Inside Chapter 1... 1.1. What is a Joint Land Use Study?... 1 2 1.2. Why Prepare a Joint Land Use Study?... 1 3 1.3. Public Outreach... 1 3 1.4. JLUS Study Area... 1 8 1.5. JLUS Bacground Report Organization... 1 8 Military installations are critical to local economies, generating thousands of jobs and millions of dollars in economic activity and tax revenue annually. Just as these installations are important to the surrounding region, the local community is critical to the success of installations. This mutual dependence has brought about the need for compatibility between installations and their communities. Across the United States (U.S.) incompatible development, also nown as encroachment, has been a factor in the loss of military training operations and the realignment of mission critical components to other military installations. The loss of military missions and the closure of military installations have had a major negative economic impact on communities that are or were the home of these installations. To protect the missions of local military installations and the economic and social health of the host communities, encroachment must be addressed through collaboration and joint planning. The uniqueness of each installation requires distinctive approaches for each community. Keesler Air Force Base s (AFB) geographic and economic characteristics mae it an integral focus of community development. Keesler AFB is situated in the City of Biloxi in Harrison County, Mississippi approximately 165 miles south of the state capital, Jacson, and 88 miles east of New Orleans, Louisiana. The installation occupies approximately 1,719 acres of land in the City of Biloxi and Jacson County. The installation comprises the Air Force Base in Biloxi, three privatized housing areas in Biloxi proximate to the base, one former housing site currently vacant in Biloxi, and one privatized housing area in unincorporated Jacson County east of Biloxi. Keesler AFB is critical to local and regional economies, generating approximately $657 million in economic impact annually. March 2017 Draft Bacground Report Page 1 1
The area around Keesler AFB continues to experience economic growth and development. Several jurisdictions surrounding Keesler AFB participated as partners in this JLUS including the cities of Biloxi and D Iberville, Harrison County, and Keesler AFB. This JLUS is a proactive approach to mitigate existing compatibility issues and prevent their development by strengthening coordination between local communities, agencies, the public, and Keesler AFB. The JLUS provides an organized communication effort between the cities of Biloxi and D Iberville, Harrison County, Keesler AFB, and other staeholder entities that own or manage land or resources in the region to ensure that future regional growth is not only compatible with Keesler AFB training and mission activities, but respects the goals and aspirations of the host communities. The Keesler AFB JLUS advocates for coordinated land use planning, policy and regulation, conservation and natural resource management, infrastructure investments, and other common issues affecting the study area communities and the military. This Study sees to avoid conflicts previously experienced by the U.S. military and local communities by engaging the military and local decision maers in a collaborative planning process. 1.1. What is a Joint Land Use Study? A JLUS is a planning process accomplished through the collaborative efforts of staeholders in a defined study area to identify compatible land uses and growth management guidelines within, and adjacent to, an active military installation. These staeholders include local community, state, and federal officials, residents, business owners, federal resource agencies and landholders, nongovernmental organizations, and the military. The process is intended to establish and encourage a woring relationship among military installations and proximate communities to prevent and / or reduce encroachment issues associated with future mission expansion and local growth. While one of the primary funders is the Department of Defense (DOD), Office of Economic Adjustment (OEA), this JLUS is produced by and for local communities and was also primarily funded by the Mississippi Development Authority. The project sponsor and grant administrator for the Keesler AFB JLUS is the City of Biloxi; the project is managed by the Gulf Regional Planning Commission. JLUS Goals and Objectives The goal of the Keesler AFB JLUS is to protect the viability of current and future operations, while simultaneously guiding community growth, sustaining the environmental and economic health of the region, and protecting public health, safety, and welfare. To help meet this goal, three primary guiding principles provide the foundation for the JLUS effort: Understanding. Convene community and military representatives to identify, confirm, and understand compatibility issues and concerns in an open forum, considering both the community and military perspectives and needs. This includes increasing public awareness, education, and opportunities for input organized in a cohesive outreach program. Page 1 2 Draft Bacground Report March 2017
