San Diego Association of Governments - … · Web viewThe San Diego Association of Governments (SANDAG) is the region’s Metropolitan Planning Organization and Regional Transportation

IntroductionBackground and ContextThe San Diego region is home to the largest military presence in the country, employing approximately 140,000 active duty military personnel and civilian employees1 and generating significant economic benefit to the region. The military presence in the region includes several military installations including Marine Corps Base Camp Pendleton (Camp Pendleton), Marine Corps Air Station Miramar (Miramar), Naval Base Coronado (NBC), Naval Base Point Loma (NBPL), and Naval Base San Diego (NBSD). Each military installation in the region is an integral component of the national defense strategy.

As urban growth and development around military installations increase, land use, transportation, and concerns regarding conflicts between base operations and civilian development have increased. A major concern for the regional transportation network is the considerable traffic congestion on municipal roads and freeways leading up to the gates of military installations. With a projected growth of nearly a million people in the region by 20502 and the national defense’s “Pivot to Pacific”3 effort, traffic congestion surrounding military activities is projected to increase. Military-related traffic congestion impacts the demand on the regional transportation network; contributes to the region’s greenhouse gas (GHG) emissions; and affects the military’s ability to move goods, equipment, and personnel that are essential to national security. Thus, it is necessary for the region to study and implement sustainable transportation options for military personnel and civilian employees to address regional traffic congestion and achieve regional GHG reduction goals.

The San Diego Association of Governments (SANDAG) is the region’s Metropolitan Planning Organization and Regional Transportation Planning Agency. As such, SANDAG is uniquely positioned to bring together decision-makers from all areas of the region including public agencies, local jurisdictions, and military facilities to make informed decisions while planning for the region’s future. It is important to coordinate planning efforts with decision-makers from all areas of the region to ensure a regional framework that promotes a prosperous economy, an efficient transportation system, and thriving communities. Through joint, cooperative military and community planning, growth conflicts can be planned for and mitigated.

In 2015, the SANDAG Board of Directors adopted San Diego Forward: The Regional Plan (Regional Plan), which charts a course to lower GHG emissions through focused land use

planning and investments in transportation improvements that provide workers and residents with travel choices. Preparation of a Regional Military Multimodal Access Strategy is a near-term action identified in the Regional Plan intended to enhance planned regional transportation investments with supporting regional and local projects, operational improvements, and programs that facilitate access to the region’s diverse and dispersed military facilities for the benefit of all the region’s residents.

Regional Military Multimodal Access Strategy The Regional Military Multimodal Access Strategy (Strategy) is a collaboration between SANDAG, members of the San Diego Military Working Group, and key public agencies that influence regional transportation planning including the California Department of Transportation (Caltrans), the County of San Diego, North County Transit District (NCTD), and San Diego Metropolitan Transit System (MTS).

As part of the Strategy, the Military Multimodal Access Strategy: Existing Conditions Report (Report) describes the current trends and conditions of the military facilities in the region. Through extensive research and stakeholder interviews, the Report documents the following:

existing military partnerships commuting patterns of military and civilian personnel existing transportation options within the vicinity of various military installations challenges to mobility related issues surrounding various military installations areas of the transportation network that need to be addressed to alleviate traffic

congestion related to military facilities both locally and regionally

SANDAG | MMAS Existing Conditions Report DRAFT PART I09/28/2018

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The Report uses data from public and private sources to discuss the trends and conditions of military facilities in the San Diego region. This document seeks to:

Share information on the current dynamics of the military in the region, Provide stakeholder perspective on military access and mobility, and


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Provide data to make informed decisions.

The information provided in this Report will be used to develop the final Strategy document, which will identify key multimodal transportation projects and programs that will improve mobility for military facilities while meeting regional, state, and federal goals.

Project AreaThe project area of the Report is the entire San Diego region, including 18 cities, unincorporated areas of the County of San Diego, and several military facilities (see Figure 1).

