31 in 32 CFR part 989, 4321, et seq. (NEPA), for the beddown Nature of the Emergency: In October Appendix B, which covers relocating a of the Air Force’s F–22 Formal Training 2018, Hurricane Michael displaced the small number of aircraft that does not Unit. This memorandum documents the Air Force’s only F–22 Formal Training significantly increase flying hours or Air Force’s decision to accept the Unit (FTU), which consists of the F–22 number of operations. The Air Force alternative procedures. aircraft in the 43rd Fighter Squadron will be unable to rely on this CATEX and its associated T–38 Talon aircraft, a beyond January 31, 2019. The delays in Background two-seat twinjet supersonic jet trainer in F–22 FTU student training will delay NEPA: NEPA requires the Air Force to the 2d Fighter Training Squadron, from the Basic Course pilots arriving at their undertake an assessment of the its home at operational units, negatively impacting environmental effects of its proposed (AFB), Florida, to Joint Base Langley- unit manning. actions prior to making decisions. The Eustis in Virginia. This temporary The F–22 is a niche fighter CEQ Regulations for Implementing the relocation disrupted the current student community due to the small number of

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primary mission aircraft inventory simulators and low observable The Air Force has preliminarily (combat-coded aircraft), just 123 total maintenance facilities, coupled with identified noise as the only projected jets. There are less than 250 Regular Air other factors such as the substantial significant environmental impact from Force F–22 pilots plus an additional 40 instructor and maintenance workforce the proposed action under the full-time Air Reserve Component F–22 made up of contractors, civilian alternative arrangements. A preliminary pilots actively serving. These numbers employees, and Air Force Reserve and noise analysis of adding the F–22 FTU include all F–22 student pilots, Guard personnel who are unable or to Eglin AFB revealed potentially operational pilots, pilots on staff and at unwilling to relocate, in part because significant impacts. The increase in school. The goal for active component they need to attend to the repair of their operations from the FTU’s aircraft will Air Force manning in operational units own homes, make nearby Eglin AFB the create a measurable increase in the 65 by June 2019 is 100%. In fiscal year (FY) only near-term alternative to quickly decibel (dB) Day-Night Average Sound 2018, the Air Force lost 19 F–22 pilots reestablish and resume the F–22 pilot Level (DNL) noise contour on the south, due to retirement, separation, or production pipeline. Further, the Air east, and west side of Eglin Main. promotion to Colonel (O–6). Force Reserve and Guard personnel Additionally, operations from the FTU’s Additionally, only 6 of the 11 F–22 make up twenty-five percent of the F– aircraft will increase the 65 dB DNL pilots (54%) eligible for the initial pilot 22 FTU’s instructor pilots. Nearby Eglin contour to the southwest and northeast bonus in FY18 accepted the bonus, AFB’s main airfield (Eglin Main) has which will impact populated areas and indicating 5 more F–22 pilots will be existing ramp and operating capacity for other noise sensitive environments leaving the Air Force soon. The small the F–22 FTU. Relocating the F–22 FTU including residential homes, schools, size of the F–22 community, combined to Eglin AFB also enables the F–22 FTU churches, recreational facilities, and with the number of pilots either lost or to use the same Special Use Airspace in other community facilities. The DNL uncommitted, demands the continued the Gulf of Mexico that it is accustomed noise contour increases suggest that the full-scale production of F–22 Basic to training in and access to its Air Force mission will have the potential to cause Course students. Reserve/Guard, civilian, and contractor significant impacts to the areas to the Purpose and Need for Agency Action: personnel in the region. Joint Base west and southwest of Eglin Main due The purpose of the proposed action is Langley-Eustis has no F–22 FTU to increases of 5 dB in the 65 dB and to enable the Air Force to quickly get instructors and lacks the robust above DNL noise contours from back to full-rate Basic Course Student, simulators that are available at Tyndall proposed F–22 operations. Transition, and Instructor Pilot AFB. Moving the SAP simulators at The FTU’s F–22 closed-pattern and production to mitigate potentially Tyndall AFB to another location is departure operations of up to 22,000 severe adverse