Collaboration. Encourage cooperative land use and resource planning between Keesler AFB and surrounding communities so that future community growth and development are compatible with the Keesler AFB missions and operations, while seeing ways to reduce operational impacts on land within the study area. Actions. Provide a set of mutually supported tools, activities, and procedures from which local jurisdictions, agencies, and Keesler AFB can select, prepare, and approve / adopt in order to implement recommendations developed during the JLUS process. The actions include both operational measures to mitigate installation impacts on surrounding communities and local government and agency approaches to reduce community impacts on military operations. These tools help decision maers resolve compatibility issues and prioritize projects within their annual budgeting cycles. 1.2. Why Prepare a Joint Land Use Study? Although military installations and nearby communities are separated by a defined property boundary, they often share natural and manmade resources such as land use, airspace, water, and infrastructure. Operational areas such as flight patterns and specialized airspace expand the military influence area footprint beyond defined property boundaries. Despite the many positive interactions among local jurisdictions, agencies, and the military, and because so many resources are shared, the activities or actions of one entity can create unintended impacts on another, resulting in conflicts. As communities develop and expand in response to growth and maret demands, land use approvals can potentially locate incompatible development closer to military installations and operational areas. The result can generate new, or exacerbate existing, land use and other compatibility issues, which can negatively affect community safety, economic development, and sustainment of military activities and readiness. This threat to military readiness is currently one of the military s greatest concerns. Collaboration and joint planning among military installations, local jurisdictions, and agencies protect the long term viability of existing and future military missions. Woring together also enhances local economies and industries before compatibility becomes an issue. Recognizing the close relationship that should exist between installations and adjacent communities, the OEA implemented the JLUS program to mitigate existing and future conflicts and enhance communication and coordination among all affected staeholders. This program aims to preserve the sustainability of local communities while protecting current and future research, development, acquisition, testing, and missions at Keesler AFB. 1.3. Public Outreach The JLUS process was designed to create a locally relevant document that builds consensus and garners staeholder support. To achieve the JLUS goals and objectives, the Keesler AFB JLUS process included a public outreach program providing a variety of participation opportunities for interested parties. Staeholders An early step in any planning process is staeholder identification. Informing and involving staeholders early is instrumental to identifying, understanding, and resolving their most important issues through the development of integrated strategies and measures. Staeholders include individuals, groups, organizations, and governmental entities interested in, affected by, or affecting the outcome of the JLUS document. Staeholders identified for the Keesler AFB include: Jurisdictions (cities of Biloxi and D Iberville and Harrison County) DOD officials (including OEA representatives) and military installation personnel Local, county, regional, and state planning, regulatory, and land management agencies March 2017 Draft Bacground Report Page 1 3
State and federal regulatory agencies The public (including residents, businesses, and landowners) Environmental advocacy organizations Nongovernmental organizations (NGOs) Other special interest groups (including local educational institutions and school districts) Policy Committee and Technical Advisory Groups The development of the Keesler AFB JLUS was guided by two committees and one subcommittee, comprising community leaders, Keesler AFB personnel, federal and state agencies, resource agencies, local governments, and other staeholders. JLUS Policy Committee. The Policy Committee (PC) consisted of officials from participating jurisdictions, military installation leadership, and representatives from other interested and affected agencies. The PC was responsible for the overall direction of the JLUS, preparation and approval of the study design, policy recommendations, and draft and final JLUS documents. JLUS Advisory Committee. Membership of the Advisory Committee (AC) included representatives from local jurisdictions, agencies, and Keesler AFB with technical expertise in one or more of the compatibility factor issue areas. The AC was responsible for identifying and studying technical issues. The AC assisted in data gathering, provided technical input, and reviewed the JLUS issues and recommendations. The AC identified and addressed technical issues, provided feedbac on report development, and assisted in the development and evaluation of implementation strategies and tools. Technical Committee (TC) also assisted with and provided information for the development of strategies relative to their expertise and experience. The responsibilities and list of participants for the JLUS sponsor, project manager, PC, AC, and Technical Subcommittees are identified in Tables 1 1 through 1 5, respectively. Table 1-1. Responsibilities JLUS Sponsor Responsibilities and Participants Accountability Grant Management Financial Contribution Table 1-2. Responsibilities Participants Office of Economic Adjustment City of Biloxi Mississippi Development Authority JLUS Project Manager Responsibilities and Participants Accountability Project Management Participants Gulf Regional Planning Commission Table 1-3. JLUS Policy Committee Responsibilities and Participants Responsibilities Participants Policy Direction Study Oversight Monitoring JLUS Report Adoption City of Biloxi City D lberville Harrison County Keesler Air Force Base Mississippi Development Authority JLUS Technical Committee. The need to include additional technical members was necessary to ensure that all issues have adequate representation through technical and local nowledge. These additional members who comprised the Page 1 4 Draft Bacground Report March 2017
