Written Statement of
General Robert H. Foglesong
Vice Chief of Staff, United States Air Force
before the
Committee on the Environment and Public Works,
United States Senate
Committing this Nation to
combat is arguably the hardest decision the President and Congress will have to
make. This Nation’s leadership expects,
even demands, that its military be ready to go to war. The effectiveness of America’s military
ultimately guarantees our way of life.
The United States Air Force’s effectiveness starts with
training--training the way we fight.
Key provisions in this year’s Defense Authorization Act (S. 2225) impact
how we will manage the installations, ranges, and airspace so vital to our
combat readiness and effectiveness.
Maintaining continued operations at our
installations and access to our ranges and airspace is critical. In fact, if our ability to train our
aircrews should diminish, America will soon lose its edge in air combat proficiency. We cannot solely rely on current Air Force
technology to provide an advantage against our next adversary--our next
adversary may have access to more advanced equipment than ours. Our installations, ranges, and airspace are
critical national assets that allow the Air Force to test new equipment,
develop new tactics, and train our forces to be combat-ready.
It is self-evident that we must be able to
train as we are expected to fight.
To do so, we must maintain adequate test and training resources. Our goal is to
meet our evolving military needs while addressing and resolving, to the maximum
extent possible, public concerns and federal, tribal, state, and other agency
issues. However, competing needs
or uses for these resources, coupled with legal and
procedural requirements to adjust for new mission needs, are eroding the
resource base that supports our test and training capability.
We have followed a practice of flexibility and
willingness to adapt to the extent possible without compromising our
operations. Sustainable access to
ranges benefits many people. Our ranges
contain significant cultural and natural areas, are used for grazing and crop
production, and allow hunting or other forms of outdoor recreation. We share airspace and airwaves with major
sectors of our economy. However, we are
faced with restrictions as well as competing economic uses for assets that
undermine our mission performance and can ultimately affect our readiness, a
condition commonly referred to as encroachment.
Range Management and
Encroachment
The Air Force is experiencing encroachment that
stresses our ability to maintain training and readiness in several areas:
spectrum, air quality, noise, unexploded ordnance, endangered species, and
access to shared-use airspace. Chapter
101A of S. 2225 contained language designed to clarify the interpretation and
application of governing statutes for air quality, munitions response, and
species and habitat protection that will ensure that military training and
readiness are not compromised as the military departments carry out their
environmental protection responsibilities.
In addition, the legislation provides for improved property conservation
procedures to assist private sector organizations in conserving and protecting
land and natural resources.
Species and Habitat
Protection
Currently, 79 federally listed threatened and
endangered species live on approximately nine million acres of Air Force lands
and waters. As an example, on the Barry
M. Goldwater Range (BMGR) in Arizona we follow the movement of approximately
100 Sonoran Pronghorn antelope. The DoD
flies about 70,000 sorties yearly on the BMGR and our biologists track the
antelope’s movements to ensure they are not in the target area. If they are spotted, the missions projected
for that area are diverted or canceled.
Working hand-in-hand with the U.S. Fish and Wildlife Service (FWS) and
the Arizona Department of Game and Fish, we strive to ensure the survival of
this endangered subspecies of antelope.
At the Nevada Test and Training Range (NTTR),
operated by Nellis Air Force Base, the Air Force supports the Bureau of Land
Management’s wild horse program on over 390,000 acres of the NTTR. In the southern portion of the range we have
fenced target areas to ensure the Desert Tortoise is not affected by our
operations. Additionally, in Nevada and
Arizona we work with local communities and tribes to ensure the protection of
cultural resources.
At Tyndall Air Force Base in Florida, we
monitor the nests of about 100 Loggerhead and Green Sea Turtles daily,
physically protecting their homes with wire mesh. We do this to ensure compliance with the Endangered Species Act
(ESA) and guarantee our aircrews get the training they need to accomplish their
mission.
At Eglin Air Force Base in Florida, we electronically
tag and track endangered Gulf Sturgeon to ensure they are not impacted by our
operations. The water impact/detonation
area is monitored for sturgeon prior to training. If sturgeon are detected in the area, detonation is moved or
delayed. Eglin also serves as the home
to the endangered Red-Cockaded Woodpecker.
By working closely with the FWS, we have been able to nearly double
their population. Additionally, our
biologists are doing everything possible to aid the Flatwoods Salamander and Eastern
Indigo Snake. Again, we do this to
support the ESA, serve as good stewards of our nation’s resources, and
maintain our combat readiness.