Report Organization This Report is divided into two parts.

Part I - The Current Setting of the Region discusses trends in military collaboration, demographics, housing, and commuting patterns.

Part II - Stakeholder Profiles summarize the existing setting surrounding stakeholders. Stakeholders include the military installations in the region, adjacent local jurisdictions, and key agencies such as Caltrans, SANDAG, NCTD, and MTS. Profiles for military installations include an overview of the base, existing connectivity, commuting patterns of military personnel, gate access, and existing challenges.

Relevant Project StakeholdersStakeholders from around the region who have an impact on the regional transportation system or military operations were included in the development of the Report (Table 1).

Military Stakeholders include representatives from the military facilities located within the region’s borders.

Jurisdiction Stakeholders include staff members such as planners and traffic engineers from cities adjacent to military facilities.

Public Agency Stakeholders include staff members from agencies involved in regional decision-making in the areas of land use, housing, transportation, goods movement,

and other

related areas. This includes transit operators and state and local public agencies.


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Part 1: Regional FrameworkMilitary CollaborationGiven the significant military presence in the San Diego region, collaboration between key-decision makers from public agencies and the military is a necessary part of regional planning and infrastructure efforts. Collaboration between SANDAG, the military, local jurisdictions, and other public agencies is key to designing a transportation system that connects the region, works for people living and working in the region, and fosters a high quality of life for all. This collaboration is especially critical when determining projects and programs to fund and implement in the Regional Plan. The Regional Plan is a federally- and state-mandated document that presents the overall vision for how the San Diego region will grow through 2050, including all transportation-related investments that will be needed to support that vision.

SANDAG has created a framework to help facilitate discussion and collaboration between the military, local jurisdictions, and transit agencies. In 1980, SANDAG and the U.S. Department of Defense (U.S. DoD) entered into a Memorandum of Agreement (MOA) for the purpose of assuring cooperative and mutually beneficial working relationship. The MOA included the addition of an advisory position for the U.S. DoD on the SANDAG Board of Directors as a way to provide input on issues and areas of mutual interest, including growth management, habitat, transportation, regional growth, housing, water, energy, and other topics. The MOA was updated in 1986 and again in 2017 to reflect the formation of the San Diego Regional Military Working Group (MWG) and changing conditions in the region.

Military Working GroupIn light of continued military growth and influence in the region, the Regional Planning Committee formed the MWG in 2013. The MWG includes representatives from all military branches with installations in the region, adjacent local jurisdictions, as well as SANDAG and the Port of San Diego (Table 2). The MWG allows for relevant stakeholders to coordinate programs, address issues of concern, and determine the best ways in which the military can support regional prosperity and the region can support the effective operations of the military. The MWG also provides input on SANDAG projects as they relate to the local military community.

2017 Memorandum of Agreement The MOA adopted by the SANDAG Board of Directors in 2017 reflects SANDAG’s current partnership with the U.S. DoD (see Appendix A). It outlines the following roles and

responsibilities between SANDAG and the U.S. DoD:

SANDAG will review current activities and plans being implemented by various military installations in the County of San Diego.

SANDAG will coordinate programs, address issues of concern, and determine the best ways in which SANDAG can support effective operations of the military.

SANDAG will assist with outreach to the military community on issues of regional significance, including development of the regional growth forecast and the Regional Plan.

Commander, Navy Region Southwest (CNRSW) will represent the Armed Forces as a Department of Defense liaison to SANDAG

Military branches relevant to the region will support the MWG consistent with its charter and relevant SANDAG policy advisory committees.

The MWG will periodically review and recommend updates to the MOA as needed.

Military Community & CultureOverviewThe military provides a variety of jobs for federal employees and bring military personnel, military families, civilian employees, private contractors, and veterans into the region. This section discusses characteristics and the culture associated with the military population, such


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as the different branches, the length of commitment, type of employment of military personnel,

and chain of command.

