* Designates Recommended Alternative Segments.

The No Action Alternative would maintain Saddle Road as it is today. It would include existing maintenance efforts with some possible surface rehabilitation activities. It would not enhance safety, eliminate roadway deficiencies, improve level of service, improve operational function, accommodate future traffic levels, nor reduce or eliminate conflicts between motorists and PTA military operations.

Following the issuance of the Saddle Road Draft EIS (DEIS), the public hearing, and the close of the public comment period, and in consideration of the scientific and technical information developed for the project, as well as public input received, the SEE Team identified Segment W-3 (Section I), PTA-1 (Section II), EX-3 (Section III), and E-3 (Section IV) as their recommendation to the FHWA for improving Saddle Road. The FHWA has adopted these four segments as their Recommended Alternative (ref: Figure 2.2.1). The following text summarizes the primary reasons for the selection of these four segments. The No Action Alternative was not selected because it would not satisfy the project's purpose and need.

One of the most notable considerations in the selection of W-3 as the Recommended Alternative was its efficiency for serving cross-island traffic because the largest percentage of motorists using Saddle Road are coming from or going to Kona. In terms of overall time and fuel savings, W-3 would result in greater benefits to Saddle Road motorists and the community as a whole.

Based on the information available on terrain and geology, and the shorter length of W-3 over W-2, the FHWA determined that W-3 would prove less costly to build than W-2, if detailed design cost estimates were conducted. In addition, traffic operations would be more efficient on W-3 because of less steep grades.

The FHWA also considered public opinion. With the proximity of W-2 to Waiki'i Ranch, community members expressed concern that the siting of Saddle Road on the W-2 alignment would result in noise pollution and would impact the commercial viability of their properties. In consideration of community benefits, construction cost savings, and other reasons noted, W-3 was selected as the recommended alternative for Section I.

The abandoned existing Saddle Road serving Waiki'i and other local access needs would become the responsibility of Hawai'i County to maintain. A modern intersection connecting the existing road to W-3 would be provided at MP 42.

The most notable consideration in the selection of PTA-1 is that EX-2 would not completely satisfy the project purpose and need because no improvement in the quality and safety of military training would be anticipated and existing conflicts between the military and the public would be only partially removed. In contrast, either PTA-1 or PTA-3 would completely satisfy the project purpose and need. Both of these alignments would also result in substantial impacts by direct modification of Palila Critical Habitat. However, as stated by the U.S. Fish and Wildlife Service (USFWS) in the Final BO, the mitigation measures built into the project design will offset the modifications being made to Palila Critical Habitat and enhance the likelihood of survival and recovery of the Palila. Palila is the lone surviving Finch-billed Honeycreeper found on Hawai'i.

The most notable differences between PTA-1 and PTA-3 is that PTA-1 is shorter, provides a more direct alignment, would be less costly, and would impact less Palila Critical Habitat. In consideration of the mitigation measures developed for the Palila and the other reasons stated, PTA-1 was selected as the recommended alternative for Section II.

Ownership of the existing Saddle Road in this Section would be transferred to the military as required.

As a result of much discussion and investigation of potential alternative routes through Section III, it was concluded that all routes other than EX-3 would provide notably greater impacts to adjacent resources. Segment EX-3 was selected as the recommended alternative for Section III.

While E-3 would result in the fill of more wetland resources, much of this wetland area is in degraded habitat. In consideration of the native habitat disturbed, the impacts to biological resources were determined to be roughly equivalent for E-3 and EX-4A. EX-4A would cut through the community of Kaumana and would require the acquisition of residential property and the relocation of 11 to 28 households. It would approach or exceed the national noise abatement criteria at 29 residences, and would cause a substantial increase in noise at 18 additional ones. In addition, when considering initial construction and long-term motorist operating costs, EX4A would be the more costly segment over the life of the project. The FHWA also considered public opinion. Letters from Kaumana residents and the Kaumana City Association expressed support for the selection of E-3 and opposition to EX-4A. For these reasons, E-3 was selected as the recommended alternative for Section IV.

