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Governor's Request Letter - June 13, 2003 - Part 2 - US ...

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-9-<br />

Viequesfirst flew northof Vlequesand then circledaroundthe easterncoastto<br />

approachthe rangefrom the south. AIrcrafttakingoff from carrierslocatedsouthof<br />

Vlequesuseda straIghtapproachfromthatdirection.<br />

When firing. the ships wereusuallypositionedbetweenthree and elevenmiles<br />

off the southernshore of the LlA. All ship-to-shorefiring was supposedto occurwithin a<br />

designateddanger zone. which permittedthe Navy to prohibit all civilian navigation<br />

whilethe area was In use.<br />

Historically, unserviceable mllttary munitions declared as hazardouswaste were<br />

periodically received from NSRR and from the NASD on the west end of Vie~ues, for<br />

demolition at the 08/0D area at the UA under a RCRA Interim Subpart X permit.<br />

Since 1977, four dooumentedcasesof Napalmuse havebeen recordedIn the<br />

IR. Themostrecenteventoccurredin October1992when Marineaircrewsdropped24<br />

canistersof Napalm In the LtA during routine training. The other three documented<br />

cases involved ATG bombing with MK-77 Napalm In the LIA in February 1977, July<br />

'977 I and March1979.<br />

On May 1969, Desert Test Center (OTC) Test 69-10 was conducted on the<br />

beaches of the IR (beaches not identified) to determine the operational effects of a<br />

persistent, toxic, chemIcal agent spray attack on U.S. amphibious forces and to<br />

evaluate performance of protective clothing wom by troops involved in the exercise.<br />

The testIng organization was the U.S. Army DTC, and the participating serv1ceswere<br />

the Navy and Marines, and OTC personnel. Marine A-4 aircraft equIpped with Aero 148<br />

spray tanks were utilized for the dispersal of Trt (2-ethylhexyl). Although the use of<br />

depleted uranium was not authorIzed on the Vieques ranges,at least a one-timeuse of<br />

armor piercing incendiary depleted uranium ammunition has been documented. This<br />

incident occurred in February 1999, when a Marine Corps jet fired 263 rounds of armor<br />

piercing incendiary depleted uranium ammunition in the LIA. RecordsIndicatethat only<br />

116 of the 263 rounds were recovered by ground teams followIng this event<br />

On January 20, 2000, the EPA and the Navy entered Into a 300b(h)<br />

Administrative Order of Consent (<strong>US</strong>EPA, 2000) to perform B RORA Facility<br />

Investigation (RFI) at the IR. The purpose of the RFI is to determine the nature and<br />

extent of potential releases of hazardous wastes, solid wastes, and/or hazardous<br />

constituents at or from historical facility operations. Work plans for the AFI were<br />

submitted for public review and comment during November 2002. The comments are<br />

currently under revIew by EPA.<br />

The sites Intendedto be investigatedunder the RFI include: nine Solid Waste<br />

ManagementUnits (SWMUs).three Areas of Concern (AOCS).'2 Potential Areas of<br />

Concern (PAOCs) and 23 Photo-Identified(PI) areas. Three sites: the OB/OO site<br />

(5WMU 3). the UA (5WMU 9) and the Non-ExplosiveOrdnanceFiring Range (SWMU<br />

11)wereexcluded fromtheConsent<br />

Ordersincetheywereactiverangesatthetime.<br />

~


-10-<br />

AIl the land and facilities of the DoD or Navy located at the eastern side of<br />

VieQues(identifiedas the IA) was transferredas In accordancewtth PL 106-398,as<br />

amendedby P1.107-107.on May18f,<strong>2003</strong>.whichdirects.upontenninationof Navyand<br />

MarineCorpstrainIngoperationson the island of VieQues, the Secretaryof the Navy<br />

shall transfer,withoutreimbursement,to the administrativeJurisdictIonof the Secretary<br />

of Interior, (1) the Uve Impact Area on the Island of Vieques; (2) all Depe.rtment of<br />

Defense real proper1les on the eastern side of the island that are identtfied as<br />

