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