In Sections III and IV, the fill of jurisdictional wetlands will be required for the construction of proposed Saddle Road improvements. To determine the Least Environmentally Damaging Practicable Alternative (LEDPA), to address concerns and requirements of the EPA, the USFWS, and the USACE, and to provide a wetland mitigation proposal, a 404(b)(1) Analysis Report was prepared for this project. The 404(b)(1) Analysis Report was prepared in accordance with the "Guidance Papers to Facilitate the Implementation of the Memorandum of Understanding for the NEPA and Section 404 Integration Process for Surface Transportation Projects in Hawai'i" (June, 1994) and the 40 CFR Part 230 Section 404(b)(1) Guidelines for Specifications of Disposal Sites for Dredged or Fill Material. The results of this analysis identified Segment EX-3 as the LEDPA within Section III and E-3 as the LEDPA within Section IV.

The following paragraphs briefly summarize the key components of the project's development, emphasizing those actions related to the agency and public involvement process. The input received during this process was voluminous and extremely varied in content regarding issues and concerns. For this reason, the reader is referred to Part II of the FEIS for additional, more detailed information.

To incorporate input from participating agencies throughout the project development process, a Social, Economic, and Environmental Team (SEE Team) was established in 1990. The SEE Team is comprised of representatives from each participating agency (ref: FEIS - Part II, 1.2.2). A series of SEE Team meetings were held from January 1990 to March 1998 (ref: FEIS - Part II, 1.1).

In May 1993, various citizens of the County of Hawai'i were invited by Senator Inouye to form a task force for the project. The Saddle Road Community Task Force (SRTF) was formed to solicit and disseminate information about the project within the community (ref: FEIS - Part II, 1.2.1). A series of SRTF meetings were held from June 1993 to July 1999.

From January 1994 to the present, numerous one-on-one meetings were held upon request with interested individuals, agency representatives, and public and private organizations to provide project briefings and/or receive input on project issues and concerns. These included groups such as community councils, community associations, chambers of commerce, and clubs.

A Letter of Intent was sent to all interested parties, agencies, and organizations, and a Notice of Intent was published in the Federal Register, March 1994 (ref: FEIS - Part II, 1.4.1). Notifications of public scoping meetings were mailed in April 1994 (ref: FEIS, Part II, 1.4.1) and Public Scoping Meetings were held in Hilo (May 10), Kona (May 11), and Waimea (May 12). An Interagency Scoping Meeting was held in Hilo (May 10).

In July 1994, project information centers were maintained in Hilo and Kona for several months to make project information available to interested persons and to receive comments. Notices of these centers were published in Hilo and Kona newspapers.

Newsletters were prepared and distributed to a mailing list of over 1,500 people. The first was published in November 1994. To report on the progress of the project, four additional newsletters were subsequently published and distributed, from November 1996 through August 1999 (ref: FEIS - Part II, 1.5).

In October 1995, pursuant to State law, an Environmental Assessment and Notice of Preparation

of an EIS was submitted to the State of Hawai'i Office of Environmental Quality Control (ref: FEIS, Part II, 1.4.2). This notice was published in their environmental bulletin which is monitored regularly by interested agencies, organizations, and the public.

In May 1996, sixteen invitations were extended for Cooperating Agency status on the project. Only three agencies acknowledged receipt of the invitation.

A Preliminary DEIS was distributed to all participating, cooperating, and coordinating agencies for review and comment. Two widely-attended interagency meetings were held to discuss issues, impacts, and mitigation as presented in the Preliminary DEIS; one in October of 1996 (prior to the distribution of the Preliminary DEIS to disseminate findings), and another in April 1997 for review and comment on the document prior to publication.

A formal public comment period began with the issuance of the DEIS in October 1997 and the publishing of the Notice of Availability in the Federal Register and Hawai'i Office of Environmental Quality Control Bulletin (ref: FEIS - Part II, 2.1). Two public hearings were held (Waikoloa - Thursday, December 11, 1997 and Hilo - Saturday, December 13, 1997) during this comment period to provide information and solicit formal comments on the project. The hearing transcripts are included in the FEIS (ref: Part II, 2.2). Approximately 100 members of the public provided written comments on the DEIS; roughly 20 individuals presented oral comments at the Waikoloa hearing and approximately 30 individuals presented oral comments at the Hilo hearing. All public and agency comments are included in their entirety in this FEIS (ref: Part II, 2.2, 3.2, and 4.2). A summary of agency comments and associated responses has been prepared and included in the FEIS (ref: Part II, 3.1). Public comments were also summarized, resulting in nearly 320 representative comments (ref: FEIS - Part II, 4.1). The public and agency comments were too varied and numerous to further summarize within this Executive Summary. In response to agency and public comments received on the DEIS, the FHWA project team undertook additional studies and analyses as warranted, prepared responses, and incorporated additional information into the FEIS.

