HONOLULU RAIL TRANSIT PROJECT FINAL SUPPLEMENTAL ENVIRONMENTAL IMPACT STATEMENT/SECTION 4(f) EVALUATION and AMENDED RECORD OF DECISION SEPTEMBER 2013 Abstract This Final Supplemental Environmental Impact Statement/Section 4(f) Evaluation [EIS/4(f)] and Amended Record of Decision (ROD) for the Honolulu Rail Transit Project is a limited-scope document that evaluates the prudence and feasibility of the Beretania Street Tunnel Alternative and reconsiders the no use determination for Mother Waldron Neighborhood Park. This Final Supplemental EIS/4(f) was prepared to address the Judgment and Partial Injunction of the United States District Court for the District of Hawai‘i in HonoluluTraffic.com, et al., vs. Federal Transit Administration, et al., Civ. No. 11-00307 AWT. The Judgment, filed on December 27, 2012 requires the Federal Transit Administration (FTA) and the City and County of Honolulu to comply with the District Court’s Summary Judgment Order dated November 1, 2012. The FTA is the lead federal agency and the Honolulu Authority for Rapid Transportation is the project sponsor for the 20-mile rail transit project that extends from Kapolei to Ala Moana Center, via the Honolulu waterfront. This Final Supplemental EIS/4(f) addresses agency and public comments on the Draft Supplemental EIS/4(f) and documents consultation with the State Historic Preservation Officer regarding traditional cultural properties. The FTA has issued an Amended ROD, which amends the ROD previously issued in January 2011. The ROD has been supplemented with a section pertaining to this Supplemental EIS/4(f). The findings made in the January 2011 ROD, however, are unaltered, except where the Amended ROD expressly alters them. A disk containing the Final Supplemental EIS/4(f) is available at no cost. The document is available on the project website at honolulutransit.org and may be viewed at the following locations: City and County of Honolulu Municipal Library All O‘ahu public libraries Honolulu Authority for Rapid Transportation, 1099 Alakea Street, Suite 1700 Printed copies of the document are available for purchase. Contents Executive Summary ........................................................................................................ 1 1 Background, Purpose and Need ........................................................................... 7 1.1 Purpose and Scope of this Final Supplemental Environmental Impact Statement/Section 4(f) Evaluation .................................................. 7 1.2 Section 4(f) Background ............................................................................ 8 1.2.1 Section 4(f) Uses ........................................................................ 9 1.2.2 Prudent and Feasible Avoidance Alternatives .......................... 11 1.2.3 Least Overall Harm ................................................................... 13 1.3 Environmental Review Process ............................................................... 13 1.4 Purpose and Need ................................................................................... 14 1.4.1 Purpose of the Project .............................................................. 14 1.4.2 Need for Transit Improvements ................................................ 14 2 Alternatives Considered ..................................................................................... 17 2.1 Alternative Evaluation .............................................................................. 17 2.2 Description of the Project ......................................................................... 17 2.3 Content of the Final EIS/4(f) being Supplemented ................................... 19 3 Evaluation of the Beretania Street Tunnel Alternative ....................................... 21 3.1 Description of the Beretania Street Tunnel Alternative ............................ 21 3.2 Section 4(f) Properties ............................................................................. 32 3.3 Use of Section 4(f) Properties by the Beretania Street Tunnel Alternative ................................................................................................ 39 3.3.1 O‘ahu Rail and Land Parcel ...................................................... 40 3.3.2 McKinley High School ............................................................... 43 3.3.3 King Florist ................................................................................ 45 3.3.4 Temporary Occupancy .............................................................. 47 3.3.5 Summary of Use of Section 4(f) Properties by the Beretania Street Tunnel Alternative .......................................... 47 3.4 Evaluation of Feasibility ........................................................................... 47 3.5 Evaluation of Prudence ............................................................................ 49 3.5.1 Effectiveness at Meeting Purpose and Need ............................ 49 3.5.2 Safety and Operational Considerations .................................... 52 3.5.3 Social, Economic, Environmental, and Community Impacts ..................................................................................... 52 3.5.4 Costs of an Extraordinary Magnitude ........................................ 65 3.5.5 Unique Problems or Unusual Factors ....................................... 67 3.5.6 Cumulative Consideration of Factors ........................................ 67 3.6 Overall Feasibility and Prudence of the Beretania Street Tunnel Alternative ................................................................................................ 68 3.7 Least Overall Harm .................................................................................. 68 3.7.1 The Ability to Mitigate Adverse Impacts on each Section 4(f) Property (including any measures that result in benefits to the property) ........................................................ 69 Final Supplemental EIS/Section 4(f) Evaluation and Amended Record of Decision Page i Honolulu Rail Transit Project September 2013 3.7.2 The Relative Severity of the Remaining Harm, after Mitigation, to the Protected Activities, Attributes, or Features that Qualify Each Section 4(f) Property for Protection .................................................................................. 69 3.7.3 The Relative Significance of Each Section 4(f) Property........... 72 3.7.4 The Views of the Official(s) with Jurisdiction over Each Section 4(f) Property ................................................................. 73 3.7.5 The Degree to which Each Alternative Meets the Purpose and Need of the Project ............................................................ 73 3.7.6 After Reasonable Mitigation, the Magnitude of any Adverse Impacts to Resources Not Protected by Section 4(f) ............................................................................... 74 3.7.7 Substantial Differences in Costs among the Alternatives ......... 74 3.7.8 Summary .................................................................................. 75 4 Mother Waldron Neighborhood Park and Playground ....................................... 77 4.1 Description of the Property ...................................................................... 77 4.1.1 Mother Waldron Neighborhood Park Recreational Activities, Features, and Attributes Eligible for Protection under Section 4(f) ..................................................................... 80 4.1.2 Historic Elements Eligible for Protection under Section 4(f) ...... 84 4.1.3 Proposed Changes to Mother Waldron Neighborhood Park .......................................................................................... 87 4.2 Evaluation of Use of the Property ............................................................ 90 4.2.1 Evaluation of Direct Use ........................................................... 90 4.2.2 Evaluation of Constructive Use ................................................. 94 4.2.3 Coordination with Agency with Jurisdiction ............................. 103 4.3 Alternatives to an Alignment Near Mother Waldron Playground ............ 103 4.4 Summary of Use .................................................................................... 104 5 Coordination and Comment .............................................................................. 107 5.1 Agency Consultation .............................................................................. 107 5.2 Public and Agency Comments on the Draft Supplemental EIS/4(f) ....... 108 5.2.1 Summary of Comments Related to the Beretania Street Tunnel Alternative ................................................................... 108 5.2.2 Summary of Comments Related to Mother Waldron Neighborhood Park and Playground ....................................... 109 5.2.3 Summary of Revisions to this Final Supplemental EIS/4(f) in Response to Comments ...................................................... 109 5.2.4 Common Comments and Responses ..................................... 110 References .................................................................................................................. 121 List of Preparers .......................................................................................................... 125 List of Final Supplemental EIS/4(f) Recipients ............................................................ 127 Index ........................................................................................................................