In some cases, our installations and ranges are
the only large, undeveloped, and relatively undisturbed areas remaining in
growing urban areas. This can result in
Air Force lands becoming a refuge in the region that can support endangered
species. Biological Opinions resulting
from required Endangered Species Act assessments have resulted in range and
airspace restrictions mainly associated with aircraft noise and munitions
use. We operate with altitude
restrictions because of the noise and its possible effects on endangered
species in states such as Arizona, New Mexico, and Texas.
The potential designation of range areas as a
critical habitat or marine sanctuary may seriously limit our ability to perform
training and test missions. We need to
work within the Administration to ensure a balance between two national
imperatives: military readiness and environmental conservation.
Unexploded Ordnance (UXO)
UXO and the disposal of residue material
(primarily scrap metal) on air-to-ground ranges is one area where we have
extensively investigated our practices and policies. UXO and range residue (used targets, inert ordnance, etc.)
physically occupy only a small part of any air-to-ground range, but its
presence is an increasingly expensive problem.
The costs associated with clearing closed ranges have led us to the
conclusion that we need to plan and manage for the entire life-cycle of a
range.
The Air Force first started clearing ordnance
from active ranges in the late 1940’s.
Active range clearance not only provides for safe target area
operations, but also provides airfield-recovery training for our Explosive
Ordnance Disposal technicians. Air
Force policy requires that active air-to-ground ranges be cleared on a
quarterly, annual, and five-year basis at varying distances from each
target. Our currently scheduled UXO and
residue removal program, along with modifications to our range-clearing
practices, will ensure long-term range sustainability and the safety of
personnel on the range. Our ultimate
goal is to manage our ranges effectively and efficiently throughout the life-cycle
process providing for sustainable operations, safe and effective UXO management
and long-term environmental stewardship.
The Air Force also understands its
responsibility to manage materiel from our ordinance if it travels off-range,
and supports Section 2019 of the bill because it clarifies our obligation to
respond to potential off-site impacts from our munitions training.
Air Quality
Many of our largest and most important
installations are located in areas that are experiencing rapid growth and the
attendant pressures resulting from air quality standards. A number of our bases are currently located
in “non-attainment” areas, which are places that failed to meet EPA standards
for air pollution, and more bases are in areas that are trending toward
non-attainment. Air quality pressures
generally affect operations at our installations more than on our ranges, but
they potentially limit our basing options for force realignments and weapon
system beddowns. If any beddown action
is found not to conform to the state implementation plan for Clean Air Act
compliance, the Air Force must either obtain air quality credits or reduce
other emissions at the base to counterbalance the impact. Military mission requirements frequently
demand operational changes with little or no lead-time to adjust for
requirements such as conformity. The
Air Force supports the legislative provision that allows for emission limit
compliance over a three-year period so that mission critical operations can
still take place while appropriate mitigation is arranged. We continue to work with state regulators
and local communities to ensure we have the flexibility to base aircraft at our
installations which have huge investments in infrastructure not only on the
installation itself, but also in the ranges used by its aircraft.
The RF frequencies below about 5000 MHz are the most valuable part of
the spectrum for the kinds of highly mobile functions carried out at our test
ranges. Over the past decade, the
Federal government has lost access to over 235 MHz of bandwidth in this part of
the spectrum -- due primarily to International and Congressionally mandated
reallocations. For example, until 1992, the DoD and private sector
aerospace industry were authorized to use 80 MHz of designated spectrum in "Upper-S
Band" to transmit real-time telemetry data from flight tests of
manned aircraft. This spectrum bandwidth was needed to support
increasing telemetry bandwidths requirements for future fighters and bombers. In 1992, the World Radio Conference (WRC)
reallocated the lower 50 MHz of this frequency band to provide
spectrum for broadcasting high quality audio from geostationary
satellites. In 1997, under the
requirements of the Balanced Budget Act of 1997, we were forced to transfer an
additional 5 MHz of the original 80 MHz wide frequency band, leaving only a 25
MHz increment for flight test telemetry in this spectrum. Loss
of this 55 MHz of spectrum causes, for example, delays in major flight-test
programs.
Conclusion
In conclusion, we thank the committee for
allowing the Air Force to share the details of its concerns over the growing
issue of encroachment. The Air Force
understands its obligation to identify competing human and environmental needs
and to establish a compatible use of resources. However, it also recognizes it has a unique need to perform a
military mission. The multi-billion
dollar effort in Defense programs to conserve, protect, and restore the
environment will continue to achieve lasting successes in all areas of
protecting human health and the environment.
The Air Force appreciates the Committee’s support so that we can
maintain our stewardship of the environment and still train and prepare the men
and women of the Armed Forces.