Table 1-4. Responsibilities JLUS Advisory Committee Responsibilities and Participants Synthesize materials, reports, and recommendations from Technical Subcommittees Schedule / Agendas / Presentations for Policy Committee Participants Gulf Regional Planning Commission City of Biloxi City of D lberville Harrison County Harrison County Development Commission Keesler Air Force Base Table 1-5. JLUS Technical Committee Responsibilities and Participants Responsibilities Participants Technical Issues Alternatives Report Development Recommendations Biloxi Chamber of Commerce Biloxi Housing Authority Biloxi Planning Commission Biloxi Public School District City of Biloxi City of D lberville Gulf Coast Housing Initiative / Bac Bay Mission Harrison County Development Commission Keesler Air Force Base Mississippi Coast Chamber of Commerce Mississippi Department of Environmental Quality Mississippi Department of Marine Resources Mississippi Power Mississippi Department of Transportation North Biloxi Chamber of Commerce Southern Mississippi Planning and Development District Committee meetings were held throughout the process to ensure that the JLUS identified and appropriately addressed local issues: Project Kic Off / PC / AC / TC Meeting #1 (May 3, 2016). The project Kic Off Meeting was held as a joint meeting with members of the PC, AC and TC in conjunction with the Tiger Team interviews. The purpose of this meeting was to outline the JLUS process and goals, educate all staeholders about the Keesler AFB JLUS and their roles and responsibilities in the process. Additional topics discussed included an overview of JLUS compatibility factors, review of preliminary issues, review of lessons learned from other JLUS projects, and identification of any additional compatibility issues. Meeting attendees participated in an interactive survey with results provided in real time and had an opportunity to as questions about the JLUS. AC / TC Meeting #2 (August 23, 2016). The second AC / TC Meeting provided an update to the JLUS. During the meeting, an overview of the first public worshop was provided, as well as an overview of preliminary compatibility issues and findings summary. The meeting continued with a discussion of missing data needs that the technical committee could potentially provide. PC Meeting #2 (August 24, 2016). The second PC Meeting provided an update to the JLUS. During the meeting, an overview of the first public worshop was provided, as well as an update on the Technical Committee meeting, both of which occurred the day before. In addition to these updates, an overview of preliminary compatibility issues was summarized. AC / TC Meeting #3 (November 21, 2016). The third AC / TC Meeting provided an update of the JLUS progress, a review of the ey compatibility issues in Bacground Report Chapter 5, preliminary strategy discussion regarding military influence areas and ey approaches, and a discussion of next steps. March 2017 Draft Bacground Report Page 1 5
AC / TC Meeting #4 (February 24, 2017). The fourth AC / TC Meeting provided an update of the JLUS progress and focused on the review of preliminary strategies to address the compatibility issues. The AC and TC reviewed each of the strategies and provided recommendations for changes to the preliminary strategies that would be made prior to electronic distribution to committee members for a more in depth review. The meeting closed with a discussion of next steps. PC Meeting #3 4 (TBD) ** Meeting details will be provided as meetings occur. PC / AC Meeting #5 (TBD) ** Meeting details will be provided as meetings occur. Public Worshops In addition to the PC and AC meetings, a series of public worshops were held throughout the development of the JLUS. These worshops provided an opportunity for the exchange of information with the greater community, assisted in identifying the issues to be addressed in the JLUS, and provided input on the proposed strategies. Each worshop included a traditional presentation and a facilitated exercise providing a hands on interactive opportunity for the public to participate in the development of the plan. A brief summary of these meetings is provided below. Public Worshop #1 (August 23, 2016 and August 25, 2016). Public Worshop #1 was held in two locations on two different dates. The purpose of the meeting was to provide the public information on the JLUS. During the meeting an overview of the JLUS planning process was provided; opportunities for public involvement were discussed; an overview of Keesler AFB was given; and compatibility factors were discussed. The public participated in a survey with results presented to the audience in real time to gauge attendees understanding of Keesler AFB and to provide insight into potential compatibility issues. Each survey was tailored to the respective meeting area. Participants completing the interactive survey at the combined Committee Kic Off Meeting conducted May 3, 2016 Page 1 6 Draft Bacground Report March 2017
