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© 2005 All Rights Reserved - Whitney, Bradley & Brown, Inc.2005 All Rights Reserved - Whitney, Bradley & Brown, Inc.
Base Realignment and Closure
““There’s more to BRAC There’s more to BRAC than a 4-letter word”than a 4-letter word”
American Federation of Government Employees American Federation of Government Employees February 5, 2005February 5, 2005
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• To provide background and details of the Base Realignment and Closure (BRAC) process in order to increase understanding of the overall process and identify critical points where AFGE involvement is possible
““I am on this subject … as pure as driven snow. I know I am on this subject … as pure as driven snow. I know the truth … and there are several. One is that, for the the truth … and there are several. One is that, for the most part, people don’t like BRACs.”most part, people don’t like BRACs.”
--Secretary of Defense Donald Rumsfeld, April 18, --Secretary of Defense Donald Rumsfeld, April 18, 2002, town hall meeting with troops at Scott Air Force Base, Illinois2002, town hall meeting with troops at Scott Air Force Base, Illinois
PurposePurposePurpose
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• Overview• BRAC History• BRAC Law• Selection Criteria• BRAC Process• BRAC Commission• Community Involvement• BRAC Key Events
Outline
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Overview
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What is BRAC?
"Congress authorized a base realignment and closure (BRAC) round in 2005. At a minimum, BRAC 2005 must eliminate excess physical capacity, the operation, sustainment, and recapitalization of which diverts scarce resources from defense capability. However, BRAC 2005 can make an even more profound contribution to transforming the Department by rationalizing our infrastructure with defense strategy. BRAC 2005 should be the means by which we reconfigure our current infrastructure into one in which operational capacity maximizes both warfighting capability and efficiency.”
Guidance from Secretary of Defense Donald RumsfeldNovember 15, 2002
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• Greater effort in ‘05 to achieve jointness• DoD-, not Service-, directed• Good business practices will dictate closures/realignment
in ’05– Best and last chance to transform basing and
infrastructure• 7 commissioners required to change SecDef list• OSD has its own “BRAC consultant team”• Military Value criteria more heavily weighted in ’05• Ability to mothball closed bases• Seek fair market value
BRAC ’05 vs. BRAC ’95
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BRAC History
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Pre-Commission Closures(Congress tries to get control of process)
• Early ’60s – SecDef McNamara at direction of President Kennedy– 60 major bases closed– OSD-established criteria– Closures seen as political punishment
• 1965 – President Johnson vetoes congressional reporting requirements legislation
• 1976 – President Ford vetoes MilCon authorization bill prohibiting BRAC affecting more than 250 civilian employees without prior congressional notification– Congress fails to override veto
• 1977 – 10 USC 2687 enacted requiring prior congressional notification of potential BRAC action– BRAC process reverts to this provision as amended absent BRAC
commission
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1988 Carlucci Commission
• Chartered by SecDef Frank Carlucci– One-time approach via Public Law 100-526
• Commission worked for SecDef and generated list of recommended closures and realignments
• Expired on 31 Dec 1988
• 86 closures, 59 realignments– 16 major closures, 11 major realignments– $693.6M annual savings– 3% base structure reduction
• Co-chairs were former U.S. Sen. Abe Ribicoff and Rep. Jack Edwards– 12-member commission
• SecDef, Congress could accept/reject commission’s recommendations only in entirety
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Cheney List and BRAC 1991• SecDef Cheney in Jan 1990 proposed
35 closures, 20+ realignments• Services, defense agencies given no
guidance for base selections• Congress charged list was politically
influenced– 95% of bases targeted were in
Democratic districts• Defense Base Closure and Realignment Act
of 1990 halted action and established new procedures
– Public Law 101-510• Authorized 3 BRAC rounds in 1991, 1993,
1995 (all non-election years)• All meetings, hearings, records open to
public• All sites on SecDef’s proposed closure