impacts to the Nation’s estimated to take one year and cost $22 and 4,000 annual operations, military readiness. On average, the F–22 million, and the Air Force cannot accept respectively, are the primary cause of FTU trains 28 Basic Course pilots, 20 further delayed or degraded F–22 projected noise increases at and around Transition Course pilots, and 9 simulator capacity for training. Eglin Main. Tyndall AFB will not be Instructor Pilots each fiscal year. The available as a Precision Instrument The lack of ready access to F–22 need for the proposed action is to enable Approach Field for any closed-pattern simulator capacity, F–22 weapons and the Air Force to avoid further delay to operations until the Air Traffic Control tactics trainer cockpits, classified restarting F–22 FTU operations or Tower, the Radar Approach Control academic space, and F–22 qualified achieving full F–22 pilot production system, and navigational aids are capacity that will have negative impacts academic/simulator instructors at any restored. The Air Force’s current best to the entire F–22 operational force, the location other than Tyndall AFB is the estimate is that these functions will not ’ sole fully-operational 5th reason no other F–22 base, to include be fully restored at Tyndall AFB before Generation fighter. Delays to restarting Joint Base Langley-Eustis, is a July 2019. Therefore, Tyndall AFB will F–22 FTU operations will create a reasonable alternative compared to not be available as a potential bottleneck in fighter pilot production, Eglin AFB at the current time. The operational mitigation for noise from F– generate a backlog of undergraduate Academic Simulator Building (ASB) at 22 closed-pattern and approach pilot training graduates, and exacerbate Tyndall AFB serves as the hub for all F– operations until that time. Ultimately, the fighter pilot manning crisis. 22 FTU instruction—from computer any final suite of mitigation measures based instruction, academic lessons, 14 for the interim basing of the F–22 FTU Agency Proposal weapons and tactics trainer cockpits, at Eglin AFB will have to account for Proposed Action and Alternatives: and eight full mission simulators—the other relevant non-FTU aircraft The proposed action is to restore ASB support over 68% of the F–22 operations. training of replacement pilots for the F– Basic Course syllabus. The ASB Environmental Impact Assessment 22 FTU by January 31, 2019 at Eglin received minimal damage from and Alternative Arrangements: The Air AFB, Florida until the Air Force decides Hurricane Michael and has already been Force will prepare an environmental on and implements a permanent restored to full operational capability. impact statement (EIS) for the beddown. While Hurricane Michael The ASB is the cornerstone to F–22 FTU permanent beddown for the F–22 FTU, rendered many of the facilities used by operations. with scoping planned for next year. This the F–22 FTU inoperable, and total Affected Environment: Currently there EIS will inform the Air Force Strategic recovery is estimated to take between are 52,000 annual operations at Eglin Basing Process’ selection of a permanent three and five years, two very important Main. Projected annual operations for beddown location for the F–22 FTU. facilities for the F–22 FTU at Tyndall the FTU’s F–22s and associated T–38s The Strategic Basing Process typically AFB survived Michael’s destruction: could reach 31,000. Interim basing of involves the identification and The Special Access Program (SAP) flight the F–22 FTU at Eglin AFB would Secretarial approval of objective basing simulators and the low observable therefore potentially result in a 45% criteria, the rank ordering of locations coatings maintenance facility. increase to Eglin Main’s 52,000 annual based on application of those criteria These two facilities at Tyndall AFB operations, including a potential from an enterprise of locations, the are approximately 89 miles away from nineteen-percent increase in nighttime winnowing of those locations to a small Eglin AFB. The survival of the operations. number of candidate bases,