ConservationZones; and (3) all other Departmentof Defensereal proper1ieson "'e<br />

eastern side of the island.. The Navy has retained u,e responsibility for continued<br />

environmental site investigations and required response actjons.<br />

The Naval AmmunitionFacility(NAF)encompassedthe entirearea of Vieques<br />

west of the cIvilian zone. This area Is currently known as the Naval Ammunition<br />

Support DetaChment(NASD). The Navy used the facility for deep storage of<br />

conventionalammunition. Snips deliveringthe ordnance docked at Mosquito Pier,<br />

locatedon the northerncoast of the NAF. Fromthere, it was transportedby truck to<br />

bunkersdistributedthroughoutthe NAF. Most of the ammunitionwas destinedfor off-<br />

Islanduse by the Na"Yand the Marines. Occasionally,It was transferredoverlandfrom<br />

the NAFto the groundmaneuverarea locatedeastof the civilianzone.<br />

The NaV)'beganusingthe NASDin 1;41 as a basI for Alliedfleets duringWorld<br />

War II. Constructionof MosquitoPier and the buildingof facilitiesand magazinesfor an<br />

ammunitionstoragedepotweregenerallycompletedby 1943. The Naval Ammunition<br />

FacIlity(NAF)on Vleques (the formernameof the NASD)operateduntil 1948. wt1en<br />

ammunition was removed and the facility closed. Site operations consisted of<br />

ammunitions loading and storage. and facility end vehicle maintenance.<br />

The NASD was reactivatedin 1952 In responseto the Cuban missile crisis.<br />

Interviewsand aerial photographyanalysisindicatedthat a constructionstagingarea<br />

was establishedfrom 1962-1971near the currentlocationof the PRASApump station<br />

and Building401. In 1971.the currentmain compoundwas completedand all support<br />

operationswererelocatedto that area.<br />

Records and personnelinterviewsIndicatett'lat 8ome training occurred at the<br />

NASCfrom 1941.1948and 1962.1980&.This trainingwas conductedon the southwest<br />

portionof NASD.and consIstedof beachlandings,ambush,and assaultteam practices.<br />

The Naovyoperatedan openburnIng/opendetonation(OB/CD)areawithinthe NASDfor<br />

the disposalof unserviceablemunitionsfrom approximately1969.1980.<br />

III. InterrelatIonof Culebr8.YJequI' andAtlanticFleetWeaponsRang..:<br />

As prev'ous1ymentioned,the Navis installationson the eastern half of V1e~ue8<br />

were part of a large militarycomplexknownas the AFVr/R,headquarteredat NSRRIn<br />

Ceiba. Puerto Rico. Openedin 1941 as World War II unfolded.VJeques.along with<br />

nearby Culebra Island, seNed as the primary training ground for Marine and Army<br />

amphibious forces fom'led a1the outset of the war.


.11.<br />

Tne target complexat Culebraand nearby cays was located approximately,e<br />

mileseastwardof the NSRRon the mainiSlandof PuertoRico. The complexwas part<br />

of a systemof weaponsrangesin the CaribbeanArea seNing the training needsof the<br />

Atlantic Fleet. and at timesotherbranchesof the ArmedForcesof the UnitedStates<br />

andnavalunitsof a1lledcountries.<br />

The system of ranges consIsted of


-12.<br />

.tor.d, dr,poled of, or placid, or otherwll' cometo b,<br />

located;but doesnot includeanyconsumerproductin consumer<br />

useoranyvessel.<br />

The casesinterpretingthis definitiondo not addressthe issue of designatingtwo areas<br />

approximatelyeight mIlesapart as a singlefacility under CEROL.A§101(9). The case<br />

Jaw,drivenby allocation disputesand contributionclaims,focuseson whether, in a<br />

~rtJcular Instance. a 8f8cilitywshould be defIned by its structural elements under<br />

CERCL.A1101(9)(A) or definedas wherethe hazardou substancewas dIsposedor<br />

came to be located under CERCLA'101 (9)(8). Generally the courts have taken a<br />

commonsenseapproachto the Issue,concludingthat wherethe hazardoussubstances<br />

are not confinedto a structure.the facilit)' Is where the hazardoussubstancesnave<br />

come to be located. (SBB,e.g., Cyt6CIndustries,Inc. v. The B. F. GoodrichCo., 232<br />