list visited• Public has opportunity to provide input
• BRAC 91• Commission reviewed and analyzed
SecDef recs and reported to President– Candidate bases chosen using force-
structure plan and Congressionally approved criteria
• GAO required to review SecDef recs and selection process
• 34 closures, 48 realignments– 26 major closures, 19 major realignments– Net savings of $23B, recurring savings of
$1.5B annually• One-time cost of $4.1B
– Reduced domestic base structure by 5.4%
• Chaired by former Rep. Jim Courter– 8-member commission
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BRAC 1993 and 1995
• BRAC 1993
• 130 closures, 45 realignments– 28 major closures, 13 major
realignments– Net savings of $38B FY 94-99
• One-time cost of $7.43B
– Total savings of $2.33B annually
– 6.2% reduction in domestic base structure
• Selection criteria same as in BRAC ’91
• Courter also chaired– 8-member commission
• BRAC 1995• 132 bases closed or realigned
– 30 major closures, 22 major realignments
– Annual savings of $1.6B• One-time cost of $3.6B
– 20-year savings of $19.3B
• Chaired by former U.S. Sen. Alan Dixon
• Selection criteria same as in BRAC ’91 and ’93
– Commission added 36 bases for consideration as alternatives
• President’s Privatization-in-Place proposal of two USAF air logistic centers poisoned well for future BRACs
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The Legal Basis
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• Supercedes PL 100-526 – Operative for BRAC 91, 93, 95, 2005 (in amended forms)– Creates a defined and open process– Requires formulation of selection criteria– Creates 9-member independent review commission– Requires public hearings and deliberations
• Data certified as to its accuracy
– Establishes defined requirements and procedures• Imposes specific time frames for process
– Requires President and Congress to accept or reject recommendations in their entirety
– Provides for external audit of the BRAC process
Public Law 101-510Defense Base Closure and Realignment Act of 1990
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• §2912 Force Structure Plan and Infrastructure Inventory– Force structure plan based on threats during 20-year period
beginning in 2005• Probable end-strength levels and major military force units
needed to meet these threats
• Anticipated levels of funding that will be available for national defense purposes during such period
– Comprehensive inventory of military installations world-wide for each military department, with specifications of the number and type of facilities in the active and reserve forces of each military department
Public Law 107-107FY02 National Defense Authorization Act
(subsumes and amends PL 101-510)
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• Relationship of plan and inventory• Anticipated continuing need for and availability of
military installations outside the United States• Efficiencies gained from joint tenancy• Certification of need for further closures and
realignments and net savings by 2011• Comptroller General (GAO) evaluation required• Empowers President to appoint new Commission
and prescribes limitations on its tenure
Public Law 107-107National Defense Authorization Act For FY 2002 §2912 (con’t)
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§2913. Selection Criteria for 2005 Round§2914. Special procedures for making recommendations … for
2005 round; Commission consideration of recommendations• Secretary’s recommendations must be transmitted to
Congress NLT May 16, 2005• Secretary shall consider any notice received from a local
government in the vicinity of any installation, that the government would approve of the closure or realignment– But, final recommendation based on military value– But, final recommendation must include statement on
result of the consideration of any notice received and set forth the reasons for the result
• Recommendations may be made to retain bases in inactive status
Public Law 107-107National Defense Authorization Act For FY 2002
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§2914. (con’t)• Commission review and recommendations
– Generally unchanged from 1990– Recommendations required to President NLT September 8,
2005– Commission may propose addition(s) to list only after
providing Secretary with, at least, a 15-day period to submit explanation why installation was not included in list
– Commission adds to list must be supported by at least seven members
§2904. Limitations on Privatization in Place• Privatization in place only if it is a method of closure or