In the summer and fall of 1998, numerous meetings and exchange of correspondence occurred between FHWA and the USFWS, the EPA, and numerous other agencies to resolve issues related to section 7 consultation, wetlands mitigation and the LEDPA, and Palila mitigation. The results of this consultation and coordination are contained in the USFWS Final Biological Opinion (BO), 404 (b)(1) Analysis Report, and the Palila MOU, respectively (ref: FEIS - Part III).

If approved, the ROD would be issued in the summer of 1999. Assuming that the Recommended Alternative is confirmed in the ROD, roadway design could begin immediately following the issuance of the ROD. Surveying, mapping, and Unexploded Ordnance clearance could begin in early fiscal year 2000 as soon as funds are available and phased construction could begin as early as late 2000, if funds become available. An estimated implementation schedule for the complete project is provided in Chapter 1 (ref: Table 1.8.1, Estimated Implementation Schedule).

Saddle Road provides access to land uses along its corridor, including PTA, the astronomical observatory complex on Mauna Kea, Waiki'i Ranch, Kaumana, the Mauna Kea State Recreation Area, and major hunting areas. The road is also an important cross-island link for business travel, the transport of goods and services, tourism, recreation, shopping, and commuting. Saddle Road is not used regularly by bicyclists or pedestrians because of the substantial change in elevation along its length, foggy and rainy weather, and the lack of adequate shoulders.

Hunting is a long-standing tradition in Hawai'i. Introduced pigs, sheep, goats and a variety of gamebirds are hunted in public hunting units accessed by Saddle Road on the PTA, and nearby state hunting areas. Many areas have limited access because of rugged terrain, sparse road networks, or military limitations.

Much of the Saddle Road corridor is rural in nature. Figure 3.1.1, Existing Land Use, depicts general land uses within the study corridor. The primary land use in Section I is ranching. The local population is clustered in Waiki'i Ranch, a residential development with agricultural lots located along the existing Saddle Road alignment. Recreational resources include the Kilohana Girl Scout Camp, and limited hunting lands.

Land uses within Section II are primarily characterized by military use of the PTA. Barracks and other base housing facilities support the military personnel training and working at the PTA. Mauna Kea State Park, the only public park within the study area, offers opportunities for camping, picnicking, hiking, and birding. Public areas for hunting are also available. Section II includes lands set aside for the Hawaiian Home Lands Program (HHLP), which created a land reserve available to qualifying Native Hawaiians for residential, agricultural/farming, and pastoral/ranching homesteads.

The primary land use within Section III is State Conservation District open space; ranching activities are also present. No notable population is present. As in Section II, lands are set aside in this area for the HHLP. Designated hunting areas are located within this section.

The primary land use within Section IV is farming; single-family residential development characterizes a portion of the existing Saddle Road corridor. Population within Section IV is clustered in upper Kaumana, an older suburb of Hilo. Public recreational resources include hunting lands.

Three categories of valuable agricultural land were assessed for the State of Hawai'i: Prime Agricultural Lands, Unique Agricultural Lands, and Other Important Agricultural Lands. Prime Agricultural Lands are present within Section IV of the study corridor, Other Important Agricultural Lands are present within Sections I and II.

Section 4(f) properties are afforded protection under 49 U.S.C. Section 303. Such properties include any publicly owned land of a public park, recreation, or wildlife and waterfowl refuge of national, State, or local significance, or land of an historic site of national, State, or local significance. Properties in the vicinity of the proposed project include Mauna Kea State Park, Kipuka 'Ainahou Nene Sanctuary, and 19 National Register of Historic Places (NRHP)-eligible archaeological sites. No use of these Section 4(f) properties occur within any of the action or no-action alternatives.