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identification of preferred and issue a Notice of Intent to prepare an Additionally, the Air Force will reasonable locations, and the final EIS as soon as possible, but no later than provide notice of these alternative selection of the basing location. The April 1, 2019. The Air Force will arrangements to the interested parties candidate bases constitute the develop a timeline for the NEPA listed in Appendix A of the 2014 Final reasonable alternatives for NEPA process, including all milestones and Supplemental Environmental Impact purposes, and once identified, allow for authorization processes, and submit the Statement. The notices will specifically the issuance of a NEPA Notice of Intent. timeline to CEQ for its review and seek input on the interim and final The Air Force cannot delay F–22 pilot approval. To ensure that NEPA beddown, and include an offer to meet production until these actions are compliance proceeds as expeditiously with Air Force representatives and CEQ completed without irreparable harm to as possible, and consistent with to discuss the alternative arrangements. the National Security Strategy posture. Executive Order 13807 on Establishing The Air Force will reconstitute and Therefore, in accordance with the Discipline and Accountability in the reconvene the Noise Committee with provisions of 40 CFR 1506.11, the Air Environmental Review and Permitting representatives of the counties and Force initiated consultation with the Process for Infrastructure, the Air Force municipalities of Walton, Okaloosa, and CEQ and requested alternative will develop a permitting timetable that Santa Rosa Counties. The Air Force will arrangements for the interim basing of identifies milestones for this use the Noise Committee to gather the F–22 FTU at Eglin AFB, Florida. environmental review and authorization information for the development of the Alternative Arrangements: The Air process. The Air Force will provide its environmental assessment and Force accepts the alternative timetable to CEQ within one month of environmental impact statement. arrangements prescribed below, as the date of CEQ’s letter and update the The Air Force will provide CEQ with approved by CEQ’s letter of December timetable monthly to ensure that the 21, 2018, for the interim beddown of the copies of any notices made in environmental review process is accordance with these alternative F–22 FTU at Eglin AFB. completed as expeditiously as is Environmental Assessment: The Air arrangements and post notices online at practicable, with a goal of completion of https://www.eglin.af.mil/. Force will undertake immediately the a Record of Decision approximately 2 preparation of an environmental years (or less) from the date of the Other Measures: The Air Force and assessment of the interim beddown. The Notice of Intent to prepare an EIS. The CEQ will convene monthly meetings to Air Force will strive to complete the Air Force’s Federal Register notice for discuss the status of the NEPA process draft EA by February 28, 2019, and issue the EIS preparation will describe these with interested components of the it for public review and comment for at alternative arrangements and their Executive Office of the President. At the least 30 days. The draft EA will identify relationship to the EIS for long-term F– conclusion of the alternative any proposed mitigation measures that 22 beddown decisions. arrangements and no later than 2 years would address any significant impacts from the date of the Notice of Intent to identified in the draft EA. The Air Force Public Participation Measures: The prepare an EIS, the Air Force will will complete the final EA and issue a alternative arrangements include the provide a report to CEQ on the use of Record of Decision no later than April following public participation measures the alternative arrangements that 30, 2019. The Record of Decision will that supplement the proposal set forth reviews the value and effectiveness of set forth the practicable mitigation in the Air Force letter. The Air Force these arrangements. The Air Force will measures that the Air Force will will provide notice of these alternative provide notice of the report in the implement for the interim beddown in arrangements and submit this Decision Federal Register, local newspapers, accordance with 40 CFR 1505.2 and Memorandum for publication in the including those specified above, and 1505.3. Federal Register within 10 business online at https://www.eglin.af.mil/. Environmental Impact Statement: The days. The Air Force also will publish Air Force will undertake an EIS for the notice of these alternative arrangements Henry Williams, permanent beddown of the F–22 FTU. in local newspapers likely to reach Civ, DAF, Acting Air Force Federal Register The EIS will include an assessment of interested parties including the Liaison Officer. the reasonable alternatives for the Northwest Florida Daily News and the [FR Doc. 2019–00052 Filed 1–10–19; 8:45 am] permanent beddown. The Air Force will Bay Beacon. BILLING CODE 5001–10–P

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