Military StructureThere are five military service branches, all with different skills and missions. Each branch has its own unique traditions, language, value systems, and procedures. The five branches include the following:

U.S. ArmyThe Army is the largest and oldest branch of the military. The Army’s mission is to defend the land of the U.S., its territories, commonwealths, and possessions. The Army protects its mission by providing forces and the means for sustained combat and stability operations on land. The Army also provides logistics and support to the other military service branches. Members of the army are called soldiers.

U.S. Marine CorpsThe Marine Corps is responsible for conducting amphibious operations with the U.S. Navy (Navy). Their mission is to win the nation’s battles swiftly and aggressively in times of crisis by fighting on land, sea, and air. This branch maintains ready expeditionary forces, sea-based, and integrated air-ground units for contingency and combat operations, and the means to stabilize or contain international disturbance. The Marine Corps is an immediate response force of the military. Members of the Marine Corps are known as marines.

U.S. Air ForceThe Air Force is the aerial and space warfare service of the military. The mission of the Air Force is to fly, fight, and win – in air, space, and cyberspace. The Air Force provides a rapid, flexible, and when necessary, lethal air and space capability that can deliver forces anywhere in the world. It routinely participates in peacekeeping, humanitarian, and aeromedical evacuation missions. Members of the Air Force are known as airmen.

U.S. NavyThe Navy is the seaborne branch of the military. The mission of the Navy is to maintain, train, and equip combat-ready Naval forces capable of winning wars, deterring aggression, and maintaining freedom of the seas. Members of the Navy are referred to as sailors.

U.S. Coast Guard

The Coast Guard provides law and maritime safety enforcement, marine and environmental protection, and naval support. Activities can include patrolling U.S.

shores, performing emergency rescue operations, containing and cleaning up oil spills, and keeping illegal drugs from entering American communities. Members of the Coast Guard are called coast guardsmen.

Together, these branches are known as the Armed Forces. The Amy, Navy, Air Force, and Marines are housed under the DoD. Each branch is headed by a military general or admiral who are collectively known as the Joint Chiefs of Staff. The Coast Guard is housed under the Department of Homeland Security during peacetime and can serve as part of the Navy during times of war.

Types of Military PersonnelThere are various types of military personnel such as active duty members, reserve members, national guard members, civilian contractors and veterans.

Active Duty: Active duty service members are full-time members of the military and may live on base or off-base in military housing or other housing options available when not on deployment.

Reserve: Reserves are part-time service members that are available for active duty in the armed forces when needed. Their part-time status affords them the time to pursue a civilian career or college education while simultaneously serving their country. Members of the Reserve attend boot camp and are required to participate in training drills one weekend a month as well as a two-week program each year. Some active duty service members switch to reserves to finish out their service commitment. Each military branch has a Reserve component. Members are known as reservists.

National Guard: The National Guard consists of the Army National Guard and the Air National Guard. While federally funded, the National Guard is organized and controlled by the state. However, in times of war, the National Guard can become federalized and deployed. The National Guard’s focus is on homeland security and humanitarian relief. In addition to training drills one weekend a month and two weeks per year, National Guard units assist communities in their state during emergencies like storms, floods, fires, and other natural disasters. Members of the National Guard are referred to as guardsmen.


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Civilian: A civilian is a person who is not on active duty with a military, naval, police, or firefighting organization. The military employs both civilian employees and private

contractors. o Civilian Employees are non-elected and non-military, public sector

employees employed by the Department of Defense (DoD). o Private contractors are individuals or private companies that produce

goods or services under contract with the DoD to perform a specific job, supply labor and materials, or sell products and services that benefit the military.

Veteran: A military veteran is a person who has served in the armed forces and who was discharged or released under conditions other than dishonorable. Veterans continue to receive military benefits through the Department of Veterans Affairs (VA), including healthcare services at VA hospitals. Veterans may also serve as guardsmen or reservists.

