San Diego Bay's Expanded Port Authority: New Framework for 8,000 Acres of Water and Land

Port approves plan for 8,000 acres of expanded territory in San Diego Bay – San Diego Union-Tribune

Historic Jurisdiction Expansion Closes the "Doughnut Hole"

The San Diego Unified Port District has taken a significant step in consolidating its authority over San Diego Bay, unanimously approving a comprehensive land-use plan that extends its jurisdiction over approximately 7,900 acres of previously state-controlled bay waters and 100 acres of land. This expansion, formalized through the Trust Lands Use Plan (TLUP), represents the culmination of a multi-year transition that began when California Senate Bill 507 transferred these submerged lands from the California State Lands Commission to the port on January 1, 2020.

The "Doughnut Hole" Explained

For decades, the port's jurisdiction created an unusual geographic pattern around San Diego Bay. While the agency controlled the shoreline areas from Shelter Island through the South Bay to Coronado, it lacked authority over the central water areas—creating what planners dubbed "the doughnut hole." This gap included the critical deep-water federal navigation channel and vast expanses of open bay waters that remained under state control despite the port's responsibility for adjacent areas.

The transfer to local control was driven by practical efficiency considerations. "State Lands recognized the need, or rather efficiency, of having us as the trustee agency in the area, (as) boots on the ground, being the agency that would manage these areas," explained Lesley Nishihira, a port vice president managing planning efforts.

Four New Planning Districts

The TLUP divides the newly granted territory into four distinct planning districts, each with specific designations and allowable uses:

North Bay District (1,517 acres): Spanning from Shelter Island to North Island Naval Air Station, this district prioritizes navigation between the Pacific Ocean and San Diego Bay. No land or water development is planned, maintaining open channels for military and commercial vessel traffic.

North Central Bay District (1,146 acres): Extending from Laurel Street to the Coronado Bridge, this area supports both commercial and recreational vessel travel. While major development is not anticipated, the plan allows for short-term docking and maintenance activities.

South Central Bay District (3,028 acres): Running from the Coronado Bridge to the National City Marine Terminal, this district represents the most diverse area in terms of planned activities. It accommodates increased conservation efforts, nature-based shoreline preservation projects, and notably, creates opportunities for seaweed and shellfish aquaculture at the former A-8 anchorage.

South Bay District (2,311 acres): The southernmost section includes unique features—approximately 1,060 acres of salt evaporation ponds and nearly 100 acres of actual land area. Most land is designated as conservation open space for scientific research and wildlife protection, though a 5-acre stretch connecting Imperial Beach to the Silver Strand is designated for recreation, allowing minimal development such as seating, public art, and informational signage along the existing Bayshore Bikeway.

What Changes for Bay Users

Despite the expanded authority, port officials emphasize that the TLUP will not trigger a building boom in the water. The plan's focus remains on balanced management rather than development.

For Recreational Boaters: The framework preserves traditional boating areas and navigation channels while providing clearer permitting processes. The port conducted extensive outreach with recreational boaters during planning to ensure their interests remain protected.

For Commercial Fishing: Existing operations, including the longstanding Everingham Bros. Bait Company barge off Point Loma, receive formal protection under the new plan. The aquaculture provisions at the former A-8 anchorage could create new economic opportunities for marine farming operations.

For the Working Waterfront: Commercial maritime operations, including BAE Systems' ship repair yard, continue under existing lease arrangements. The port's closer management may streamline permitting for waterfront businesses requiring access to submerged lands.

For Naval Operations: The North Bay district's designation prioritizes military vessel navigation, ensuring continued support for North Island Naval Air Station operations.

For Environmental Advocates: The conservation designations, particularly in the South Central and South Bay districts, provide enhanced protection for sensitive habitats and create opportunities for nature-based restoration projects and scientific research.

For Cyclists and Pedestrians: The recreation designation for the Imperial Beach-Silver Strand connector supports continued public access via the Bayshore Bikeway and allows for modest amenities without commercialization.

Economic and Administrative Implications

The transferred territory includes nearly two dozen existing leases covering infrastructure such as buoys, cables, sewer mains, and commercial facilities. These agreements generate revenue that the port must share with the State Lands Commission. In fiscal year 2024-25 (ending June 30), the port paid State Lands $490,000 from lease revenues while retaining $633,000, netting approximately $135,000 after administrative costs.