Ambient noise levels along Saddle Road within the project corridor are generally low, reflecting the light traffic volumes on Saddle Road and the undeveloped and unpopulated nature of much of the landscape. Noise levels in the vicinity of PTA can be periodically high in association with military training activities and low-flying aircraft.

The Island of Hawai'i supports two distinct regional economies. The regional economy in East Hawai'i is centered in Hilo, the seat of island government and home to the University of Hawai'i at Hilo and Hawai'i Community College. Historically, the economy on the east side was based on agriculture, with sugar as the main crop. A steady decline in the sugar industry over the past 20 years resulted in the closure of the last commercial operations in 1996.

The regional economy on the west side of the island is primarily based on tourism. Overall, economic activities related to tourism have been rapidly expanding since 1980 and are expected to continue to expand into the next century. A declining economy in East Hawai'i has resulted in an increasing number of individuals seeking employment in tourism-related activities in West Hawai'i.

There are three routes between Hilo and Waimea/Kailua-Kona. The northern route is SR 19, north from Hilo through Waimea and continuing on to Kailua-Kona. The southern route follows SR 11 southwest from Hilo through Volcanoes National Park. The third route is Saddle Road. Table S.4, Estimated Travel Distance, compares the distance between major destinations for each route.

Saddle Road is the shortest route between East and West Hawai'i, especially between Hilo and the Kona Coast. Although Saddle Road is currently narrow, with steep grades and sharp curves, travel time is still as low or lower than for the other two routes.

Total employment on the island has been expanding since 1980. The average annual employment growth rate for 1980 to 1994 was 5.1 percent on the west side compared to 1.8 percent on the east. Growth rates in job creation have been declining in East Hawai'i, while increasing in West Hawai'i. Income trends parallel those of job creation growth rates. More workers in East Hawai'i are seeking job opportunities in West Hawai'i.

Roughly 1.1 million tourists visited the Island of Hawai'i in 1995, with approximately 33 percent visiting the east side of the island and 67 percent visiting the west. Because of the condition of Saddle Road, automobile rental agencies restrict or prohibit use of their vehicles on the road, discouraging some tourists from including cross-island trips in their itineraries.

People first arrived in the Hawaiian archipelago probably sometime between A.D. 300 and 600. The earliest inhabitants, probably departing from the Marquesas Islands, brought pigs, dogs, fowl, and many of the cultivated plants important to their subsistence economy including coconut, breadfruit, and taro. The early society is presumed to have been structured around the Polynesian concept of hereditary chieftainship, where the difference between the commoner and chief was not nearly as great as it would become in later Hawai'i culture.

Native Hawaiians relied on the environment for survival. They recognized and practiced respect for a hierarchy of life based on regeneration and protection of food sources. They prioritized the non-disturbance of seed producing forest areas to promote new growth. To the Native Hawaiians the older trees are primary; those who use these trees as residence or food source are secondary. For this reason, mamane forest and kipuka are regarded as having special value to native Hawaiians. The mountains or land, water, and sky were a necessary part of the life cycle. The most prominent, celebrated place of religious importance within the project corridor is Mauna Kea, a natural land feature.

Hawai'i, the largest island of the Hawaiian Archipelago, covers an area of approximately 16,360 km². The island was formed by the activity of five volcanoes. The proposed project is located along the southern flank of Mauna Kea Volcano. The Saddle, located between Mauna Kea and Mauna Loa volcanoes, was formed by lava flows from both volcanoes which coalesced and formed a broad upland apron. Mauna Kea has not erupted in historical time, and is considered dormant. Mauna Loa remains active and is responsible for recent lava flows visible from the road.

Ground elevations along the study corridor range from 390 m above mean sea level, occurring in Section IV, to 2055 m, occurring in Section II. The elevational differences and the open vegetation through the Saddle provide panoramic views of distant vistas and interesting geologic features. Rolling hills, cone shaped pu'u (cinder cones), broad valleys, and mountains are examples of the diverse landforms found within the corridor.