Public Outreach Materials JLUS Fact Sheet / Compatibility Factors Brochure. At the beginning of the JLUS project, a Fact Sheet, or JLUS Update, was developed describing the JLUS program, objectives, methods for the public to provide input into the process, overview of the 25 compatibility factors that were analyzed throughout the project, and the proposed Keesler AFB JLUS Study Area. This Fact Sheet was made available at the worshops for review by interested members of the public and posted on the website for download. Participants at Public Meeting #1 in the City of Biloxi conducted August 26, 2016 Public Worshop #2 (TBD) **Meeting details will be provided as meetings occur. Public Worshop #3 (TBD) **Meeting details will be provided as meetings occur. These Fact Sheets served as an informational brochure describing each compatibility factor Fact Sheet #1 JLUS Project Overview / Compatibility considered for JLUS development. While not every factor may apply to the Keesler AFB JLUS, this list provided an effective tool to conduct a comprehensive evaluation of compatibility factors within the study area. Strategy Tools Brochure. JLUS strategies incorporate a variety of actions that local governments, military installations, agencies, and other staeholders can tae to promote compatible land use planning. This brochure provided an overview of strategy types that can be applied to address study area compatibility issues. March 2017 Draft Bacground Report Page 1 7
Website. A project website was developed to provide staeholders, the public, and media representatives with access to project information. The website was maintained for the entire duration of the project to mae information easily accessible. Information contained on the website included program points of contact, schedules, relevant documents and maps, public meeting information, and downloadable comment forms. The project website is located at www.eeslerjlus.com. 1.4. JLUS Study Area Keesler JLUS Website The Keesler AFB JLUS Study Area was designed to address land near the installation that may impact or may be impacted by current or future military operations. Figure 1 1 shows the extent of this area, which encompassed Keesler AFB, the cities of Biloxi and D Iberville, and Harrison County. The delineation of the study area boundaries was determined based on the evaluation of the proximity of areas adjacent to Keesler AFB and the anticipated magnitude of impacts associated with various military mission operations. 1.5. JLUS Bacground Report Organization The following is a brief overview of the organization of the Keesler AFB JLUS Bacground Report, including the contents of each chapter. Chapter 1: Introduction. Chapter 1 provides an introduction and overview of the Keesler AFB JLUS. This chapter describes the woring relationships among staeholders, bacground and intent of the JLUS, the JLUS Study Area, objectives to guide development of the JLUS, staeholders involved in developing the JLUS, public outreach methods, implementation premise, and the document organization. Chapter 2: Community Profile. This chapter identifies the local jurisdictions within the study area and includes an overview of the regional growth potential as well as a profile of the jurisdictions within the study area, highlighting population, housing, and transportation characteristics. Chapter 3: Military Profile. This chapter introduces Keesler AFB and discusses installation missions, strategic and economic importance of Keesler AFB, importance of mission sustainment, facility and operations, and the installation s role in national defense. This chapter also includes an overview of the installation s settings, including a history to provide the military baseline context for the JLUS. This chapter also defines the footprint of each of the military operating areas (e.g., airspace, noise contours, accident potential zones, height hazard area) that occur in the Study Area to foster an understanding of how the military operations could potentially impact, or be impacted by, the surrounding communities. Page 1 8 Draft Bacground Report March 2017
Billie Little Cr ee e C ree u ay Legend L it 609 tle B luff Cr e e Bayou Costap ia ill M AFB Housing Areas 1. Thrower Par 2. West Falcon 3. East Falcon 4. Harrison Court 5. Sand Hill Landing How Colle Field ree Cree ard nch ra C Installation Boundary 57 Latimer Pare Cree r P chanie C Tux a re Tig Wa le rc ree JLUS Study Area 15 C re e er Cre e l mer Cree uc ie r Cree P ic Figure 1-1 Vancleave D'Iberville z Frit Fla tb 605 C ee r ee iver fa R R ive r 53 Cr Bluff u yo Ba f bou ca i ox Lyman He ste r r anch ne eb il gb ou ta iloxi Rive r Lit tl Ho T 49 67 ch B an Br a ra nch g Sa ch n Lo Pastu re B Æ s Cypre s Cre e City 5 Unincorporated Communities 10 Æ ayo db yar ic r B J H ac Ocean ar s ri on Springs so n C C ou nt 4 y u ou 90 nt y Keesler AFB 1 3 2 G u l f o f M e x i c o Interstate / Highway Major Road Local Road y Gulfport-Biloxi International Gulfport Airport County Talla you ar Biloxi Gulf Hills Ba St. Martin 110 d B ay ou B er n Star Bayou vis B a Da Railroad ou 90 Ocean Springs Airport Si ou m m ons Bay Æ Waterbody Stream / River Æ Airport Gulf Par Estates Sources: USGS, 2015. MGC, 2016. 0 1 2 3 Miles March 2017 Draft Bacground Report Page 1 9
Chapter 4: Existing Compatibility Tools. This chapter provides an overview of existing relevant plans, programs, and studies at the federal, state, and local levels that provide tools to address compatibility issues in the JLUS Study Area. The purpose of this chapter is to filter the tools readily available to staeholders and assess whether the tool is adequate or in need of modification or development to achieve compatibility planning objectives. Chapter 5: Compatibility Assessment. This chapter presents the issues identified by the PC, AC, TC, the public, and JLUS team and provides an assessment of issues based on existing tools to address compatibility and feedbac collected throughout the planning process. This chapter enumerates the compatibility issues and categorizes them into the 25 compatibility factors listed in the following graphic: Page 1 10 Draft Bacground Report March 2017