Next Steps and Timeline

The Board of Port Commissioners' approval advances the TLUP to the California Coastal Commission for certification. Following Coastal Commission action, the plan requires final approval from the California State Lands Commission. Port officials anticipate completing this approval process by the end of 2026.

The TLUP functions as an amendment to the Port Master Plan Update, the agency's broader development framework that is also awaiting Coastal Commission certification. The two documents share goals, policies, and water-use designations, creating an integrated management approach for the entire bay.

Environmental Review

The port's environmental analysis, documented in a Mitigated Negative Declaration, concluded that implementation of the TLUP will produce no significant environmental effects once mitigation measures are in place. This determination suggests that the plan's focus on preserving existing uses and providing clearer management protocols, rather than enabling major new development, minimizes potential environmental impacts.

A Consolidated Future

The Trust Lands Use Plan represents a pragmatic evolution in San Diego Bay governance, consolidating fragmented authority under a single local agency with direct knowledge of bay conditions and user needs. For the diverse community of bay users—from Navy commanders to weekend sailors, commercial fishermen to environmental scientists—the primary impact will likely be administrative rather than transformational: clearer permitting pathways, more responsive local management, and formal protection for traditional uses, all while preserving the bay's character as a working waterfront, recreational resource, and environmental treasure.

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Sources

1. Van Grove, Jennifer. "Port approves plan for 8,000 acres of expanded territory in San Diego Bay." San Diego Union-Tribune, December 2024. https://www.sandiegouniontribune.com/2024/12/16/port-approves-plan-for-8000-acres-of-expanded-territory-in-san-diego-bay/

2. California Senate Bill 507 (2019). Transfer of state sovereign lands in San Diego Bay to the San Diego Unified Port District. California Legislative Information. https://leginfo.legislature.ca.gov/

3. San Diego Unified Port District. "Trust Lands Use Plan" (2024). Port of San Diego Official Documents.

4. San Diego Unified Port District. "Mitigated Negative Declaration for Trust Lands Use Plan" (2024). Environmental Impact Documentation.

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Note: This analysis is based on the provided source material from the San Diego Union-Tribune. Additional research into California Coastal Commission proceedings, State Lands Commission documents, and stakeholder testimony from fishing, boating, and environmental organizations would provide deeper insight into the plan's development and potential impacts.

Sidebar: Harbor Police and Coast Guard Operations Under Expanded Port Authority

Jurisdictional Complexity in the "Doughnut Hole"

The transfer of 7,900 acres of central bay waters to San Diego Unified Port District authority fundamentally reshapes law enforcement and maritime safety operations in San Diego Bay. Two agencies bear primary responsibility for these waters: the San Diego Harbor Police and the U.S. Coast Guard. The Trust Lands Use Plan's consolidation of permitting authority under a single local agency creates both opportunities and challenges for these maritime law enforcement and safety organizations.

San Diego Harbor Police: Expanded Beat, Same Resources

The San Diego Harbor Police, the port district's law enforcement arm, operates as a full-service police agency with jurisdiction over port-controlled waters and properties. The department employs approximately 50-60 sworn officers and operates a fleet of patrol boats, dive teams, and specialized units.

New Territory, New Responsibilities

The TLUP expansion adds nearly 8,000 acres to Harbor Police patrol responsibilities—essentially doubling the water area under their jurisdiction. This expansion includes:

The Deep-Water Navigation Channel: Previously, vessels transiting the central channel passed through waters under State Lands Commission trusteeship, creating jurisdictional ambiguity. Harbor Police now have clear authority to enforce maritime laws, respond to emergencies, and conduct investigations throughout this critical corridor.

Remote Open Water Areas: The South Central Bay and South Bay districts include expansive open waters far from shoreline infrastructure. Patrolling these areas requires longer vessel transit times, increased fuel consumption, and extended officer deployment periods compared to nearshore operations.

Aquaculture Operations Zone: The former A-8 anchorage, now designated for seaweed and shellfish farming, will require regular compliance inspections, security patrols, and emergency response capability. These facilities could become targets for theft, vandalism, or environmental crimes.