F.Supp.2d 82' (S.O.Ohio,2002).<br />

EPA has, in proposing releases' for listing on the National Priorities Ust.<br />

designated as one 8lte. non-contIguousparcels. Some examples are Cannons<br />

Engineering,the AberdeenPesticideDumpsSite, and TennesseeProducts Site. In 8<br />

challengeto EPA'a listing of the TennesseeProductsSite to Include non-contiguous<br />

areas In a single site, the court held that EPA could aggregate areas If each one<br />

separatelymet the criteriafor liS'tlng.MesO'Corporationv. Brown.r.100F.3d152(D.C.<br />

Clr.1996).ThosecriteriaaresetforthIn40C.F.R.<strong>13</strong>00.425(0):<br />

(c) Methods for determining eligIbility for NPL A release<br />

may be Included on the NP1..if the release meets one of tne<br />

following criteria:<br />


;;';-"--<br />

-<strong>13</strong>-<br />

significant threat to publiChealth; and (iiQ EPA<br />

anticipatesthat It will be morecost-effectiveto use Its<br />

remedial authoritythan to use removal authority to<br />

respondto the release.<br />

The court in Mead did not addressthe requirementsof listing a site designated<br />

bye state as Its highestpriority. Rather,It focused on the requirementof CERCLA§<br />

105(a)(8)(8) that EPA, in proposingsitesfor listing on the NPL take Into accounttheir<br />

relativerisk or danger to public health or welfare or the environmentas evidencedby<br />

their meetingthe requirementsof 40 C.F.R.§300.425(c)(1)and (3).<br />

Notably, CERCLA § 105{a)(B) does not require that a facility designatedby a<br />

state as its highest priority be evaluated for its relative risk or danger to the public health<br />

or welfare or environment compared with other releases in the state. EPA'a regulations<br />

implementing the NPL listing requirements specifically reQuIres only that a state has<br />

de$ignated a release as Its highest priority. 40 C.F.R. <strong>13</strong>00.42S{c)(2).<br />

In Congressionalhearingson Culebra. Navy officials repeatedly asserted the<br />

importanceof Culebrain the Atlantic Weapons Range. In 1970 hearingson the<br />

proposedcreationof a new live-fire areaIn CulebrltaanddevolutIonof 680acresnear<br />

Dewey, AssIstant Secretar)' of the Navy Frank Sanders asserted: .Culebra is an<br />

essential part of the Atlantic Fleet Weapons Range, which provides important fleet<br />

training0 thesnipsandaircraftoftheU.S.AtlantIcFleet-Z<br />

More than central,Culebrawas regardedas Integral. In the above-mentioned<br />

1970hearings,RearAdmIralM. U. Mooredeclared:<br />

The AtlanticFleetWeaponsRangehas Its nerve center at Roosevelt<br />

Roads. The Integratedrange-and Istre.. Integrated-Is comprisedof<br />

(A) The undeM'ater range at St. Croix where advanced tests InvoMng<br />

submarinesand other ASW forces are conducted.(8) Installationsat St.<br />

Croix. RooseveltRoadsand St. ThomaswhereInfom1ationfor the control<br />

of drone targets as well as the aircraftthat are operatingagainstthem. is<br />

done. and this Is done in connectionwith missile firing at sea, (0) An<br />

extensive microwave system with links on Culebra. Luis Pe~a, St.<br />

Thomas. St. Croix, Pico del Este in Puer1oRico. Western Vleques. and<br />

RooseveltRoads.(0) Largeareasnortheastandsoutheastof PuertoRico<br />

for mIssile firings both surface-to-are and air.to-air, and fleet exercises. (E)<br />

Finally. the Inner range-the Cul'braNlequea complex. ..1<br />

I Subcommitt.. on Real Estate. Committe, on Armed SeMces. U.S. Houle of Representatlv's,<br />