In Section I, the landscape consists of a predominantly pastoral setting with few built features. The section is characterized by a broad, open grassland used for grazing. The existing visual quality is moderately low to moderate. Section II traverses a relatively flat valley. Much of the landscape is dotted with pu'u. Other elements include the built features of the PTA, grasslands, and shrublands. The eastern end of this section enters lava flows with sparse emergent vegetation. The existing visual quality ranges from moderately low to moderately high. Section III enters a landscape in which the lava flows are older and vegetation is more pronounced. The roadway weaves through forests with an understory of ferns and shrubs and pasture lands. The existing visual quality is predominantly moderately high. In Section IV, single family residences are located along the existing alignment of Saddle Road, creating a more urban setting for Segment EX-4A. Segment E-3 departs from the existing alignment and traverses mature forest with a dense understory of ferns and shrubs as well as agricultural pastureland. The existing visual quality of Segment EX-4A ranges from moderately low to moderately high. The existing visual quality of E-3 is moderately high.

The proposed roadway alignments are generally underlain by four types of geologic materials, including volcanic ash deposits, cinder sand deposits, 'a'a lava flows, and pahoehoe lava flows. Speleological resources, such as caves and lava tubes, occur within the project vicinity.

Geologic hazards within the study corridor include low-lying areas with potential flooding hazard, steep slopes with the potential for instability and landslides, soft soils or wetlands, ground subsidence, and known faults that may traverse the proposed roadway segments. In addition, the entire island is considered a lava hazard zone. The eastern portion of the study corridor is at greater risk from lava inundation than the western portion.

Average annual rainfall within the project corridor ranges from less than 500 millimeters (mm) in Sections I and II, to 5,000 mm or more per year in Sections III and IV. Fog is not uncommon in the morning and afternoon hours. Trade winds blow from the northeast.

Water resources and drainage characteristics occurring along the length of the project are diverse because of variations in the amount of rainfall. Infiltration of surface waters into the substrate is high and serves to recharge the island's groundwater aquifers. There are no areas within the project vicinity designated as principal or sole source aquifers.

Sheet flow of rainfall runoff is prevalent. The topography is pseudokarstic and no perennial rivers or streams occur in the project corridor, nor within the watersheds tributary to the Saddle Road culverts and bridges. The project area crosses several major intermittent drainages, many of which were formed by glacial activity and contain no waters of the U.S.

No Wild and Scenic Rivers are located within the project corridor or its vicinity. The proposed project is located within an area regulated by the Hawai'i Coastal Zone Management (CZM) Program. The CZM program has established specific objectives and polices to protect and preserve recreational resources, historic resources, scenic and open space resources, coastal ecosystems, and economic uses, to minimize coastal hazards, and to manage development. The project area is not within a defined Special Management Area of the CZM program.

While there are no State air quality monitoring sites on the Island of Hawai'i, data available from other sources indicate that ambient pollutant levels are well below the State and Federal standards. There are no designated non-attainment areas (places that do not meet the National Ambient Air Quality Standards) within the State of Hawai'i.

Vegetation types dominated by both native and nonnative plants occur within the project area. Plant communities dominated by introduced or alien species are also referred to as nonnative vegetation types in this document. Plant communities dominated by plants which occur naturally in the Hawaiian Islands are referred to as native vegetation types. Examples of nonnative vegetation types include fountain grass/mixed shrubland, pasture land, and lowland wet grassland. Examples of native vegetation types include 'a'ali'i shrubland, mamane/naio forest, pioneer vegetation on recent lava flows, and montane wet forest.

The majority of Section I is pasture land dominated by kikuyu grass and other nonnative range grasses. It has been used for grazing for some time. Lower elevations of Section I support fountain grass/mixed shrubland. Areas covered by native plant communities are rare. The few remnant pockets of native mixed shrubland occur on cinder cones and larger stony ridges and outcrops, areas inaccessible to cattle and other grazing animals.

The vegetation within Section II is primarily native. Because the PTA has not been grazed and military development is restricted to certain areas, the majority of the PTA remains in native natural plant communities with a large proportion of the installation containing rare plants.

Hard-stemmed lovegrass grassland, 'aweoweo shrubland, and 'a'ali'i shrubland are found on alluvial flats and the lower slopes of Mauna Kea on the western portion of this section. Mamane/naio forest occupies areas higher in elevation just north of the project area through the entire section and along the project corridor from the PTA cantonment area eastward past Mauna Kea State Park. At the eastern end of this section, nonnative pasture land vegetation is found on grazed lands.