realignment and is determined by the Commission to be the most cost-effective method of implementation of the recommendation
Public Law 107-107National Defense Authorization Act For FY 2002
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Statutory Responsibilities• Secretary of Defense
– Proposes selection criteria– Develops force structure plan– Recommends closures and realignments
• Commission– Reviews recommendations– Conducts public hearings– Forwards recommendations to President
• President– Nominates commissioners– Approves commission recommendations– Forwards recommendations to Congress
• Congress– Confirms commissioners– Oversees process and “approves” final list (all or none)
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Selection Criteria
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• Military value is top priority … because Congress says it is!– The current and future mission capabilities and the impact on operational
readiness … including the impact on joint warfighting, training, and readiness
– The availability and condition of land, facilities, and associated airspace (including training areas suitable for maneuver by ground, naval, or air forces throughout a diversity of climate and terrain areas and staging areas for the use of the Armed Forces in homeland defense missions) at both existing and potential receiving locations
– The ability to accommodate contingency, mobilization, and future total force requirements at both existing and potential receiving locations to support operations and training
– The cost of operations and the manpower implications
Focus on creating joint bases and facilities is a key difference between BRAC 2005 and previous BRAC rounds
BRAC Selection Criteria(Military Value)
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• Other Considerations– The extent and timing of potential costs and savings,
including the number of years … for the savings to exceed the costs
– The economic impact on existing communities in the vicinity of the military installations
– The ability of both the existing and potential receiving communities’ infrastructure to support forces, missions, and personnel
– The environmental impact, including the impact of costs related to potential environmental restoration, waste management, and environmental compliance activities
Red indicates changes in selection criteria for 2005
BRAC Selection Criteria(Costs, Savings and Impacts)
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• Net savings = cost avoidance– BRAC implementation costs are subtracted
• Construction at receiving bases• Personnel and equipment relocation • Environmental restoration
• Must begin to accrue NLT fiscal year 2011– Slow to accrue because of the high execution costs
• Primary focus: Number of military, civilian, and private contractor personnel eliminated or reassigned
• Indirect job losses resulting from BRAC action Job multiplier determines indirect job losses
• Considers cumulative economic impact– … by including pre-BRAC personnel relocations– … by including existing unemployment rates
Secretary must certify
BRAC Selection Criteria (Return on Investment and Economic Impact)
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Cost of living Available family housing
Health care
Crime statistics Schools Transportation
Spousal employment opportunities
Workforce availability
Climate and environment
No OSD guidance in previous BRAC roundAdequacy determined by individual departments
Source: 1995 Defense Base Closure and RealignmentCommission Report to the President
BRAC Selection Criteria(Community Infrastructure)
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• Environmental attributes to be evaluated– Threatened and endangered species– Wetlands– Historic and archeological sites– Pollution control– Hazardous materials/wastes– Land and air uses– Environmental costs/cost avoidance
• Restoration• Waste Management• Compliance
– Air quality1990 Clean Air Act prohibits any Federal Agency from supporting an action unless it determines that it conforms to the air quality implementation plan for the area
At closing bases… not previously considered
List compiled from GAO Report 02-614
BRAC Selection Criteria(Environmental Impact)
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• Anything that impedes … ability to conduct realistic military training and testing– Endangered species habitat on military installations– Unexploded ordnance and munitions constituents– Competition for radio frequency spectrum– Protected and/or exploited marine resources– Competition for airspace– Air pollution– Noise pollution– Urban growth around military installations