Consideration of ana HearlnQson Acquisition Repon No. 102,91" Cong., 2" Soas., <strong>June</strong> 10. 1970.<br />

Ibid.(emphasisIUppll8d)<br />

j~


-14.<br />

Evenmorethan Integral, Culebrawas the key.tone of the AtlanticWeapons<br />

Range.JosephA. Grimes,SpecIalAssistanto the Secretaryof the Na"w'Ydeclaredin<br />

the 1970hearingscitedpreviously:"It II no exaggerationto lay that CulebraII the<br />

keystoneof the range,"4<br />

Culebra'sroleintheAFTR'sInnerRangeemergesevenmoreclearlywhenthe<br />

actual conduct of maneuversIs analyzed,as it mustbe. and Ipeclflcally with regard<br />

to the Navy', needfor concurrenttargetl underacceptedcarrier doctrine:<br />

Eight miles southof CulebraIsthe Islandof Vieques.It Is also a part of the<br />

inner range,and offersan amphibiouslandIngarea and marine maneuver<br />

area on the easternend. This target group is alsoreferredto as an Impact<br />

area; it Is composedof assortedvehiclesand emplacementsthat present<br />

e realisticcombatscenario.This ViequesImpactarea Is the only other airto-ground'targetfacl\lty<br />

in U1etnner range of the Atlantic Fleet Weapons<br />

Range[...J AI . final poInt. , would like to emphasIze the Importance<br />

of concurrent target activity. W'rththree air-to-ground target subareasthe<br />

east and west rangesat Culebraand the Impactarea on Vieques-tt Is<br />

possible to conduct at least three simultaneous weapons delivery<br />

operations [...] This is not simply a scheduling problem, but rather a<br />

fundamental requirementfor coordinated fleet.level operation. at the<br />

final advancedtraininglevelthat I describedearlier"!<br />

'n a wrIttenstatement beforethe RealEstate Subcommittee oftheHouseArmed<br />

ForcesCommittee,SpecialAssistantGrimesemphasizedthat Culebra'stwo air-togroundtarget<br />

sub-areas,In combjnationwith the ViequesImpactArea, .providedour<br />

carrier-basedair groupswIththree air-to-groundweapon. deliverytarget sub-areas<br />

for concurrent use without mutua' interference.ThIs In turn permits at leastthree<br />

concurrentargetactivitieswithoutdangerof In-flightaccidentsfrom overlappingflight<br />

patterns,ordnancetrajectoriesor ordnancedetonatIonpatternson the targets [...] such<br />

concurrent activity i8 essential to both the development and the evaluation of an<br />

acceptablelevelof combatreadiness...]Acceptedcarrierdoctrinefor the employment<br />

of attackaIrcraft calls fora sortie ratethatrequiresat leastthreealr-to-groundtarget<br />

lub..reas for realJ.tlc and late tralntng In coordinated ordnance delIvery. Further<br />

evIdence of the need for at least three elr-to-ground subareas at the AtlantIc FI.et<br />

Weapons Range 18the fact that during the preceding twelve months there have<br />

been 111 days on which aU three alr-to-ground lubareal were In Ilmuitaneoua<br />

u..'"<br />

Ibid. (emphull supplied)<br />

Ibid. (emphasIsluppli8d)<br />

IbId. (emphasIs supplied).


-15e<br />

The celebrationofJoint, concurrent, and Intlgr.,ed maneuve,. in Culebraand<br />

VieQuesduring 111 days certainly underscoresthe existence of a Culebra.Vleques<br />

