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American Planning Association 2016 National Conference Phoenix, AZ April 2, 2016
Department of Defense Compatible Use Program
Compatible Use
Compatible Use Strategic Planning Joint Land Use Study: Planning to Implementation
Challenges and Opportunities
Presented by
Cyrena Chiles Eitler, AICP Compatible Use Program Director Office of the Assistant Secretary of Defense (Energy, Installations and Environment)
Compatible Use and Joint Land Use Studies Program
OEA Mission Statement
The Office of Economic Adjustment (OEA), in coordination with other resources of the Federal Government, will assist states and communities to:
• Plan and carry out local adjustment strategies; • Engage the private sector in ventures to plan and undertake community economic
development and base redevelopment; and • Work with the Military Departments in support of DoD’s missions.
Directs Defense Economic Adjustment Program on behalf of the Office of the Secretary of Defense and staffs the Economic Adjustment Committee
Functions as an Independent Defense Field Activity to provide technical and financial
assistance to eligible state and local governments
Program created to help state and local governments plan and carry out adjustment and diversification programs in response to major Defense actions, including:
• Base closures or realignments • Base expansions • DoD Personnel reductions • Industry/contractor reductions • Operational/training impacts, civilian encroachment upon a military installation likely to
impair continued operational utility of the installation
Compatible Use Program
OEA provides technical and financial assistance to state and local governments to undertake Compatible Use and Joint Land Use Studies
OEA technical and financial assistance also available to carry out the study recommendations
Cooperative effort between the Military and jurisdictions surrounding installations, ranges and/or military training corridors to plan and carry out strategies promoting compatible civilian development
Joint Land Use Study (JLUS) initiated upon a Military Department nomination and serves as a comprehensive strategic plan with specific implementation actions to address and prevent incompatible civilian development that could impair the operational utility of military missions or impact available resources, i.e. air, land, water, and electromagnetic spectrum
JLUS represents a planning process that promotes open, continuous dialogue among the Military, surrounding jurisdictions, and states to support long-term sustainability and operability of military missions
Community may request to initiate a Compatible Use study with support of the Military Department
Military Department technical data describing the military missions and operations supports the study process
Compatible Use Challenges
Military Operations Footprint Defines Study Area
Air Installations Compatible Use Zones (AICUZ)
Program • Clear Zone • Accident Potential Zones (APZ I and APZ II) • Noise Contours • Land Use Compatibility Guidelines for Clear
Zone and APZs
Range Compatible Use Zones Program (RCUZ)
Range Air Installations Compatible Use Zones Program (RAICUZ)
Operational Noise Management Program
Encroachment Action Plan (EAP), Encroachment Control Plan (ECP) and Installation Complex Encroachment Management Action Plan (ICEMAP)
Under these programs, the Military Departments develop technical information and maps indicating areas of military operations to support the JLUS planning process.
Joint Land Use Study Process
Continuous Dialogue and Sharing of Information
Engage Public Throughout Process
• Scope Impacts
• Identify Planning Area
Based Upon Military
Operations Footprint
• Identify Stakeholders
• Establish JLUS Policy
Committee and
Technical Working
Group(s)
• Assess Baseline
Conditions
• Identify Compatibility
Challenges
• Identify Current and
Future Development
Patterns
• Identify Areas of
Conflict
• Establish Vision &
Goals for Compatible
Community
Development
• Identify Planning
Strategies and
Priorities
• Implementation Plan
with Priorities,
Responsible Parties,
Funding
• Establish Community
Organization
Structure
• Prioritize Actions
• Develop Schedule to
Implement & Monitor
• Identify & Seek
Funding
• Integrate With Other
Community Planning
Actions
• Track Progress
• Evaluate Effectiveness
• Assess New Data
• Revise Strategies &
Priorities As Required
• Continuous Dialogue and
Information Sharing
• Consider JLUS Update With
Significant Change in
Military Operations
ORGANIZE ASSESS PLAN IMPLEMENT MONITOR
Compatible Use Program Opportunities
Conservation and Agriculture Preservation a Land Use Alternative
Community-driven JLUS planning process can support identification of parcels suitable for conservation partnering and agriculture preservation initiatives
Establish framework for conservation buffering, agricultural preservation and Sentinel Landscapes
National Security and Renewable Energy
Siting of wind turbines and solar towers can pose electromagnetic interference and flight safety hazards
DoD Siting Clearinghouse created to facilitate siting of energy projects while protecting vital test, training and operational assets - http://www.acq.osd.mil/dodsc/
32 CFR Part 211 published to guide the energy siting review process
Development of state regulations and local development ordinances can further facilitate siting of energy projects
April 3, 2015 Notice of Federal Funding Opportunity to promote compatible siting of energy projects
Climate Adaptation Planning
DoD Directive 4715.21 Climate Change Adaptation and Resilience
Engage with state and local governments to promote compatible development that considers climate change adaptation opportunities through a JLUS
Principles for Successful Compatible Use Strategic Planning
Collaboration and Consensus Building
State and local governments share, with the federal government, inherent responsibilities to support national defense.¹
Need for state and local governments to play strong role in supporting DoD missions.¹
Collaboration needed to promote compatible community development.