• Not applicable to every base; most common in areas with dense and growing populations
BRAC Selection Criteria (Encroachment)
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Overseas BRAC Commission
• Directed by FY04 MILCON Appropriations Bill– Responsible to Congress, not DoD– Report due NLT Dec 31, 2004
• “Thorough study of matters relating to the military facility structure of the U.S. overseas.”– Number of forces required to be forward based– Current state of overseas military facilities and ranges– Amount received from foreign countries in support– Adequacy of overseas facilities for current and future missions– Feasibility and advisability of closure or realignment of overseas
facilities– Any other issue relating to overseas military facilities
• Provide overseas basing strategy for DoD
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The BRAC Process
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BRAC Leadership
• OSD will lead the way … early and often– Two senior groups to oversee and operate the process
• Infrastructure Executive Council Policy-making and oversight functions
• Infrastructure Steering Group Joint cross-service analyses of common business oriented
functions Integrate that process with the Military Department and Defense
Agency specific analyses of all other functions
» USD (AT&L) has authority and responsibility for issuing operating policies and detail direction for analyses
Secretary of Defense Memorandum November 15, 2002
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BRAC Leadership
SEC DEFSEC DEF
Infrastructure Steering Group (ISG)
Chair: USD (AT&L)
Infrastructure Steering Group (ISG)
Chair: USD (AT&L)SEC NAVYSEC NAVY SEC AIR FORCESEC AIR FORCESEC ARMYSEC ARMY
Dept. of ArmyAnalytical Teams
Dept. of ArmyAnalytical Teams
Dept. of NavyAnalytical Teams
Dept. of NavyAnalytical Teams
Infrastructure Executive Council (IEC)Chair: DEP SEC DEF
Infrastructure Executive Council (IEC)Chair: DEP SEC DEF
Dept. of Air ForceAnalytical TeamsDept. of Air ForceAnalytical Teams
Membership: (10)• Vice Chairman, JCS• Military Dept. Assistant
Secretaries (I&E)• Service Vice Chiefs• DUSD (I&E)
Membership: (10)• Vice Chairman, JCS• Military Dept. Assistant
Secretaries (I&E)• Service Vice Chiefs• DUSD (I&E)
Membership: (10)• Military Dept. Secretaries
and their Chiefs of Services• Chairman, JCS• USD (AT&L)
Membership: (10)• Military Dept. Secretaries
and their Chiefs of Services• Chairman, JCS• USD (AT&L)
Defense AgencyAnalytical TeamsDefense AgencyAnalytical Teams
Joint Cross-ServiceAnalytical Teams (7)Joint Cross-Service
Analytical Teams (7)
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SecDef Memo Nov 15, 2002: Transformation Through Base Realignment and Closure
SecDef Memo Nov 15, 2002: Transformation Through Base Realignment and Closure
Guidance:-Rationalize infrastructure with defense strategy- Infrastructure’s operational capacity to maximize both war fighting capability and efficiency
-Prepare:- Overseas basing plans- Selection criteria- Force structure plan- Inventory- Capacity analysis- Certification of the need for BRAC- Realignment and closure recommendations
Secretary of DefenseSecretary of Defense
A PRIMARY OBJECTIVE:
Opportunities for greater joint activity
A PRIMARY OBJECTIVE:
Opportunities for greater joint activity
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IEC and ISG
SecDef established two senior groupsto oversee and operate the BRAC 2005 process
SecDef established two senior groupsto oversee and operate the BRAC 2005 process
IEC - Infrastructure Executive Council• Policy and oversight
• Chaired by Deputy Secretary of Defense• Members are Service secretaries and chiefs of staff, CJCS, USD (AT&L)
ISG - Infrastructure Steering Group • Issues operating policies and detailed direction• Oversees joint cross-service analysis• Ensures integration of cross-service and Department / Agency analyses
• Chaired by USD (AT&L)• Members are VCJCS, Service DAS (I&E), Service vice chiefs, DUSD (I&E)
• Recommends to IEC for SecDef approval:• Specific functions to receive joint analysis and metrics for that analysis• Broad series of options for stationing and supporting forces and functions to increase efficiency and effectiveness
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Joint Cross Service Groups
• Responsible for analyzing common business-oriented support functions and examining them for ways to realize consolidation and elimination of excess infrastructure.
