DEPARTMENT OF NAVY United States Marine Corps. Report to Congress

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1 DEPARTMENT OF NAVY United States Marine Crps Reprt t Cngress RESPONSE TO TITLE XXVIII, SUBTITLE F, SECTION 2856 OF THE NATIONAL DEFENSE AUTHORIZATION ACT FOR FISCAL YEAR 2013 LIMITATION ON AVAILABILITY OF FUNDS PENDING REPORT REGARDING ACQUISITION OF LAND AND DEVELOPMENT OF A TRAINING RANGE FACILITY ADJACENT TO THE MARINE CORPS GROUND AIR COMBAT CENTER TWENTYNINE PALMS, CALIFORNIA January 2013

2 Reprt t Cngress n the Training Requirements fr sustained, cmbined-arms, live-fire and maneuver Marine Expeditinary Brigade Training thrugh the Acquisitin f Land, the establishment r mdificatin f Assciated Special Use Airspace, and, the Develpment f Training Ranges Adjacent t the Marine Crps Air Grund Cmbat Center, Twentynine Palms, Califrnia 1. Requirement fr the Reprt: Title XXVIII, Subtitle F, Sectin 2856 f the Natinal Defense Authrizatin Act fr Fiscal Year 2013 directs the Secretary f the Navy t prvide a reprt t Cngress n (I) the training requirements necessitating the Marine Crps prpsal t acquire land, and establish r mdify assciated Special Use Airspace adjacent t the current ranges at the Marine Crps Air Grund Cmbat Center, Twentynine Palms, Califrnia; and (2) varius impacts assciated with the prpsed actin. The sectin sets ut the requirements fr this reprt as fllws: (2) ELEMENTS OF THE REPORT. The reprt required under paragraph (1) shall be submitted nt later than 90 days after the date f enactment f this Act and shall include the fllwing: (A) A descriptin f the actual training requirements fr the prpsed range and where thse training requirements are currently being met t supprt cmbat deplyments. (B) Identificatin f the impact n ff-rad vehicle recreatinal users f the land, the ecnmic impact n the lcal ecnmy, the recreatin industry, and any ther stakehlders. (C) Identificatin f any cncerns discussed with the Bureau f Land Management regarding their assessments f the impact n ther users. (D) Identificatin f the impact n the State f Califrnia s 1980 Desert Cnservatin Plan regarding allcatin f the Off Highway Vehicle Recreatin Areas. (E) An evaluatin f the ptential t use the same land withut transfer, but under specific permits fr use prvided by the Bureau f Land Management (as such permits are used at ther lcatins frm the Frest Service and Bureau f Land Management). (F) An evaluatin f any ptential n ther Bureau f Land Management lands prximate t the Marine Crps Air Grund Cmbat Center Twentynine Palms r ther lcatins in the gegraphic regin.