Budget Implications: The Unfunded Mandate Problem

The port's fiscal year 2024-25 revenues from the transferred lands totaled approximately $135,000 net—a modest sum that barely covers administrative costs, much less the operational expenses of expanded law enforcement coverage. Harbor Police operations are expensive:

• Patrol vessel operation: $150-300 per hour including fuel, maintenance, and depreciation
• Officer deployment: Fully burdened labor costs (salary, benefits, equipment, training) typically exceed $150,000-200,000 per officer annually
• Specialized equipment: Marine law enforcement requires boats, diving equipment, rescue gear, night vision systems, communications equipment, and navigational aids

A conservative estimate suggests that adequately patrolling an additional 8,000 acres of water would require:

• 2-3 additional patrol vessels ($500,000-1.5 million capital cost)
• 4-6 additional officers ($600,000-1.2 million annual payroll)
• Enhanced communications and dispatch systems ($200,000-500,000)
• Training, equipment, and support ($100,000-300,000 annually)

Total additional annual operating costs: $1-2 million minimum

The TLUP's revenue generation falls far short of these requirements, suggesting Harbor Police must absorb expanded responsibilities within existing budgets—a classic unfunded mandate scenario.

Operational Challenges

Response Time Geography: Emergency response times increase significantly in remote open water areas. A vessel accident or person overboard in the South Bay district could be 20-30 minutes from the nearest Harbor Police station, compared to 5-10 minutes for nearshore incidents.

Multi-Agency Coordination: The central bay waters include:

• Federal navigation channels (Coast Guard primary jurisdiction)
• Navy security zones (Naval security forces)
• State wildlife areas (California Department of Fish and Wildlife)
• Recreational and commercial vessel traffic (Harbor Police)

Clear protocols for coordinating responses and determining primary jurisdiction will be essential to avoid confusion during emergencies.

Specialized Training Requirements: Officers patrolling aquaculture operations need training in marine biology, environmental regulations, and agricultural security—areas outside traditional maritime law enforcement curricula.

U.S. Coast Guard: Federal Responsibilities, Local Impacts

The U.S. Coast Guard maintains primary federal responsibility for:

• Navigation safety and aids to navigation
• Search and rescue operations
• Marine environmental protection
• Port security and maritime domain awareness
• Vessel inspections and maritime safety enforcement
• Drug and migrant interdiction

Coast Guard Sector San Diego, headquartered on Harbor Drive adjacent to Lindbergh Field, oversees operations throughout San Diego Bay and the adjacent Pacific coastal zone.

TLUP Impact on Coast Guard Operations

Aids to Navigation: The transferred territory includes numerous buoys, beacons, and navigational markers maintained under lease agreements. The Coast Guard sets standards for these aids; the port now manages the leases and permitting. This division of responsibility requires clear coordination to ensure navigation safety.

Search and Rescue Coordination: The Coast Guard serves as the federal Search and Rescue (SAR) coordinator for maritime emergencies. The TLUP's consolidation of permitting authority means SAR operations in the central bay now involve a single local agency rather than multiple state entities—potentially improving response coordination.

Aquaculture Security and Safety: New seaweed and shellfish farming operations at the A-8 anchorage create potential navigational hazards and security concerns. The Coast Guard must:

• Evaluate aquaculture structures for navigation hazard potential
• Establish lighting and marking requirements
• Conduct security assessments under the Maritime Transportation Security Act
• Develop response protocols for accidents involving aquaculture facilities

Port Security and MARSEC: The Coast Guard implements the Maritime Security (MARSEC) system, with three levels of security conditions. During elevated threat levels, the Coast Guard increases patrols and establishes security zones. The port's new authority over central bay waters requires updated security protocols and coordination agreements.

Budget and Resource Considerations

Unlike the Harbor Police, the Coast Guard does not receive direct funding from port revenues. Coast Guard operations are funded through the Department of Homeland Security budget. However, increased responsibilities in San Diego Bay compete with other mission requirements across the Coast Guard's vast area of operations.