• Common support elements include: • Industrial
• Supply and Storage
• Technical
• Intelligence
• JCSG determination has primacy over Service review • Submit closure and realignment recommendations to
Infrastructure Steering Group (ISG)
• Education and
Training• Administrative (HQ)• Medical
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Military Departments
Military Department responsibilities:• Communicate with ISG• Initiate data calls to installations
Installation Commander responsibilities/duties:• Certify information used to conduct analyses• MAY attend meetings, in liaison / representational capacity, with
state or local officials or other organizations that may seek to develop plans or programs to improve ability of installations to discharge their national security and defense missions
• DoD officials/personnel:• May NOT manage or control such organizations or efforts• May NOT, in their official capacity, participate in activities of
any organization that has as its purpose insulating DoD installations from closure or realignment
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GAO’s Role
• Prepares report to Congress detailing DoD’s selection process– DoD components and JCSGs must keep records of data /
access provided to GAO
• Assists Commission in its review and analysis of SecDef’s Recommendations
• GAO will be provided free and open access to the BRAC 2005 process, except deliberative sessions (deliberative session minutes provided upon request)
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Timeline – Completed Actions
11/01/03 - Interim Force Structure Plan
11/15/02 - SecDef Memo: Transformation Through BRAC
+ 150 days - Identify Functions to Receive Joint Analysis
03/20/03 - SecDef: Integrated Global Presence and Basing Strategy
201020092008200720062003 2004 2005
12/23/03 Draft Selection Criteria
30 day - Public comment on Draft Selection Criteria
02/12/04 - Final Selection Criteria
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Timeline – Pre-Approval (2004/05)
03/15/05 – President nominates Commissioners
02/~/05 – As required: Revisions to Force-Structure Plan and Infrastructure Inventory
02/~/05 - Overseas Basing Input
201020092008200720062003 2004 2005
05/16/05 - SecDef submits closure or realignment recommendations to Congress / Commission
07/01/05 - Comptroller General Analysis of SecDef’s recommendations and selection process
09/08/05 - Commission transmits recommendations to the President
NLT 3/15/05 Failure to nominate kills BRAC
Commission Terminates on 4/15/06
Commission
Duration
02/~/04 Force Structure Plan & Infrastructure Inventory to Congress
NLT 03/15/04 - Congressional approval of Final Selection Criteria
04/~/04 - Comptroller General Evaluation of Force Structure Plan & Infrastructure Inventory
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Timeline – Approval
President and Congress must approve all or none
President and Congress must approve all or none
NLT 09/23/05 - President’s Decision on Commission’s Recommendations
+45 Legislative days: Congress’ decision
Sep
If disapproved by President:
10/20/05 - Commission's Revised Recommendations to the President
11/07/05 - President’s Decision on Revised Recommendations
Oct Nov2005 2006
Jan Feb Mar Apr
President approves revised recommendations or process ends
If approved by President:
+45 Legislative days: Congress’ decision
Dec
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Timeline – Post-ApprovalTimeline – Post-Approval
+2 years – Implementation must start
2011 20122005
+6 years – Actions must be complete
Commission terminates – 04/15/06
2006 2007 2008 2009 2010
Installations selected for closure or realignment must be closed or realigned by 2012
Installations selected for closure or realignment must be closed or realigned by 2012
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The BRAC Commission
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Purpose of Commission
• “To provide a fair process that will result in the timely closure and realignment of military installations inside the United States”– Public Law 101-510 and as amended– Intended to be model of open government
• Hearings, records open to public scrutiny
– Funded through DoD Base Closure Account 2005 established under PL 107-107
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Nominees
• Presidential nominations due to Senate for confirmation NLT 15 March 2005– Senate Armed Services Committee holds hearings and
transmits nominations to full Senate for approval
• 9 members– Speaker of House and Senate Majority Leader each
consult w/President on 2 nominees– Minority leaders of House and Senate each consult on 1
nominee– President designates chairman, chooses remaining 3
• Service terminates 15 April 2006
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Selection Criteria