Interdependence: We both need each other to meet our interests.
Community takes an action that benefits the installation because the installation takes an action that benefits the community.
¹ Strengthening National Defense: Countering Encroachment through Military-Community Collaboration, National Academy of Public Administration, September 2009
Consensus Building
Meet all interests to the greatest extent possible
Look to create maximum value for all parties
Use trade-offs and fair standards
Make decisions that benefit all stakeholders
Ensure commitment to sustainable agreements
Preserve and strengthen relationships established during planning process
Assessing and Understanding Stakeholders
Identify key groups and individuals to engage.
• Inclusive and balanced
• Resource people and decision makers
• Credibility
• Right size
• Ability to work together
• Authority to decide and/or implement
What do they care about? Focus on interests, not positions. Position = What you want Interest = Why you want it
Uncover a range of interests and understand those most important.
Identify opportunities for mutual gain.
Determine appropriate roles and establish a collaborative process to engage.
Transition Challenges & Opportunities
Maintain momentum
Identify appropriate organization
Maintain and build relationships
Key players supporting implementation may change
Ensure buy-in beyond JLUS Policy Committee members
Foster open, continuous communication
Keep community engaged and informed
Establish an ongoing, iterative, sustainable process
Coordinate and incorporate into existing community development decision-making processes
Implementation Examples
Local Government
Fort Richardson and Elmendorf AFB, AK • Planning Commission and Assembly adopted JLUS as chapter of Borough Code
Fairchild AFB, WA and Scott AFB, IL • County took lead to develop model implementing ordinance for adoption by
participating local jurisdictions
NAS Kingsville, TX • Joint Airport Zoning Board expands development oversight beyond city limits
NSA Panama City, FL • Identified Critical Parcels in Line of Site Corridors
• Military Influence Overlay Zoning Ordinance (Graduated Building Height)
• Zoning Standards for Structures in Water
• Frequency Ordinance for Parcels in Military Influence Areas
Malmstrom AFB, MT • Seven County Region Red-Yellow-Green Map to Designate Appropriate
Location for Tall Structures and Frequency Generating Facilities (wind turbines, transmission lines and cell towers)
Regional
Southern New Mexico-El Paso, NM and TX
• Formed through Memorandum of Agreement (MOA) among 2 states, 6 counties and 3 cities, with 3 military installations and Federal agencies as concurring parties
• MOA developed during JLUS, coordinated concurrent with JLUS Report acceptance
• Initial focus on 16 foundational strategies
State Government
Florida
• State legislature established green belts and other protective measures for installations and ranges
Arizona
• Many State legislative actions to require military notification of proposed development, etc.
North Carolina
• Established permitting system for wind energy development that considers impact to military training and operational missions
Lessons Learned
JLUS as a catalyst for sustained local, State, Federal agency and military engagement
Leverage local and State resources for implementation
Integrate JLUS recommendations and strategies into ongoing local and regional planning efforts, such as Comprehensive Plans, Master Plans or General Plan updates
Maintain momentum through an Implementation Plan, prioritize actions, and establish organization structure for implementation before JLUS Final Report completed
Completed Joint Land Use Studies
Completed Joint Land Use Studies 127 Completed as of April 2016
(1985 – 2016)
Cyrena Chiles Eitler, AICP Compatible Use Program Director 2231 Crystal Drive, Suite 520 Arlington, VA 22202 (703) 697-2078 [email protected]
Connect with OEA online! www.oea.gov Website I LinkedIn I Google+ I YouTube I Flickr
Point of Contact
The Arizona Military Regional Compatibility Project
American Planning Association 2016 National Conference
Presented by:
Deb Sydenham, FAICP Executive Director, ULI Arizona
Arizona’s Robust Legislative History
• 1978 Military Airports Defined
• 1986 Land use plans to preserve military airports
• 1995 HB2310 (“Territory”, notification stds. set, military airport preservation com., 1988 contours, etc.)