Section III is dominated by native vegetation types. It traverses a variety of micro-climatic zones and a number of vegetation types because past volcanic activity has created a mosaic of soils of different ages and character. Recent lava flows exhibit sparse pioneering vegetation. Kipuka, isolated pockets of late successional forest located on old lava flows, are interspersed through this section. Kipuka exhibit unique biological character, supporting the complex structure of the native Hawaiian rainforest, usually with an overstory canopy dominated by koa, a middle canopy layer dominated by 'ohi'a, and a lower canopy dominated by tree ferns. This habitat supports numerous species which are endemic (unique to the Hawaiian Archipelago) and is highly susceptible to invasion by alien species when disturbed.

Section IV passes through highly modified habitat which is dominated by alien species.

Fire poses a grave threat to some Hawaiian ecosystems by converting native habitats into grasslands dominated by nonnative species. Because few native Hawaiian animals or plants are adapted to wildfires, mortality during fires is high. Native shrubs and trees may recover from fire to some degree, but native plant communities are usually overwhelmed by more aggressive alien species. Many nonnative species, such as fountain grass, have a tendency to carry fire, are fire adapted, and thrive in the aftermath of fire. The establishment of this grass increases the threat of fire.

Sections I and II traverse extremely dry habitat and are highly susceptible to fire. Because most of Section I has been highly modified and is now characterized by alien-dominated vegetation types, the impact of wildfires on native plants in this section is minimal. Within Section II, native-dominated vegetation types are prevalent. These vegetation types are extremely vulnerable to destruction by wildfire. Fire threatens the survival of rare-native animal species which rely on native habitats like the mamane/naio forest. Sections III and IV are not highly susceptible to fire because they are characterized by heavy rainfall.

Wetland occurrence within the project corridor is limited to the area east of MP 14, within Sections III and IV. Within this area, three major native vegetation types occur: 'ohi'a forest, 'ohi'a scrub, and koa-'ohi'a forest. Because of local conditions, the presence of hydrophytic vegetation was considered the determining factor in locating regulatory wetlands. Under this method, wetlands were present on all of the 'ohi'a forest, approximately 15 percent of the 'ohi'a scrub, and less than 2 percent of the koa-'ohi'a forest.

The list of native birds likely to occur within the project area includes 18 species, 9 of which are endemic and 3 of which are migratory. There are also 28 nonnative resident species. While the bird fauna throughout the project area is dominated by introduced species, Sections II and III support a relatively high diversity of native birds within mamane/naio forest and kipuka habitats.

Hawai'i has only one native terrestrial mammal, the Hawaiian hoary bat, which is distributed throughout the project area. All other terrestrial mammals in Hawai'i were introduced by man and are considered alien species.

The project area harbors a diverse native and nonnative invertebrate fauna, including 13 snail and hundreds of insect and arthropod species. The invertebrate populations found within Sections I, III, and IV are dominated by introduced species. Section II supports a variety of endemic insects, as well as the most diverse assemblage of snails found in the project area. Within Section III, a variety of endemic insects are associated with kipuka and cave habitats.

Listed species refer to those species afforded legal protection as endangered, threatened, proposed endangered, and proposed threatened by the USFWS. Table S.5, Listed Species in the Vicinity of the Project Area, identifies listed species known or expected to occur within the project area. All listed species identified are endangered, with the exception of the Newell's Shearwater, which is threatened. Proposed endangered or threatened species are also addressed in this EIS.

Critical Habitat has been established for the endangered Palila within Section II and occupies nearly all mamane/naio forest habitat identified for the project. Palila are highly dependent on mamane trees as a food source and for nesting. Fire has been identified as the single greatest threat to the continued survival of the Palila and other sensitive species which rely on the mamane/naio forest habitat. The northern boundary of the 'Ainahou Nene Sanctuary is adjacent to the existing Saddle Road for a length of 7.6 km in Section III.

Prehistoric use of the project area includes cross-island travel, access to interior resources, birdcatching, agriculture, basalt gathering, and harvest of koa logs. Historic use of the project area includes ranching, hunting, cross-island travel, lumber milling, growing sugar cane, tourism, military strategy during World War II, and military training.