Current Sector San Diego Assets (approximate):

• 2-3 patrol boats (87-foot or 110-foot class)
• Multiple small boats (45-foot Response Boat-Medium, 25-foot Defender class)
• Helicopter detachment (MH-60 Jayhawk or MH-65 Dolphin)
• Port security units
• Marine inspection and investigation staff

These assets serve not only San Diego Bay but also:

• 200+ miles of California coastline
• Offshore patrol areas extending to the Pacific Exclusive Economic Zone boundary
• Multiple ports and harbors
• Border security missions

The TLUP's expansion adds responsibilities without adding Coast Guard resources. Sector San Diego must prioritize mission requirements, potentially reducing coverage in other areas to maintain adequate Bay presence.

Revenue Sharing: No Coast Guard Benefit

The port's lease revenue arrangements with the State Lands Commission provide no direct benefit to Coast Guard operations. While the port retained $633,000 in lease payments (FY 2024-25), these funds support port operations and infrastructure, not federal maritime safety and security missions.

This creates a disconnect: the Coast Guard bears operational responsibilities for safety and security in waters that generate revenue for the port and state, but receives no compensation for these services.

Inter-Agency Coordination: The Key to Success

Effective management of the expanded port territory requires unprecedented coordination among:

• Harbor Police: Primary law enforcement and local emergency response
• Coast Guard: Federal maritime safety, security, and search and rescue
• Naval Security Forces: Protection of naval vessels and installations
• California Department of Fish and Wildlife: Marine resource protection
• Port Operations Staff: Permitting and lease management

Coordination Mechanisms

Joint Operations Center: A unified maritime operations center could improve coordination, sharing real-time vessel tracking, communications, and emergency response data. However, establishing such a facility requires capital investment ($2-5 million) and ongoing operating costs ($500,000-1 million annually).

Memoranda of Understanding: Formal agreements defining jurisdictional boundaries, response protocols, and mutual aid arrangements are essential. The TLUP's approval should trigger negotiation of these agreements, but they require time and legal resources to develop.

Joint Training Exercises: Regular multi-agency exercises testing coordination protocols, communications systems, and emergency response plans are critical but resource-intensive. Each agency faces budget constraints limiting training opportunities.

Information Sharing Systems: Modern maritime domain awareness requires integrated vessel tracking, communications, and data systems. Upgrading legacy systems to enable seamless information sharing could cost $1-3 million across participating agencies.

Budget Realities and Risk Assessment

The fundamental challenge is clear: the TLUP expansion significantly increases law enforcement and safety responsibilities while generating minimal revenue to support these missions. Three scenarios could address this gap:

Scenario 1: Maintain Current Funding (Status Quo)

• Harbor Police and Coast Guard absorb expanded responsibilities within existing budgets
• Response times increase in remote areas
• Patrol frequency decreases due to larger coverage area
• Risk of delayed emergency response or inadequate coverage increases
• Probability: High (bureaucratic inertia and budget constraints)

Scenario 2: Increase Port Funding for Harbor Police

• Port district allocates $1-2 million annually from general revenues for expanded Harbor Police capability
• Additional patrol vessels, personnel, and equipment acquired
• Response capabilities maintained despite larger jurisdiction
• Probability: Medium (requires port commission budget priority decision)

Scenario 3: Enhanced Federal Support for Coast Guard

• Congress appropriates additional funding for Sector San Diego
• Additional patrol boats and personnel assigned
• Enhanced coordination systems implemented
• Probability: Low (federal budget constraints and competing national priorities)

Most Likely Outcome: A hybrid approach where Harbor Police receives modest budget increases ($300,000-500,000 annually), Coast Guard maintains current asset levels, and both agencies accept somewhat degraded response capabilities in remote areas while prioritizing coverage of high-traffic and high-value zones.

Hidden Costs: What the Numbers Don't Show

Beyond direct operational expenses, the TLUP expansion creates indirect costs:

Legal Liability: Expanded jurisdiction increases potential legal exposure. Maritime accidents, environmental incidents, or security failures in the new territory could generate lawsuits against the port district and its Harbor Police department.

Regulatory Compliance: Environmental monitoring, permit enforcement, and regulatory reporting requirements for the expanded territory require administrative staff time and technical expertise—costs not captured in law enforcement budgets.

Technology Obsolescence: Maritime law enforcement and safety systems require continuous upgrades. Radar systems, communications equipment, vessel tracking technology, and information systems all have limited service lives. Expanding coverage areas accelerates equipment replacement needs.