3 2. Executive Summary This Reprt t Cngress prvides infrmatin abut the Marine Crps effrts t meet its identified requirement fr Marine Expeditinary Brigade (MEB)-level sustained, cmbined-arms, live-fire and maneuver training thrugh land acquisitin, airspace establishment, and training range develpment at the Marine Crps Air Grund Cmbat Center (MCAGCC) at Twentynine Palms, Califrnia. This reprt is based n infrmatin cntained in the Final Envirnmental Impact Statement (EIS) fr Land Acquisitin and Airspace Establishment t Supprt Large-Scale Marine Air Grund Task Frce (MAGTF) Live Fire and Maneuver Training; a cpy f which is included in the CD attached t this reprt and available n line at: The Ntice f Availability fr the Final EIS was published in the Federal Register n July 27, The Marine Crps requirement fr sufficient range capability fr MEB training was first established in Marine Crps ~traiegy 21, published n Nvember 3, 2000, which identified the MEB as the primary cntingency respnse frce f the Marine Crps. The expanded and mdified rle f MEBs ccasined a full review f MEB training, culminating in a series f recmmendatins by the Center fr Naval Analyses (CNA) in The CNA studies identified MEB training requirements (e.g., three battalins mving simultaneusly tward a single bjective), determined the necessary training envirnment t supprt MEB training, and assessed the capabilities f existing ranges t supprt such training. The CNA studies f ranges in the Sutheast, Gulf Cast and Suthwest f the U.S. cncluded that there was n training range capable f meeting the MEB training requirements fr sustained, cmbined-arms, live-fire and maneuver training invlving all elements f a MEB: the grund cmbat elements, air cmbat elements, the cmbat lgistics element and the cmmand element. The CNA studies cncluded that nly MCAGCC had the ptential t accmmdate the requisite MEB training and nly if additinal land and assciated airspace were added t the current training ranges at MCAGCC. (MCAGCC can currently nly accmmdate training fr tw battalins simultaneusly while the MEB requirement is fr three battalins). The Marine Requirements Oversight Cuncil (MROC) the Marine Crps General Officer leadership decisin-making bdy validated and accepted the CNA recmmendatins fr MEB sustained, cmbined-arms, live-fire and maneuver training requirements, and has twice authrized acquiring lands and establishing assciated airspace at MCAGCC t meet thse MEB-level training requirements. The Office f the Secretary f Defense (Under Secretary f Defense fr Acquisitin, Technlgy and Lgistics) cncurred and a Ntice f Prpsed Withdrawal f lands and a Ntice f Intent t prepare an EIS were published in the Federal Register n September 14 and Octber 30, 2008, respectively. The Federal Aviatin Administratin (FAA) and Bureau f Land Management (BLM) are cperating agencies in the develpment f the ElS. Bth agencies participated in team meetings; BLM c-hsted public cmment meetings; bth agencies prvided infrmatin regarding prject develpments, and their input and bjectives have been factred int the develpment and selectin f the Preferred Alternative that balances the MEB training requirement against cmpeting uses f the land and airspace under study. The Final EIS describes the ptential direct, indirect, and cumulative impacts f the prpsed actin n ff-highway vehicle (OHV) recreatinal use; applicable land use plans and plicies; the ecnmic impact n lcal and reginal ecnmies; and, the impact n an array f ther envirnmental resurces. Thrughut preparatin f the EIS, the Department f the Navy engaged in multiple runds f public cmment. Alternative 6, the selected alternative, was derived in direct respnse t public cmments and is specifically designed t reduce the ptential impacts t OHV recreatin and the ecnmic activities in 2

4 the regin that flw frm OHV activities, while preserving sufficient capability t meet the MEB training requirement. As identified in the Draft EJS, Alternative 6 is the preferred alternative the ne that mst apprpriately balances the requirements fr training while reducing impacts t recreatin and ther resurces. Alternative 6, with slight mdificatins, remains the preferred alternative. In summary, the Marine Crps has wrked with the BLM, the FAA, and ther interested stakehlders in selecting the alternative that allws fr increased range capability at MCAGCC necessary t supprt required sustained, cmbined-arms, live-fire and maneuver MEB training while minimizing impacts t OHV recreatin and ther resurces. Thrughut develpment f the EIS, the Marine Crps has wrked t accmmdate all parties requirements t the fullest extent pssible while ensuring the minimum range capability t meet the MEB training requirement. The Preferred Alternative is the ptin that prvides the best balance between envirnmental, aviatin, recreatin and ecnmic resurces while meeting the MEB training requirements. 3. Respnses t Specific Questins Psed in Sectin 2856 The fllwing infrmatin respnds t the specific questins set ut in Sectin 2856 f the Natinal Defense Authrizatin Act fr Fiscal Year The respnses are based n the Final EIS prepared n the MCAGCC Land Acquisitin and Airspace Establishment prject. (A) Prvide a descriptin f the actual training requirements fr the prpsed range and where thse training requirements are currently being met t supprt cmbat deplyments. RESPONSE: Marine Crps strategy requires a sustained, cmbined-arms, live-fire, and maneuver field training fr Marine Expeditinary Brigade (MEB)-sized Marine Air Grund Task Frces (MAGTFs), that cnsists f three battalin task frces and assciated Cmmand, Aviatin, and Cmbat Lgistics Elements. This MEB training requirement is based n the Marine Crps Strategy 21, the 2004 CNA studies, and the Nvember 2006 Marine Requirements Oversight Cuncil decisin that validated and accepted the recmmendatins t establish a large-scale MAGTF training area. As recently as the 2012 Sustainable Ranges Reprt t ~ ngress, the Marine Crps has reprted a deficiency in MEB training. MEBs must be able t cnduct maneuver-intensive peratins ver extended distances n nnlinear battlefields, supprted by clsely crdinated precisin fires, aviatin-delivered rdnance, and sustained, fcused lgistical supprt. A range facility t supprt MEB training must accmmdate the fllwing minimum bjective requirements: Independent, ffensive maneuver f three battalin task frces abreast and assciated air cmbat element peratins, with the three battalin task frces cnverging n a single MEB bjective; hurs f cntinuus ffensive peratins by the three battalin task frces as they cnverge n a single MEB bjective; and Integrated air and grund maneuver live-fire with ptimized freedm f actin t the greatest extent practicable cnsidering peratinal range capabilities and munitins safety requirements. Currently, n such training capability exists. Large-scale MAGTF training currently relies n a cmbinatin f classrm instructin, cmmand pst exercises, and simulatin as part f Cmmand Element training. Hwever, such methds ffer nly limited practical experience and cannt prvide realistic training pprtunities t rapidly and effectively integrate all elements f the large-scale MA GTF int a single chesive frce. Sustained, cmbined-arms, live-fire and maneuver training invlving all elements f the MEB is necessary t meet current requirements. This training requirement cannt currently be met at any existing range. 3

