Camp Pendleton should continue to serve as the State Military Reservation. Although the City of Virginia Beach has a valid need for additional beachfront which is accessible to the public, the 1,200 feet of beach at Camp Pendleton is not an appropriate solution. Rather, the State should seek the return of 3,440 feet of beach at Fort Story which was condemned and taken from the Commonwealth by the federal government during World War II. In addition, the Department of Military Affairs should adopt written procedures and guidelines to facilitate appropriate civilian use of Camp Pendleton which would not interfere with the military mission of the State Military Reservation.

CAMP PENDLETON REVIEW

HJR 14 of the 1978 session instructed the Joint Legislative Audit and Review Commission to study Camp Pendleton, the State Military Reservation. The resolution provided that an advisory task force assist the JLARC in its study. The task force consisted of two members appointed by the Governor, six members appointed by the Speaker of the House, and four members appointed by the Senate Committee on Privileges and Elections.

Four areas of study were specified by the resolution:

• use presently being made of the territory comprising Camp Pendleton;

• needs of the Virginia National Guard for training space and facilities;

• needs of communities contiguous to Camp Pendleton for land to be used for public purposes; and

• the degree to which and the conditions under which portions of Camp Pendleton could be used for these public purposes.

The Camp Pendleton study committee expanded the scope of the study to include a fifth area:

• the degree to which and the conditions under which portions of Camp Pendleton could be used for private purposes.

The committee based its findings and recommendations on a series of four public meetings held from June through November 1978. At its first meeting, the committee staff presented background information on Camp Pendleton and a study research plan which was subsequently approved.

Public Hearing

The July meeting of the study committee was a public hearing held in the City of Virginia Beach. Positions were stated by the Department of Military Affairs, the City of Virginia Beach, and interested citizens. The Virginia Adjutant General, Major General William J. McCaddin, urged that Camp Pendleton be retained as a military facility. On behalf of Virginia Beach, Councilman Dr. Clarence A. Holland suggested that the Camp be converted to various public recreational uses.

Study committee members also made an on-site inspection of Camp Pendleton. Members inspected the amphibious landing area at the beach, rifle ranges, barracks, mess halls and other facilities on the main base. In addition, they took a bus tour of the Camp Pendleton properties under long-term lease to the city.

Staff Research

Staff research was reported and approved at the September meeting. Information and data were gathered from State, local and federal sources. A title search was conducted by JLARC staff to verify ownership, boundaries, and restrictions on the SMR properties. Copies of all deeds, leases and use agreements were assembled from Division of Engineering and Buildings files, Virginia Beach real estate records, and the State archives.

STUDY FINDINGS

Findings and conclusions approved by the committee are organized according to the study directives.

Current Use of Camp Pendleton (pp. 1-13)

Camp Pendleton is used predominately by the Virginia Army National Guard and the City of Virginia Beach. Peak demand periods for both users coincide in the summer which is the tourist season in Virginia Beach and the annual training time for the Guard. Although the City and Department of Military Affairs have cooperated on the use of the State Military Reservation in the past, continuing demands for Camp Pendleton property have created tensions.

The City benefits substantially from the use of property at Camp Pendleton. Almost half of the State Military Reservation is on long-term lease to the City for recreational and municipal facilities. There is no reason at the present time for the City to return to the Department of Military Affairs the areas it presently leases. The main base is sufficient.to support present levels of military training.

Camp Pendleton buildings are generally underutilized. In addition, a major land area (the forest tract) has not been used and could be disposed of without affecting present training activities.

National Guard Needs for Training Space and Facilities (pp.14-20)

The Virginia National Guard benefits from the use of Camp Pendleton as a State Military Reservation. Ownership of Camp Pendleton gives the Guard a degree of flexibility, adaptability, and reciprocity it would not otherwise have. Existing facilities at the SMR fill all National Guard needs for a school center.

Relocation of the State Military Reservation may involve State, rather than federal, financing. Replacement costs of all Camp Pendleton buildings would cost approximately $20 million. Replacement of sufficient buildings to support peak training activity would cost $10-15 million. The federal government regards Camp Pendleton facilities to be adequate and would be reluctant to refinance a new State Military Reservation.

Virginia Beach Needs for Public Purpose Land (pp. 21-30)

There is a shortage of beachfront property in Virginia Beach with public access. Almost three-fourths of the beachfront in Virginia Beach is owned by the federal, State and City governments. Only City-owned beaches are open and relatively accessible to the public.