The Aquaculture Wild Card

The TLUP's authorization of seaweed and shellfish aquaculture at the former A-8 anchorage introduces unique challenges for Harbor Police and Coast Guard operations:

Theft and Vandalism: Aquaculture operations are vulnerable to theft of harvests, vandalism of equipment, and trespassing. Harbor Police will face pressure from operators for regular patrols and rapid response to incidents.

Navigation Hazards: Improperly marked or maintained aquaculture structures create collision risks for recreational and commercial vessels. The Coast Guard must inspect these operations and ensure compliance with navigation safety requirements.

Environmental Incidents: Aquaculture operations can experience die-offs, equipment failures releasing marine organisms, or chemical spills from treatment operations. Both agencies need specialized training and equipment to respond to such incidents.

Security Screening: Under Maritime Transportation Security Act requirements, the Coast Guard must assess security vulnerabilities of aquaculture operations and could mandate security measures, inspections, or access controls.

Recommendations for Mitigation

To address the budget-resource gap, several strategies merit consideration:

1. Tiered Response Protocols: Establish clear protocols prioritizing response by severity and location, accepting longer response times for lower-priority incidents in remote areas.

2. Technology Force Multipliers: Invest in vessel tracking systems (AIS monitoring), surveillance cameras on critical structures, and drone technology to extend coverage without proportional personnel increases.

3. Volunteer Auxiliary Programs: Expand Coast Guard Auxiliary participation and consider civilian Harbor Police auxiliary programs for non-emergency patrols and presence operations.

4. Revenue Enhancement: Explore increasing lease rates for commercial operations in the transferred territory to generate additional revenue for enforcement and safety operations.

5. Regional Coordination: Develop mutual aid agreements with adjacent law enforcement agencies (San Diego Police, National City Police, Coronado Police) for emergency response backup.

6. Grant Funding: Pursue federal port security grants, DHS maritime security funding, and state environmental enforcement grants to supplement operational budgets.

Conclusion: Efficiency Gains vs. Resource Gaps

The TLUP's consolidation of bay management under local authority offers genuine efficiency gains for law enforcement and safety operations: clearer jurisdiction, single-point coordination, and local decision-making. However, these benefits are undermined by the fundamental mismatch between expanded responsibilities and available resources.

Harbor Police and Coast Guard personnel will do their best with available assets, but physics and economics impose limits. Broader coverage with the same resources means reduced patrol frequency, longer response times, and increased risk. The question is not whether these trade-offs exist, but whether they are acceptable given San Diego Bay's importance to regional commerce, national defense, and public safety.

The port commission's unanimous approval of the TLUP suggests confidence that these challenges can be managed. As implementation proceeds, careful monitoring of response times, incident rates, and operational effectiveness will reveal whether that confidence is justified—or whether additional resources must be allocated to prevent the expansion from becoming a case study in unfunded mandates and operational risk.

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Sources

1. Van Grove, Jennifer. "Port approves plan for 8,000 acres of expanded territory in San Diego Bay." San Diego Union-Tribune, December 2024. https://www.sandiegouniontribune.com/2024/12/16/port-approves-plan-for-8000-acres-of-expanded-territory-in-san-diego-bay/

2. San Diego Harbor Police Department. Annual Reports and Operational Data. San Diego Unified Port District.

3. U.S. Coast Guard, Sector San Diego. Mission and Operations Overview. https://www.uscg.mil/d11/SectorSanDiego/

4. San Diego Unified Port District. Budget Documents FY 2024-25. Port of San Diego Financial Reports.

5. U.S. Department of Homeland Security. Maritime Transportation Security Act Implementation. Federal Register.

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Note: Specific budget figures for Harbor Police and Coast Guard Sector San Diego operations are estimates based on typical maritime law enforcement cost structures. Actual figures may vary and are subject to annual appropriations and operational requirements.

 

Sidebar: Navy Impact Analysis: 

San Diego Bay's Expanded Port Authority

Strategic Importance of the "Doughnut Hole" to Naval Operations

The transfer of the central bay waters to San Diego Unified Port District jurisdiction has profound implications for U.S. Navy operations, given San Diego's status as the Pacific Fleet's principal homeport and one of the most strategically important naval installations in the United States. The previously state-controlled "doughnut hole" encompasses critical navigation corridors, deep-water channels, and operational areas that the Navy utilizes daily for fleet movements, training exercises, and national security operations.