• 2000 SB1514 (AG enforcement, reporting, etc.)
• 2001 SB1525 & SB1120 (define compatible use, dev’t. notification, noise attenuation, etc.)
• 2001 SB1120 (Military Compatibility Project Catalyst)
• 2002 Governor’s Aviation Advisory Council
• 2002 SB1393 (clarifies uses, prohibits new schools, etc.)
• 2002 Maguire Study - Economic Impact of Military in AZ
• 2004 Comprehensive Legislative Package Initiated
• Statewide endeavor - components – Western Maricopa County/Luke AFB Compatibility
Plan
– Davis-Monthan AFB/Tucson JLUS
– Luke Auxiliary Airfield #1 JLUS
– Gila Bend Auxiliary Airfield/BMGR JLUS
– MCAS Yuma 1996 JLUS consistency review
– Statewide Compatibility Policy Guidelines
– Closely tied with Governor’s Military Facilities Task Force Work and Recommendations
• Future phases
Primary Project Objective
“This Project is an undertaking of statewide impact designed to find
resolutions to land use compatibility and encroachment issues through collaborative effort and strong
implementation.”
Project Schedules
Land Use Compatibility Laws & Regulations
• Federal
– Air Installation Compatible Use Zone (AICUZ)
• State
– Arizona Revised Statutes (ARS)
• Local
– General and Comprehensive Plans
– Zoning
Western Maricopa County/Luke AFB
Regional Compatibility Plan
Balancing Mutually Exclusive Desires
• Jurisdictions – meeting demands of fast paced growth and new residents
• Developers/Homebuilders – turn raw land into developable commodity
• Landowners – gain compensation for highest and best land use (fairness/equity)
• Luke AFB – maximum mission capability
Western Maricopa County/Luke AFB -- Who Was Involved?
• 11 Jurisdictions
• Multiple developer, homebuilder, landowner, business and other interests
• In essence, a herd of cats ...
Headline Evolution
Existing Land Use
Projected Population
City 2000 Population
Projected Total
Build-Out
% Increase
2000/
Total Build-Out
Avondale 35,883 200,000 457%
Buckeye 6,537 500,000 7,549%
El Mirage 7,609 33,000 334%
Glendale 218,812 309,242 41%
Goodyear 18,911 688,777 3,542%
Litchfield Park 3,810 17,000 346%
Peoria 108,364 486,700 349%
Surprise 30,848 670,000 2,072%
Youngtown 3,010 NA NA
Total 433,784 2,904,719 570%
Overflight Notification Area
• Avoid concentrations of people exposed to noise and safety hazards
• Noise Criteria: – Limit exposure of people and noise-
sensitive activities to high noise levels
• Safety Criteria: – Limit concentrations of people and safety-
sensitive activities in areas of highest probable accident impact
Compatibility Criteria
Implementation
• Equity
• Previous planning
• Vested development
• Competing jurisdictions
• Funding – Availability
– Sources
– Mechanisms
Davis-Monthan AFB / Tucson / Pima County Joint Land Use Study
Unique Issues
• U of A Science & Technology Park
• State Trust Lands
• Houghton Road Corridor
• Pima County Fairgrounds
• Julia Keen Elementary School
• Infill Development
• TIA proposed new runway
• Local, official JLUS recognition
• Revision of Airport Environs Zone Plans & Ordinances