Nineteen archaeological sites within the survey corridor are recommended for listing on the NRHP. These include Old Waimea-Kona Belt Road and a habitation/animal enclosure (Section I); Ka'ohe Wall, Humu'ula Sheep Station Perimeter Walls, Old Waimea-Humu'ula Wagon Road, and a post and wire fence (Section II); Pu'u 'O'o-Volcano Trail, Humu'ula Sheep Station Perimeter Walls, Hilo-Pu'u 'O'o Trail, Saddle Road, two linear lava wall sites, and a lava paving site (Section III); a surveyor's cairn, 'Ola'a Flume, Hilo Country Club, and Senator Kimi's House (Section IV).

Table S.6, Summary of Impacts, summarizes the environmental consequences of the proposed actions assessed in the Saddle Road FEIS. The table outlines differences between each of the build and no action alternatives for major resource categories.

Cumulative impacts are the result of incremental impacts of an action when added to other past, present, and reasonably foreseeable future actions. Development within the Saddle Road area and on the island as a whole has resulted in the loss and degradation of resources unique to the island. The development within the Saddle Road corridor includes ranching operations, recreational facilities, public use areas, utility corridors, mining operations, military facilities, hunting units, scientific research, and residences. Current plans and potential projects under consideration in the project vicinity include the expansion of Mauna Kea Science Reserve, the extension of the runway at Bradshaw Army Airfield, the construction of an additional electric transmission line, the installation of a fiber optics transmission line, the extension of Puainako Street, and the development of an improved connection between Mamalahoa and Queen Ka'ahumanu Highways.

An improved roadway would increase the pressures of growth and development in areas served by Saddle Road. This would contribute to traffic along Saddle Road and use of the area by residents and tourists. Increased traffic and increased use of the area regardless of road improvements are expected to result in further introduction and spread of alien species, heightened risk of fire, and associated impacts on native ecosystems and species. Development and land use conversion across the island have created a trend toward the destruction of cultural resources, reduction in visual quality, soil erosion, water quality degradation, the destruction of caves, and the alteration of topographical features. All build alternatives, and to a lesser extent the No Action Alternative, would contribute to this trend.

Mitigation measures have been developed in order to minimize both short-term and long-term impacts of the proposed project. Mitigation commitments for impacts to the human environment are to maintain free-flowing access to existing land uses, provide scenic pullouts and parking, facilitate emergency access, minimize traffic conflicts, and keep the public informed of anticipated delays. FHWA will develop relocation assistance and benefits for any residents displaced by the project. Hazardous materials and unexploded ordnance will be handled to ensure proper treatment of these materials. Native Hawaiians will be employed to observe cultural ritual protocol at the construction site.

Mitigation commitments for construction impacts to the physical environment are to implement dust and equipment emission control measures. Prior to construction, FHWA will coordinate with speleological experts to reduce the risk of impacting caves or lava tubes. Construction techniques that create natural-appearing roadside surfaces and roadway appurtenances will be utilized to minimize the visual impact of the project at the location of cut and fill slopes. Remnant landforms will be removed at select locations.

General mitigation commitments for impacts to biological resources are to limit surface disturbance to within the ROW, ensure proper environmental awareness of construction workers, revegetate appropriate locations, prohibit night-time construction lighting, and adopt construction practices that minimize dispersion of alien species. An alien plant species monitoring and control program will be implemented. During final design, the alignment will be shifted to avoid kipuka. Sensitive habitats like kipuka will be fenced during construction along the right-of-way (ROW). A fire ecologist will be contracted to create a fire model(s) and develop a comprehensive fire management plan. Paved fire breaks will be constructed in areas of critical fire concern, and emergency call boxes will be provided along the route in fire prone areas. To offset unavoidable impacts of the project to wetland and aquatic areas disturbed by the roadway footprint, mitigation commitments will incorporate restoration efforts to restore and preserve habitat within all portions of the ROW not essential to the operation and maintenance of the roadway. Restoration efforts may also include the acquisition or preservation of lands beyond those needed for ROW. A search for Hawaiian Hawk nests will be conducted within Sections III and IV prior to construction.

Commitments have been made to undertake significant mitigative steps to offset potential impacts on federally-designated Critical Habitat for the endangered Palila. A Palila Mitigation Plan has been prepared and an associated Memorandum of Understanding (MOU) has been developed and signed by participatory agencies. Mitigation includes the acquisition and management of areas for habitat restoration and Palila translocation (FEIS - Part I, 3.18.3).