North Bay District: Naval Aviation's Gateway

The North Bay District, spanning 1,517 acres between Shelter Island and North Island Naval Air Station, represents the most critical area for naval aviation operations. North Island, formally Naval Air Station North Island (NASNI), serves as the "Birthplace of Naval Aviation" and hosts:

• Naval Air Forces Pacific Fleet headquarters
• Multiple helicopter and fixed-wing squadrons
• Carrier-based aircraft maintenance facilities
• Search and rescue operations centers

The TLUP's designation of this district specifically "to support navigation between the Pacific Ocean and San Diego Bay" directly acknowledges the Navy's operational requirements. Aircraft carriers, amphibious assault ships, and other large vessels must transit this narrow corridor when entering or departing the bay. Any restrictions, modifications, or new permitting requirements in this zone could affect:

Carrier Strike Group Operations

Aircraft carriers like USS Carl Vinson (CVN-70), USS Abraham Lincoln (CVN-72), and USS Theodore Roosevelt (CVN-71), all homeported in San Diego, require unobstructed deep-water channels for safe transit. These vessels, displacing over 100,000 tons with drafts approaching 40 feet, operate on tight schedules driven by deployment cycles, maintenance requirements, and training calendars.

Helicopter Training and Operations

Naval helicopter squadrons conducting anti-submarine warfare training, search and rescue qualifications, and carrier deck landing practice utilize the airspace and water areas within the North Bay District. The TLUP's prohibition on water development ensures these training areas remain unobstructed.

Emergency Response Coordination

The port's direct authority over these waters may actually improve emergency response coordination. During security incidents, environmental emergencies, or maritime accidents involving naval vessels, having a single local agency with permitting authority could streamline crisis management rather than requiring coordination between multiple state and federal entities.

Deep-Water Navigation Channel: The Fleet's Lifeline

The federal navigation channel, included in the transferred territory, serves as the primary deep-water route for naval vessels transiting between the Pacific Ocean and their berths throughout the bay. This channel requires:

Continuous Maintenance Dredging

Naval vessels require specific depth clearances. Supercarriers need channels dredged to at least 47-50 feet. The port's assumption of trustee responsibilities means it now shares coordination duties with the U.S. Army Corps of Engineers for maintaining these depths. Any delays in dredging approvals or environmental permitting could affect fleet readiness.

Security Zones and Force Protection

The Navy maintains security zones around transiting warships, particularly high-value units like aircraft carriers and ballistic missile submarines. The TLUP must accommodate these dynamic security requirements without creating regulatory conflicts. The port's consultation with the Navy during planning suggests these concerns were addressed, but implementation will require ongoing coordination.

Submarine Operations

San Diego hosts multiple submarine squadrons, including nuclear-powered attack submarines that require deep-water channels for submerged and surface transits. The acoustic environment, water depth, and traffic patterns in the navigation channel directly affect submarine operational security.

South Central Bay: Amphibious and Expeditionary Forces

The South Central Bay District, extending from the Coronado Bridge to National City Marine Terminal, encompasses waters adjacent to:

• Naval Base San Diego (32nd Street Naval Station): The Navy's principal surface ship base on the West Coast
• Naval Amphibious Base Coronado: Home to the Pacific Fleet's amphibious forces and special warfare commands

This district's 3,028 acres include areas where:

Amphibious Operations Training Occurs

Landing craft, hovercraft, and small boats conduct training evolutions in these waters. The TLUP's allowance for "increased conservation efforts" including aquaculture at the former A-8 anchorage must be carefully balanced against these training requirements. Seaweed and shellfish farming operations could create navigation hazards or conflict with amphibious training areas if not properly coordinated.

Special Warfare Operations

Naval Special Warfare Command units, including Navy SEAL teams based at Naval Amphibious Base Coronado, utilize bay waters for training. Combat swimming, small boat operations, and maritime interdiction exercises require controlled water spaces. The port's new permitting authority means SEAL training coordinators will need to work through local channels rather than state agencies for any activities requiring permits.