5 (B) Identify the impact n ff-rad vehicle recreatinal users f the land, the ecnmic impact n the lcal ecnmy, the recreatin industry, and any ther stakehlders. RESPONSE: Sectin 4.3, Sectin 5.4.3, and Appendix K f the Final EIS (Sciecnmics) describe the anticipated direct, indirect and cumulative effects n the lcal and reginal ecnmy assciated with the prpsed actin. The primary ecnmic impacts are expected t result frm the partial displacement f recreatinal and film industry activities that currently take place n public lands within the affected prject area. T define the magnitude f lcalized and reginal ecnmic cntributins specific t recreatin in Jhnsn Valley, the EIS analysis estimated a baseline level f recreatinal spending based n estimates frm the BLM f ttal annual visitr-days f use and a range f detailed assumptins abut average visitr behavir (e.g., prprtin f single day vs. multi-day visits, average duratin f multi-day visits, gegraphic distributin f trip rigins relative t Jhnsn Valley, average number f peple per grup, average daily per capita spending patterns based n visitr rigin). These estimates were then used by the DN t determine the ecnmic effects f the preferred alternative. Abut 46 percent f the existing Jhnsn Valley OHV Area wuld remain accessible Jhr public recreatin and film industry use at least 10 mnths per year, which includes several f the mre ppular OHV destinatins. BLM prvided assumptins that lcal Jhnsn Valley OHV Area users (within 50 miles) spend 100 percent f their trip csts lcally; mre distant San Bernardin Cunty visitrs t the Jhnsn Valley OHV Area are assumed t spend 60 percent f their trip csts lcally and 40 percent at their pint f rigin; and visitrs frm utside San Bernardin cunty t the Jhnsn Valley OHV Area are assumed t spend 30 percent f their trip csts lcally, 10 percent in the rest f the cunty and 60 percent at their pint f rigin. Additinal estimates reflect that almst 14 percent f all visitr days t Jhnsn Valley ccur in cnjunctin with ne rganized race, the annual King f the Hammers race. The assumptins abve were used t predict the ecnmic impacts f the preferred alternative in the Final EIS. These impacts are summarized belw: Direct reginal (cuntywide) impact frm lst sales and tax revenue related t reduced recreatinal and film industry spending reflects a reductin f $216,000 cmpared t estimated baseline spending f $8.5 millin. Direct lcal impact (within 50 miles f Jhnsn Valley) frm lst sales and tax revenue related t reduced recreatinal and film industry spending reflects a reductin f $1.5 millin cmpared t estimated baseline spending f $6 millin. The reductin in lcal spending is higher than the estimated reductin in cuntywide spending because much f the displaced recreatinal (dispersed use nly) and film industry activity frm the lcal area is expected t shift t lcatins elsewhere within the cunty. Small indirect impact t OHV industry sales frm a reductin in recreatin visitrs t Jhnsn Valley; BLM estimates that 90 percent f dispersed use OHV visitrs t Jhnsn Valley wuld shift t ther recreatinal areas in San Bernardin cuínty, and mst visitrs nt returning t the cunty wuld likely cntinue t enjy OHV recreatin elsewhere. In general, OHV enthusiasts are nt expected t give up the activity entirely because f reduced pprtunities at Jhnsn Valley. Beneficial impacts (direct and indirect) frm a net gain in reginal sales ($7.5 millin), incme ($4 millin), and emplyment (110 jbs) frm the M~AGCC persnnel increase wuld ffset the lss in recreatinal and film industry spending. Sufficient capacity exists t absrb the added demand fr husing and cmmunity services. e Indirect adverse impacts may ccur n individual small businesses that are primarily dependent n recreatinal visitr spending. Direct impact frm acquisitin f 105 parcels f private prperty, including ne residence, abandned mines and vacant parcels (n perating businesses are in the acquisitin area). This 4