Complexand AFTR InnerRange. Clearly,CulebreandVlequeswere part of the -same<br />

operation.,in particularbecauseair-to.groundmaneuverswere simultaneouslycarried<br />

out on the three $ubranges'ocated in Culebra and Vieques, separated by only<br />

seconds of flight time, and as part of broadermaneuversthat also encompassedthe<br />

two Islands with ship-to.shoregunfire on Culebra, Punta Flamencoand amphibious<br />

maneuverson Vleo,ues,especiallyon RedBeach. -<br />

The Commonwealthof PuertoRicohereindesignateasthefacilitypresentingthe<br />

greatestdangerto public heatthor welfareor the environmenthe areasof the Islands<br />

of VlequesandCulebraandthesurroundingkeysand waters impactedby their use for<br />

bombingand gunneryranges,munitIonsstorage,destruction,and disposal,and military<br />

training. ThIs determinationIs based on the facts that those areas had a common<br />

operator/owner(both islandswere used by the OoD or Navy or its predecessors).for<br />

commonactivities(gunneryranges,bombingranges,militarytraining, etc.), both island<br />

have a commonmilitaryhistory (Culebrawas usedfrom 1903 until 1975 and Vieques<br />

was usedfrom beforeWorldWar II until <strong>2003</strong>).andthey were used concurrentlyand In<br />

8 coordinatedmannerfor the samepurposes.<br />

The desIgnation of the affectedareas of bothislandsandthe surroundingkeys<br />

andwatersis withinthe CERCLAdefinition01facility, which Includesany areawhere<br />

hazardoussubstanceshave cometo be located. Also,the designationof bothIslands<br />

andthesurroundingkeysandwatersis in accordancewith EPA'spracticeIn listingNPL<br />

sites. EPAhas listed non-contiguousareasas one NPL sitewhere commonoperators<br />

conductedcommonactivitiesinvolvingthe sametypes of hazardousmaterials.<br />

FinallyI the designationofthe affectedareasof bothIslandsandthe surrounding<br />

keys and waters BeNesone of the primarypurposesof CERCLA: a comprehen81vI<br />

remedy whichIs co-extensivewith the entiregeographicalarea affectedby the release<br />

of hazardoussubstances.<br />

v. Referenc..:<br />

For more detailed InforrT'lationregardingthe VIeques-CulebraSuperfund SIte.<br />

pleasereferto the followingdocuments:<br />

Envfronmental Science & Engineering, Inc.. Draft Flna! Engineer/rig Evaluation<br />

CostAnalysisFormer Culebra Island, Culebra Is/and, Puel1o RIco, DERP.FUOS<br />

Project Number 102PROO5BO2,JU1y1996<br />

Romero.Barcel6 v.Brown, 11 ELR 20391 (19B1)<br />

NavalFacilitiesEngineeringCommand.EnvironmentalBaselineSuNey Vieques<br />

NavalTrainingRange.ViequesIsland.PuertoRico.April 1. <strong>2003</strong>.


i<br />

-16-<br />

Program Management Company, Environmental Baseline Survey Naval<br />

Ammunition Support Detachment, Vleques Island, Puerto Rico. <strong>June</strong> 27. 2000<br />

Draft PreliminaryRangeAssessment, April<strong>2003</strong>(EasternVleQues)<br />

A.T. Kearney.Inc.,RCM Facl/ItyAssessment (RFA),October<strong>13</strong>,1968<br />

Statementby Admiral Jay L. Johnson.Chief of Naval Operations, and General<br />

James L Jones,Commandantof the Marine CorpSj Concerning the needfor the<br />

continued training on Vleques<br />

S1atementOfMr, FrankRush-Chair, SpecialPaneton Militaryby Operations on<br />

Vieques-Beforethe Senate Committeeon ArmedSeNlceson The Reportof<br />

SpecialPanelon MilitaryOperationson Vieques,October19, 1999.<br />

Puerto Rico EnvironmentalQuality Board, UpdatedRORA Facility As$essment,<br />

September27,1995<br />

Tlppetts.Abbett-McCarthy-Stratton Engineers and Consultants. Atlantic Fleet<br />

Integrated Weapons Training Ranges (Culebra Study) I 16 October 1972<br />

<strong>US</strong>COE, Archive Search Report Findings for Culebrs Island National Wildlife<br />

Refuge,Culebra.Pue~oRico,ProjectNumber102PROO5802, February1995<br />

Inltia1Assessment Study of Naval Station Roosevelt Roads, Puerto Rico,<br />

September' 984<br />

PhaseII, RCRAFacilityAssessmentof the NavalAmmunitionFacility. VieQues<br />

Island.PuertoRlcoj October1988.

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