Fleet Berthing and Movement

Destroyers, cruisers, amphibious ships, and auxiliary vessels berth along piers extending into waters now under port jurisdiction. Daily vessel movements—ships leaving for patrol, returning from deployment, or shifting berths for maintenance—all transit these waters. The port's environmental analysis determined "no significant effects" from the TLUP, suggesting existing naval operations can continue without major disruption.

Lease Arrangements and Shore Infrastructure

The transfer included nearly two dozen existing leases, some directly supporting naval operations:

BAE Systems Ship Repair

BAE Systems operates a major ship repair yard with dry dock facilities extending into the newly transferred submerged lands. This contractor provides critical maintenance for Pacific Fleet surface ships, including:

• Hull repairs and underwater maintenance
• Propulsion system overhauls
• Combat systems upgrades
• Routine maintenance availabilities

The port's direct oversight of BAE's submerged land leases may improve coordination between naval maintenance schedules and permitting requirements. However, any changes to lease terms, environmental restrictions, or permitting timelines could affect fleet maintenance cycles and operational availability.

Utilities and Infrastructure

The transferred territory includes leases for cables, sewer mains, and other infrastructure supporting naval installations. Naval bases require uninterrupted utility services; any port decisions affecting these easements must account for national security implications.

Force Protection and Security Considerations

The Navy's force protection posture in San Diego Bay involves multiple layers of security, including:

Exclusion Zones

High-value assets like aircraft carriers maintain security exclusion zones enforced by naval security forces. The port's new authority over surrounding waters requires clear protocols for coordinating these zones with commercial vessel traffic, recreational boating, and other bay uses.

Anti-Terrorism/Force Protection Measures

Following incidents like the USS Cole bombing (2000), the Navy implemented stringent waterside security measures. Port authorities must coordinate their permitting and enforcement activities to support, not hinder, these security protocols.

Underwater Threat Mitigation

The Navy employs various systems to detect and counter underwater threats in the bay. Any aquaculture operations, particularly those involving structures or equipment extending below the surface, require security reviews to ensure they don't create operational conflicts or provide concealment for hostile activities.

Environmental Compliance and Training Limitations

Naval training operations face increasing environmental scrutiny, particularly regarding:

Marine Mammal Protection

San Diego Bay hosts various marine mammal species protected under federal law. Naval exercises involving sonar, explosives, or vessel movements must comply with environmental regulations. The port's Mitigated Negative Declaration for the TLUP suggests alignment with existing environmental protections, but any new restrictions could affect Navy training flexibility.

Water Quality and Stormwater

Naval installations discharge stormwater into the bay under strict permits. The port's expanded jurisdiction means closer oversight of these discharges, potentially requiring additional coordination or compliance measures.

Habitat Conservation

Conservation designations in the South Central and South Bay districts could restrict certain training activities or require additional environmental review for naval operations. The port's stated goal of "balancing all of those different interests" suggests awareness of these tensions.

Operational Efficiency Gains

Despite potential complications, consolidating bay management under a single local agency offers significant benefits for naval operations:

Streamlined Permitting

Previously, activities in the doughnut hole required coordination with the State Lands Commission in Sacramento, creating delays and bureaucratic complexity. The port's local presence and "boots on the ground" approach should accelerate permit reviews for routine naval activities.

Single Point of Contact

Rather than navigating multiple agencies with overlapping jurisdictions, naval installation commanders and fleet operations officers can work directly with port officials who understand local conditions and operational requirements.

Improved Coordination

The port's consultation with the Navy during TLUP development demonstrates collaborative relationships. This foundation should facilitate ongoing coordination as implementation proceeds.

Faster Emergency Response

During environmental spills, security incidents, or maritime casualties involving naval vessels, local port authority should enable faster response than state-level agencies based in Sacramento or other distant locations.

Fleet Readiness Implications

The Navy's operational tempo in San Diego directly affects Pacific Fleet readiness and U.S. strategic posture in the Indo-Pacific region. Any factors that impede:

• Carrier strike group deployment schedules
• Submarine patrol cycles
• Amphibious ready group availability
• Surface combatant maintenance periods
• Aviation training completion

...have cascading effects on national security. The TLUP's impact on fleet readiness, while likely minimal given the plan's conservative approach, warrants ongoing monitoring.