Temporary vs. Long-Term CommitmentsSome military commitments are temporary in nature such as training, shore duty (versus at sea), and short-term assignment. Other commitments are long-term such as those by local civilian contractors, military personnel on long-term assignment and their families, and veterans that choose to stay in the region. Both temporary and long-term commitments affect the region’s economy and transportation network as it causes an influx of people into and out of the region.

Military CultureEach branch of the military has its own set of core values that the members of that branch are expected to live by on and off duty. Though each branch’s core values vary slightly, their purposes are the same – to establish a standard of expectations, conduct, and governance over the military personnel’s life.

Structure and rules enhance the operations and organization of the military and are integral to the military culture. One of the values of the military is respect for authority and its hierarchical structure. Within each branch, there are clear hierarchies, or systems of individuals arranged in a ranked order (see Appendix B). This hierarchy is called the chain of command, which represents the line of authority and responsibility along which orders are passed within a military unit and between different units.

An individual’s placement in the chain of command determines his or her level of authority. Orders are passed down the chain of command, from higher ranked military personnel to

lower ranked military personnel until the orders reach the individual who implements them. Requests move up the chain of command until they reach the individual who has the authority

to make

decisions regarding the type of request.

Being familiar with military terminology and its culture will help provide an understanding for how the military community operates, the lifestyle of military personnel, and the potential reasons for how they travel within the region.

Expectations of Southern CaliforniaCalifornia has 32 military bases within its borders - more than most states. The Navy and Marine Corps’ bases are most heavily clustered around San Diego. There are three Marine bases and seven Navy bases located in the region. Military personnel coming to Southern California, especially the San Diego region, expect great weather and to drive their personal vehicle to explore. The size of the San Diego region and distance between urbanized pockets lends itself to have a reputation of a single occupant vehicle-oriented area. Important transit investments continue to be made in the region that will influence future mobility decisions. Other military-intensive areas in the country such as the Washington D.C. area have had their transit infrastructure in place for decades and are more reliant on transit to move people. People who live or move to Southern California, including the active duty, recruit, reserve and guard members prefer to drive their car, motorcycle or truck because of the moderate weather.

Regional Commuting Patterns of Military PersonnelOverviewUnderstanding the commuting patterns of the region’s military community is key to evaluating and understanding the existing regional travel demand. Each member of the military community, including active duty members, civilian employees, and temporary contractors, contribute to the travel demand associated with military facilities. Military personnel’s place of residence or origin can affect the transportation options available to them and their commute choice to the military installation where they work. This section discusses the state of commute for the military community and region by looking at the origins of military personnel and the typical travel patterns seen in the region.

Military Personnel Housing Options


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Members of the military community reside throughout the region – in on-base housing, off-base military housing, or other housing options in local jurisdictions. On- and off-base military

housing is available for any active duty individual ranked E01 and higher. On-base military housing comes in multiple forms including barracks, family housing, ships in port, and temporary lodging. Barracks are used by single military personnel. Family housing are for military personnel with families. If a ship is in port, single military personnel may be required to live onboard their ship. Temporary lodging is available for military personnel visiting a base or stationed at a base temporarily due to reassignment or ships being docked. Off-base military housing is located throughout the region and is primarily used by military personnel, their spouses, and their dependents (see Appendix C). Military personnel can also find their own housing in the jurisdiction of their choice and receive a housing stipend known as a Basic Allowance for Housing (BAH).

There are multiple factors limiting active duty, civilian employees, and private contractors from living near a base. All military bases within the region, with the exception of Miramar, are located along the Pacific Ocean coastline which have higher housing costs compared to inland areas. The lack of affordable housing along the coastline contributes to the difficulty military personnel experience when trying to find nearby neighborhoods to live.

Military Personnel OriginsBased on available iCommute Commuter Survey data from various military installations, a large number of military personnel live in jurisdictions in East and South County4 (Figure 3). Based on the data, military employees also are commuting from outside the region, specifically from Riverside County and Orange County4. A large portion of military personnel are commuting from communities in the City of San Diego and Chula Vista.