• Consider formation of on-going JLUS coordinating committee
• DM should consider forming a Community Initiatives Team
• Consider land acquisition through bonds
• Utilize Transfer of Development Rights
___ Implementation Strategies
Gila Bend Auxiliary Airfield / Barry M. Goldwater Range
Joint Land Use Study
#Y
#Y
#Y
#
#Y
#
#
#Y
# #
Bagdad MOA
Gladden MOA
Jackel-Outlaw MOA
(Tucson ANG)
Sells MOA
LATN Area
Rub y M OA
Fuzzy M OA
NTAC
STA C
ETA C
R4
R1
R3
R2
E
A
B
C
D
N
20 0 20 40 Miles
Mexico
Davis-Monthan AFB
MCAS Yuma
Luke AFB
Organ Pipe Cactus Natl
Monument
Cabeza Prieta NWR
Tohono O’odham Nation
Positive By-Products
• Increased regional cooperation and strengthening of public/private partnerships
• Broaden understanding of critical missions of military installations
• Federal recognition of Arizona’s cohesive approach and unified support for implementation
• 2004 Military Installation Fund - $5m
• 2004 Military Affairs Commission
• 2008 Maguire Study - $9.1 billion impact
• 2008 Military Electronics Range Legislation
• Military Community Compatibility Committee (MC3)
– Military/Community Relations Committee (MCRC)
• 2009 State of Arizona v. Maricopa County
• AZ Department of Real Estate Military Maps
• AZ State Land Department Military Maps
• Ongoing localized efforts
____Highlighted Outcomes & Status
• Leadership and a champion at all levels
• Strong partnership with DoD
• A consultant team with street creds
• Political will and fortitude
• Establish a recognizable project “Brand”
• Open and continuous communication
• Good listening skills and a poker face
• Your word is your bond
___ What’s Needed for Success
Boots on the Ground Community Collaboration
beyond the JLUS
Sierra Vista, AZ
Mary Jacobs Assistant City Manager City of Sierra Vista, AZ
Sierra Vista, AZ
• Home of Fort Huachuca Army Installation
(123,000 sq. mi.; part of city limits)
• Pop. 46,000 (36 sq. mi.)
• Rural Area
• Largest City in Cochise County
Major Encroachment Issues
• Electromagnetic
Spectrum • Water • Airport and Airspace
Partnering With the Fort
New Development
Notifications Essential
All New Subdivisions
All New Commercial Projects
Cell and Other Towers
Other Major Development
Questionable Re-Use – Electronic Spectrum
Partnering With the Fort
Endangered Species Act and the Fort
• Protection of the San Pedro River
• Water Pumping Potential Impacts
• Requirements Apply to off-Post Population
Partnering With the Fort
Key Partner in Mitigation
Robust Conservation Programs
Recharge Effluent
Stormwater Management
Multi-agency Collaboration:
Upper San Pedro Partnership
Partnership with Adjacent Town of Huachuca City to Share Fort Sewer Plant
Land, Water and Air (oh my!)
State Support
• Recognition of Buffalo Soldier Electronic Proving Range
Land, Water and Air (oh my!)
State Support
• Recognition of Buffalo Soldier Electronic Proving Range
• Military Installation Funds for Mitigation
• State Law/Voter Approved Change on Land Swaps
Land, Water and Air (oh my!)