Mitigation commitments for impacts to 19 archaeological sites eligible for the NRHP include avoidance through the shifting of the alignment, data recovery efforts, the installation of interpretive signs and pullouts to enhance public awareness, and periodic monitoring during construction. These commitments have been agreed upon by the Advisory Council on Historic Preservation (ACHP), State Historic Preservation Office (SHPO), HDOT, FHWA, and Office of Hawaiian Affairs (OHA) and documented in an executed Memorandum of Agreement (MOA).

The following list summarizes the history of the Saddle Road EIS project and provides notable milestones to the coordination and public involvement process. Initially, improvements for Saddle Road had been considered only along the existing alignment within the boundaries of the PTA. The summary provided begins with the decision to expand the project planning to include the roadway sections outside of the PTA boundary.

Numerous meetings were held between January, 1994, and the present with interested individuals, agency representatives, and public and private organizations to provide project briefings and receive input on project issues and concerns. A list of organizations for which one or more formal project briefings were presented at various stages of the project is presented in Table S.7, Community Organizations.

Open community meetings were held in Hilo, Kona, and Waimea from April through October, 1995, to present project briefings and distribute social impact survey questionnaires.

S.10 CONSISTENCY OF ALTERNATIVES WITH EXISTING PLANS AND POLICIES

The proposed Saddle Road project complies with appropriate State and County land use policies, plans, goals, objectives and controls. It would facilitate implementation of the State Plan, the Transportation Function Plan, the Island of Hawai'i Long Range Highway Plan, the County of Hawai'i General Plan, and the land use controls and regulations as established pursuant to the State Land Use Law and the Hawai'i County Zoning Code. Table S8, Conformance with Land Use Plans and Policies, summarizes the project's conformance with previously described land use plans and policies.

Mgt. = Management, Trans. = Transportation, Com. = Community, D.V.. = Development

A number of permits or other approvals may be necessary prior to implementation of the Recommended Alternative. The following list (Table S9, Permits and Approvals) represents those permits or approvals identified to date. Additional permits might be identified subsequently if project modifications, mitigation measures, or refinements in final design warrant.

Several issues emerged during circulation of the DEIS that required further coordination with regulatory agencies; however, all have been resolved to the satisfaction of the agencies involved. There were no unresolved issues at the time of publication of this Final EIS. These formally-unresolved issues and their resolution are as follows.

1. The selection of the LEDPA and mitigation for proposed wetlands in Sections III and IV of the project area pursuant to Section 404 of the Clean Water Act:

   The EPA, the USACE, and the USFWS agreed that EX-3 and E-3 are the LEDPAs in Sections III and IV, restoration and preservation measures are acceptable mitigation for wetland impacts, and 404 Permit applications can be submitted concurrent with a review of Section 404(b)(1) issues by HDOT in Sections III and IV when these Sections are programmed for project development (ref: FEIS-Part II, Section 1.4 and Part III, 404(b)(1) Report and Associated Correspondence).

2. Assurances for implementation of mitigation for impacts to the federally designated Palila Critical Habitat in Section II in order to successfully conclude Formal Consultation under Section 7 of the Endangered Species Act (ESA):

   Formal Consultation with the USFWS under Section 7 of the ESA was successfully concluded with the issuance of a Final BO which contains reference to a Palila MOU as the mechanism for ensuring implementation of the Palila Mitigation Plan (ref: FEIS-Part I, 3.18.3 and Part III, BO and MOU).

3. The status of Mauna Kea as a TCP and possible impacts to this TCP should it be eligible for listing on the NRHP:

   An MOA pursuant to Section 106 of the National Historic Preservation Act (NHPA) has been successfully executed by the FHWA, the SHPO, and the ACHP with concurrences by OHA and HDOT. This MOA recognizes that Mauna Kea is eligible for listing as a TCP; however, because of the minimal indirect impacts to this potential TCP from the proposed project, the Area of Potential Effect is more directly associated with activities managed by the Institute for Astronomy of the University of Hawai'i - Hilo and, therefore, should be investigated further as part of an ongoing study through that organization (ref: FEIS-Part I, 3.19.3.1.3 and Part III, MOA).