6 impact is manifested in part by the reductin ($28,456 r percent f cunty ttal) in prperty tax revenues t lcal jurisdictin fr,n the acquisitin f private land. In additin, acquisitin f the Mrris Lde Mine (and pssibly ther similar mines) wuld preclude future develpment qf a lcal surce f irn re frm these mines. Prperty values are nt anticipated t decrease directly r indirectly as a result f increased nise frm Marine Crps training. Indirect impact (higherfeel csts) related t civil aviatin impacts are expected t ccur. Impact t livestck ranching and farming industries due t the marginal lss f land fr grazing. The Shared Use Area that will be pen t OHV use JO mnths per year includes the unique and ppular rck crawling trails knwn as the Hammers. cngressinal designatin f the Jhnsn Valley OHV Recreatin Area wuld create a permanent lcatin fr OHV recreatinal activities, smething that currently des nt exist. (C) Identify any cncerns discussed with the Bureau f Land Management regarding their assessments f the impact n ther users. RESPONSE: The BLM agreed t act as a Cperating Agency fr the preparatin f the EIS. The Barstw Field Office f BLM participated in internal dcument reviews, respnses t public cmments, and cnfirmatin f analytical assumptins and cnclusins. The impact analyses fr Recreatin and Sciecnmics ~relied n BLM-prvided visitr use data estimates and n BLM-apprved assumptins n anticipated reductins in visitr use and ther related impacts. BLM s cmments during preparatin f the EIS related primarily t the dispersal f OHV recreatinal use and management f the withdrawn lands. Specifically, they were cncerned that Jhnsn Valley OHV users wuld migrate int ther OHV areas that are already heavily used; and Jhnsn Valley OHV users wuld trespass n areas nt set aside fr OHV use. These cncerns were cnsidered in the analyses f ptential prject-related impacts in the EIS, including expanding the Shared Use Area by abut 5,000 acres. A Displaced Off-Highway Vehicle Recreatin Study was prepared t evaluate OHV impacts n ther areas. With regard t management f the withdrawn lands fr recreatinal purpses, BLM prpsed, and the Marine Crps cncurred, that BLM shuld retain management f the Shared Use Area fr recreatin 10 mnths per year. The Marine Crps wuld manage the Shared Use Area fr the tw 30-day MEB exercises annually. (D) Identify the impact n the State f Califrnia s 1980 Desert Cnservatin Plan regarding allcatin f the Off Highway Vehicle Recreatin Areas. RESPONSE: The 1980 Califrnia Desert Cnservatin Area (CDCA) Plan and ther resurce management plans ptentially affected by the prpsed actin are described in Sectin 3.! f the Final EIS (Ixind Use). Three resurce management plans are in effect in the C alifrnia Desert in the vicinity f the prject, each addressing a different prtin f BLM s CDCA planning area. These plans cnstitute amendments t the /980 CDCA Plan. West Mjave Plan Amendment t the CDCA Plan (2006) Nrthern and Eastern Clrad Desert Crdinated Management Plan Amendment t the CDCA Plan (2002) Nrthern and Eastern Mjave Desert Management Plan Amendment t the CDCA Plan (2002) 5