Conservation Easements
• Leverage Federal, State, Local and NGO Funds
• Purchased Nearly 10,000 in Easements
• Conserves Approximately 4,000 acre feet of water annually
American Planning Association Federal Workshop Arizona Military & Energy Land
Use Plan (AME-UP)
April 1, 2016
AME-UP
Arizona Federal Land Use Planning History
• Arizona is home to Luke Air Force Base, Davis-Monthan Air Force Base, Yuma Proving Grounds and Yuma Marine Air Corps Station, Fort Huachuca, and the Barry M. Goldwater Range Complex and other auxiliary facilities
• In 2001 the State Senate passed legislation to provide communication between
military bases, jurisdictions and developers requiring notification and disclosure requirements for rezonings or new development proposals
• In 2001 the State Senate appropriated funds for the Arizona Military Regional
Compatibility Project. This included the Office of Economic Adjustment
• Six Joint Land Use Studies (JLUS) were completed from 2003-2007 they include: • Luke Air Force Base/Western Maricopa County Joint Land Use Study – 2003 • Luke Air Force Base Luke Auxiliary Field #1 Joint Land Use Study – 2004 • Luke Air Force Base Barry M. Goldwater Range / Gila Bend Auxiliary Field Joint
Land Use Study 2005 • Davis-Monthan Air Force Base Joint Land Use Study 2004 • Marine Corps Air Station – Yuma Joint Land Use Plan 2005 • Fort Huachuca Joint Land Use Study 2007
AME-UP
JLUS Results Planning Related Arizona Revised Statutes • Title 9 City's and Towns/Title 11 Counties (Planning Related statutes)
• Must include a land use element in there General Plan when within such planning area is in the vicinity of a military airport or ancillary military facility
• Must advise and provide an opportunity for official comment by a military airport/facility
• Must notice the military airport/facility for proceedings involving rezoning of land
• Title 15 Education • State Facilities Board provide notification of funding of new schools within the vicinity
of a military airport/facility • Board must take into consideration comments from the military airport/facility before
making a decision
• Title 28 Transportation • Defines Accident Potential Zones, Clear Zone, high-noise or accident potential zones,
military airports, ancillary military facility, and territory within • Requires compatible development for property within hazard zones and specific land
uses within noise zones of 65 Ldn of higher and to include noise attenuation standards in their building codes
• State Real Estate Department and Counties/Municipalities must request operations info and military airport to provide maps to show boundaries of high-noise and accident potential zones
AME-UP
City of Surprise Military Compatibility Requirement's • All noise contours associated with Luke
Air Force Base and Luke Auxiliary Field #1 are included on the General Plan Land Use Map • Goal #4 Land Use Element to
support Luke’s mission • Requires All developments to
comply with the Western Maricopa County/Luke Air Force Base Compatibility Plan
• Recognizes the F-35 noise-contours (in addition to the F-16)
• The City also Created the Luke Compatibility District
AME-UP
City of Surprise Military Compatibility Requirement's • Within the 65 Ldn line only non residential uses allowed (no schools etc.)
• City observes the “Graduated Density Concept” • Phased development density from lower near high noise or accident
potential zones to higher further from these zones. • Allows for a maximum of 2 dwelling units (du) per acre (ac) from the 65
Ldn to ½ mile; • a maximum of 4 du/ac from ½ mile to 1 mile; • a maximum of 6 du/ac from 1 to 3 miles, and graduated densities beyond
3 miles that include open spaces, light industrial/commercial and rural uses
• Disclosure of Luke Air Force Base Noise Levels • Surprise City Code Article III
• Realtors and persons operating a sales trailer, model home complex, sales office, leasing office, or any other facility open to the public for the purpose of leasing or selling new or used homes or apartments must carry/display the carry Surprise/Luke Notification Map
• Penalty: Civil penalty and receipt of three civil violations of this article in any calendar year may result in class two misdemeanor charges being filed against the offending party for each subsequent offense
AME-UP
AME-UP Background
• Arizona Renewable Energy Standard adopted in 2006 • 15% renewable resources by 2025
• In 2011 renewable energy projects created 16,790 jobs
and stimulated local economies
• By 2013 Arizona ranked second in the nation in utility-scale solar generation
• December 2014 Governor’s State Military Affairs Advisory Panel (SMAAP) convened and made recommendations to protect AZ’s military installations
AME-UP
SMAAP Recommendations
• Airspace coordination/prioritization will be increasingly important as military flying missions grow in Arizona
• Existing airspace must be protected
• Continued growth of the energy sector in Arizona will carry on into our future
• While this is an economic advantage to the state, new energy infrastructure can potentially encroach on military operations • Encroachments issues include:
• Radar Interference • Low-level flight obstructions • Electromagnetic interference • Glint & Glare • Impacts to Night Vision
• Must have an early review of new projects
Renewable Energy Projects
Military Training Routes
Low Altitude Military Training Routes
AME-UP
Partnerships • Collaborative effort
• The City, ASU, AGS, DEMA, AZADA, Sonoran Institute, Western Regional Partnership, Local Military involvement
AME-UP
Outcomes • The Arizona Military & Energy Land Use Plan
(AME-UP) best practices plan for assessment of existing and planned energy projects.
• Online Interactive Web-mapping Tool: to be used by city and community planners, military personnel, renewable energy developers
Benefits • Effective Collaboration • Consensus Building • Information Sharing
Questions?
Department of Defense Compatible Use Program