Private contractors are also part of the military community as they help military installations with maintenance, ship repair, and ship building services. Contractors commute to various military installations surrounding the San Diego Bay such as NBSD, NBC, and NBPL. Based on available iCommute data for BAE Systems and Continental Maritime, two naval contractors, contractors primarily reside in jurisdictions in East and South County4 (Figure 4). It also is important to note that contractors often are brought in from other cities and stay at hotels near the bases where they are working.

Military Commuting Patterns

The commute of military personnel is influenced by a number of factors such as parking availability, cost, travel time, and available commute options near their place of residence. Since employees live as far as 30 miles away from the facility where they are stationed, single

occupancy vehicles and transit are the only feasible forms of commuting. However, iCommute Survey data shows that military personnel primarily drive most work days due to the

convenience and flexibility of having their car to meet their dynamic work schedules and address unforeseen emergencies (see Appendix D). The freeway network, therefore, plays an important part of their travel to and from work. Because many military personnel and contractors live in East and South County, the freeways in those areas are prime routes to work. Part II provides more in-depth information for the origins and commuting patterns of each military installation in the region.

Regional GrowthPopulation and job growth in the San Diego region continues to increase, impacting the regional transportation network. Today, the region is home to more than 3.2 million people4 most of whom live in the region’s 18 incorporated cities. Every year that number, as well as the number of jobs and homes, increases.

Overview of Forecasted Regional GrowthThe SANDAG Regional Growth Forecast, adopted by the SANDAG Board of Directors in 20135, is projecting an upward trend for regional growth. By 2050, the region’s population is projected to grow by nearly a million people (Table 3). This growth will lead to about 460,000 more jobs and over 325,000 more apartments, condos, houses, and other types of housing by 2050.

SANDAG forecasts a general intensification of existing land uses within urban communities and along key transportation corridors. This forecast projects that the region will create more compact communities in the western third of the San Diego region, which is where military installations are located. As growth and development increase near and around military installations, concerns about land use, transportation, and conflicts between base operations and civilian development have increased. Demands on the transportation network will increase as well, which affects how military personnel and civilian workers commute.


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Military Growth

The military community in the region is growing and is projected to continue to grow due to national defense policies and plans. The military has been contributing to regional growth over the past few years. The total number of active duty personnel and civilians employed by the military has increased by about 5% from 2016 to 2018 (Table 4).

U.S. DoD is expecting a growing military workforce in the region due to the national defense’s “Pivot to Pacific”3 military strategy. This national defense strategy focuses on expanding and intensifying U.S. military presence in the Asia-Pacific region by moving forces, including ships, from the Atlantic to the Pacific. The San Diego region’s military installations play an important part in executing this strategy due to its location, extensive training and operation facilities, and the large number of military personnel already based in the San Diego Region. Today, one out of every six sailors in the nation, and one out of every four marines in the nation are stationed in San Diego6.

As a result of the “Pivot to the Pacific” strategy, the region’s military sector and related industries such as shipbuilding will experience significant growth. By 2025, the U.S. Navy have plans to add 20 ships and 15,000 sailors (plus their families) to the region6. The region’s shipbuilding and repair contractors will increase to support the demand for new ships in addition to upgrading older vessels and performing ongoing maintenance of an expanding West Coast ship fleet.

The growing military workforce is a critical part of how the region will develop. With the upward trend in military and civilian population, it is important to develop and implement sustainable transportation options that prepare the regional transportation network for the forecasted growth. If more sustainable transportation infrastructure projects and programs are not implemented, the transportation network as it exists today will be unable to meet the future demand of the military and region. In order to understand the current constraints on the transportation network and challenges facing access to military facilities, the existing commuting patterns and gate access for the military facilities are discussed in Part II of the report.


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Documents

San Diego Association of Governments - … · Web viewThe San Diego Association of Governments (SANDAG) is the region’s Metropolitan Planning Organization and Regional Transportation