7 The ptential impacts t existing resurce management plans and plicies, including the CDCA Plan and its amendments are discussed in Sectin 4.1 f the Final EJS. The EJS fcuses primarily n impacts t the Jhnsn Valley OHV Area Management Plan regarding allcatin f OHV areas. The Preferred Alternative wuld result in incnsistencies with plans and designatins including the Ord Muntain Grazing Alltment, Jhnsn Valley Area f Critical Envirnmental Cncern (ACEC), and San Bernardin Cunty residential and pen space land use designatins that wuld he less than significant. Incnsistencies with the Jhnsn Valley OHV Area Management Plan are unavidable due t the fact that greater access is current/v allwed by the Management Plan than wuld he allwed in the prpsed Shared Use Area. As nted abve, the Preferred Alternative was crafted t minimize these impacts t the degree cnsistent with MEB training requirements and public safety. (E) Prvide an evaluatin f the ptential t use the same land withut transfer, but under specific permits fr use prvided by the Bureau f Land Management (as such permits are used at ther lcatins frm the Frest Service and Bureau f Land Management). RESPONSE: We examined the ptential t use public dmain land withut transfer f management, such as a pursuant t a Use Permit. We cncluded that a permit wuld nt allw the Marine Crps t cnduct MEB-level training. The Federal Land Plicy and Management Act (FLPMA) nly accmmdates mnilitary use f public dmain lands via rights-f-way, land withdrawals, r ne-time use via a Memrandum f Understanding (MO LI). As described earlier, the scpe and intensity f MEB -level training, which will use dud-prducing rdnance, is nt cnducive t a ne-time MOU, permit, r ther nn-pssessry real estate interest. If custdy f the prpsed land area was nt transferred t DD, the Marine Crps wuld nt have sufficient institutinal authrity and cntrl t cnduct the required training perations, nr culd the Marine Crps be assured that the area wuld be available int the future t meet the requisite training the very purpse and need fr the prject. Additinally, such a temprary use wuld nt give the FAA sufficient jusqficatin t assign the Special Use Airspace t the Department f the Navy required t supprt live fire training, including aerial delivered rdnance. The Marine Crps and BLM will frmally establish a Resurce Management Grup t develp best practices fr recreatinal managemnent cnsistent with militamy training needs in the Shared Use Area. This partnership will prvide cntinual crdinatin between the Marine Crps and BLM. (F) Prvide an evaluatin f any ptential n ther Bureau f Land Management lands prximate t the Marine Crps Grund Air Cmbat Center Twentynine Palms r ther lcatins in the gegraphic regin. RESPONSE: As explained in the EIS, the Marine Crps cnsidered several ther gegraphical alternatives t the prpsed actin alternatives but did nt carry themn frward fr analysis in the Final EJS because they culd nt meet the prject s purpse and need. Nne f the cnsidered hut eliminated alternatives were feasible fr reasns discussed in the Final EIS (pages 2-96 thrugh 2-100). The fllwing alternatives were cnsidered bitt eliminatedfrm further analysis: Cnduct MEB-sized MAGTF Training at Other Marine Crps Bases in the U.S. Train Using Simulated Envirnment De-Designate Existing Cngressinally-Designated Wilderness Areas in the East Study Area Acquire Land t the Nrth f the C mnbat Center Acquire Land t the Sutheast f the Cmbat Center 6

8 Establish the MEB Objective in the East Study Area Expand t tize Clrad River Expand t Marine Crps Lgistics Base, Barstw Link with Other Bases in the Suthwest Cnduct Training at U.S. Army s Natinal Training Center, Frt Irwin Nn-Withdrawal f the Shared Use Area 7

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