Federal and State decisions regarding Back Bay Wildlife Refuge, False Cape State Park, and Fort Story can have a significant impact on the availability of accessible beachfront.

Potential of Camp Pendleton for Public and Private Use (pp. 31-40)

Of the five tracts which comprise Camp Pendleton, none is completely free of legal encumbrances regarding its use. The highest potential value of Camp Pendleton cannot be realized because existing leases limit the options for developing the property. In addition, the future value of the total property for other State disposition will be diminished if the beach area is disposed of separately.

Significant costs will be incurred by the Commonwealth if the State Military Reservation is moved from Camp Pendleton.

DECISION OPTIONS AND RECOMMENDATIONS

The study committee considered ten options ranging from no change in the current uses of Camp Pendleton to the total transfer or sale of the property. The relevant considerations and fiscal impact of each option were discussed. These ten options were:

1. Memorialization of Congress for the return of Fort Story property.
2. No change to status of Camp Pendleton.
3. Development of procedures and guidelines for use.
4. Disposal of 20 acres of forest tract.
5. Disposal of the forest tract.
6. Disposal of the beach parcel.
7. Increased recreational use of the State Military Reservation.
8. Long-term relocation of the State Military Reservation.
9. Disposal of all State Military Reservation properties with replacement.
10. Disposal of all State Military Reservation properties without replacement.

COMMITTEE RECOMMENDATIONS

A majority of the study committee members recommended Options 1, 2, and 3. Dissenting members supported varying degrees of increased civilian use of the property. Minority opinions are included as Appendix 1 to this report. Some study committee members voting with the majority suggested that the procedures and guidelines (Option 3) should be drafted in such a way as to encourage appropriate civilian usage of underutilized Camp Pendleton facilities and property.

Fort Story

The study committee recognizes the need for additional beachfront with public access but regards Camp Pendleton as an inappropriate solution to this problem. Almost half of Camp Pendleton is already leased to the City of Virginia Beach. Other portions, including the beach, are used by the City for recreational and other purposes.

The largest owner of beachfront property in the City is the federal government. Today, the majority of this federally-owned beachfront in the City is inaccessible to the public. A possible solution to the need for additional beachfront with public access is Fort Story, the federally-owned installation at the north of Virginia Beach. In 1943, 727 acres of Seashore State Park were condemned by the federal government despite the State's objection. Military usage of the parcel today is infrequent and public use is prohibited.

Recommendation 1: To secure additional beachfront with public access, the Governor and Virginia Congressional delegation should work to secure the return of the 727 acres of Seashore State Park which the federal government condemned and took during World War II. A resolution to accomplish this goal should be introduced in the 1979 session.

A copy of the resolution is provided at Appendix 2.

Present Status of Camp Pendleton

The study committee concludes that the current uses of Camp Pendleton, both military and civilian, are appropriate. The proximity of Camp Pendleton to federal military installations in the area enhances the State Military Reservation's value as a training site. Facilities on the main base are in good condition. Reconstruction of State facilities at another site would result in significant expense to the Commonwealth.

Recommendation 2: The National Guard, the City of Virginia Beach, and other users should continue to use properties under existing leases or agreements. Future uses of Camp Pendleton by the City and other users should continue to be determined by the Adjutant General.

Guidelines for Use

The study committee concludes that a large number of unused facilities are available for suitable public and civic activities. However, the lack of guidelines governing use tends to limit utilization. Misunderstandings between the Department of Military Affairs and civilian organizations concerning the requirement s and limits for use may also arise due to the absence of procedures.

Recommendation 3: To encourage the highest and best use of Camp Pendleton facilities without ownership changes, the Department of Military Affairs should adopt written guidelines and procedures governing its use by non-National Guard users. Guidelines should specify eligibility criteria, and facilities and areas which are available for use. Procedures should:

1. provide for a simple application and approval process;
2. guarantee the availability of facilities and areas once a request is approved; and
3. clearly establish the terms and responsibilities of usage.

Amplification of proposed guidelines and procedures is at Appendix 3.

Committee Action

In November, the Camp Pendleton Study Committee met considered final testimony and adopted this final report. Based on votes taken at the meeting and a subsequent telephone poll, recommendations were adopted by the following votes:

•Recommendation 1--22 in favor, none opposed, 1 abstention;

•Recommendation 2--14 in favor, 8 opposed, 1 abstention;

•Recommendation 3--21 in favor, 1 opposed, 1 abstention.

The publication and distribution of the findings and recommendations of the Camp Pendleton Study Committee were unanimously approved.