Fiscal and Administrative Considerations

The port's revenue-sharing arrangement with the State Lands Commission affects naval-related leases. In FY 2024-25, the port retained $633,000 from lease payments while remitting $490,000 to the state, netting $135,000. BAE Systems' ship repair facility represents a significant portion of these revenues.

If the port seeks to increase revenues from these leases to fund other operations, it could affect naval contractors' costs, potentially increasing Department of Defense maintenance expenditures. Conversely, efficient port management could reduce administrative overhead and benefit naval operations.

Historical Context: Tidelands and Naval Installations

The relationship between California's tidelands trust and naval operations has evolved since World War II, when the Navy's rapid expansion in San Diego Bay created jurisdictional complexities. The current transfer represents the latest chapter in this evolution, continuing the trend toward consolidated local management while respecting federal supremacy over naval operations.

The 1962 formation of the San Diego Unified Port District itself reflected recognition that bay management required specialized local expertise. The 2020 transfer of the doughnut hole extends this principle to the bay's central waters.

Looking Forward: Implementation Challenges

As the TLUP proceeds through California Coastal Commission and State Lands Commission approval processes, several Navy-related issues merit attention:

Formal Coordination Agreements

Written memoranda of understanding between the port and naval installations would clarify jurisdictional boundaries, establish coordination protocols, and prevent conflicts before they arise.

Training Area Protection

Specific designations protecting traditional naval training areas from encroachment by commercial activities, particularly aquaculture operations that could create navigation hazards.

Security Protocol Integration

Clear procedures for coordinating port enforcement activities with naval security forces, particularly during heightened security postures or when high-value units are transiting the bay.

Environmental Compliance Harmonization

Ensuring port environmental requirements don't create redundant or conflicting obligations beyond existing federal environmental compliance requirements for naval operations.

Conclusion: Cautious Optimism with Vigilance Required

The Trust Lands Use Plan's impact on Navy operations appears manageable, given the conservative nature of the plan and the port's extensive consultation with naval stakeholders during development. The consolidation of authority under a local agency with direct knowledge of operational requirements should, in theory, improve efficiency and reduce bureaucratic friction.

However, vigilance remains essential. The Navy's requirements are non-negotiable and driven by national security imperatives that transcend local planning considerations. As implementation proceeds, port officials must maintain the collaborative approach that characterized TLUP development, ensuring that America's Pacific Fleet can continue operating from its most important West Coast homeport without impediment.

The true test will come not in the plan's adoption but in its day-to-day implementation—in permitting decisions, enforcement actions, and the countless small administrative choices that either facilitate or frustrate naval operations. Given San Diego Bay's strategic importance to U.S. naval power projection in the Indo-Pacific, the stakes extend far beyond local planning considerations.

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Sources

1. Van Grove, Jennifer. "Port approves plan for 8,000 acres of expanded territory in San Diego Bay." San Diego Union-Tribune, December 2024. https://www.sandiegouniontribune.com/2024/12/16/port-approves-plan-for-8000-acres-of-expanded-territory-in-san-diego-bay/

2. San Diego Unified Port District. "Trust Lands Use Plan" (2024). Port of San Diego Official Documents.

3. U.S. Navy. "Naval Air Station North Island." Commander, Navy Installations Command. https://www.cnic.navy.mil/regions/cnrsw/installations/nas_north_island.html

4. U.S. Navy. "Naval Base San Diego." Commander, Navy Installations Command. https://www.cnic.navy.mil/regions/cnrsw/installations/navbase_san_diego.html

5. U.S. Navy. "Naval Amphibious Base Coronado." Commander, Navy Installations Command. https://www.cnic.navy.mil/regions/cnrsw/installations/navbase_coronado.html

6. California Senate Bill 507 (2019). Transfer of state sovereign lands in San Diego Bay to the San Diego Unified Port District.

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Note: This expanded analysis of Navy impacts is based on the author's professional knowledge of naval operations, radar systems, and defense infrastructure, combined with the provided source material. Additional research into specific Navy environmental impact statements, training range documentation, and security protocols would provide further detail but may involve classified information not available in public sources.