• Recognized leaders in – Public service
• Former members of Congress and staff, former Cabinet secretaries and presidential appointees
– Business• Airlines, industry, finance
– Military• Retired general and flag officers
– Army, Navy, Air Force
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Past Commissioners
• 1991– Former U.S. Rep. Jim Courter (R-NJ) chaired– William Ball III, Howard “Bo” Calloway, Duane Cassidy, Arthur
Levitt Jr., James Smith II, Robert Stuart Jr., Alexander Trowbridge
• Trowbridge resigned in May
• 1993– Courter also chaired– Peter Bowman, Beverly Byron, Rebecca Cox, Hansford Johnson,
Arthur Levitt Jr., Harry McPherson Jr., Robert Stuart Jr.• Levitt resigned in May to become SEC chairman
• 1995– Former U.S. Sen. Alan Dixon (D-IL) chaired– Al Cornella, Rebecca Cox, J.B. Davis, Lee Kling, Benjamin
Montoya, Josue Robles, Wendi Steele
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2005 Nominees to DateName Nominated by Former position
James V. HansenHouse Speaker Dennis Hastert
U.S. Representative (R-UT, 1981-2003)
Samuel K. SkinnerHouse Speaker Dennis Hastert
Transportation Secretary (Bush Administration)
Vic Fazio*House Minority Leader Nancy Pelosi
U.S. Representative (D-CA, 1979-1999)
Wade Sanders*House Minority Leader Nancy Pelosi
Deputy Assistant Secretary of Navy
GEN John Coburn (USA, Retired)
Senate Majority Leader Bill Frist
CO, Army Materiel Command; Army DCSLOG
ADM Harold Gehman (USN, Retired)
Senate Majority Leader Bill Frist
CO, Joint Forces Command, Atlantic Command
James BilbraySenate Minority Leader Harry Reid
U.S. Representative (D-NV, 1987-1995)
3 TBDPresident George Bush
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Commissioners’ Role
• Conduct fact-finding visits– At least one commissioner visits every major base
recommended by SecDef or added by commission for closure
• Hold public investigative hearings– In Washington and at regional sites throughout U.S.
• Topics include Military Service input, specifics of closure process, impacts of SecDef’s recommendations, ways Federal Gov’t can better assist communities with reuse
• To receive testimony from communities, Members of Congress, GAO
– All testimony presented under oath
• Receive written input from public– 1995 commission received 200,000+ letters
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Commissioners’ Role (con’t)
• Hold public hearings on any bases added by commission– Additions to list require support of 7 commission
members– Commission must give SecDef 15-day notice of bases to
be added to list• SecDef must be invited to testify on added bases
• Report findings to President NLT 8 Sept 2005– Presidential approval/disapproval due by 23 Sept 2005
• Must transmit revised list to President NLT 20 Oct 2005
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Commission Staff
• Come from government, law, academia, military– Hired directly by commission or detailed from:
• Department of Defense• General Accounting Office• Department of Commerce• Environmental Protection Agency• Federal Aviation Administration• Federal Emergency Management Agency
• Research and analysis staff divided into five teams– Army, Navy, Air Force– Interagency (defense agencies)– Cross-service (depots, labs, test and evaluation)
• Participate in all hearings and site visits• Staff director by law cannot be former active-duty military and
must be non-DoD civilian in past year
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Commission Staff (con’t)
• Law requires that direct-hire civilian manage each of five R&A teams
• Number of DoD analysts limited by law to 20% of total professional analysis staff– Lead Service analyst cannot be from that Service/Defense agency
• Positions not subject to competitive rules– Maximum pay for staff is GS-18 equivalent– Director is SES 4 equivalent
• No more than one-third of staff may be DoD employees or detailees– Detailees’ commission service cannot be evaluated by
military/civilian chain of command– Detailees’ cannot have participated in DoD BRAC process
in past 12 months
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Steps in Commission Review
• Commission receives BRAC list• Staff analysis• Commission and staff base visits• Commission hearings
– Washington– Regional
• Alternate sites proposed• Additional analysis• Commission staff report• Commission’s formal votes• Commission report to President
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Review Process
• Evaluate criteria application across all Services to ensure process uniformity and compliance with legal requirement to evaluate recommendations based on final selection criteria
• Teams begin by examining data and documents provided by DoD, Services– Were recommendations based on force structure plan and
criteria?– Were all bases considered equally?– Are categories, sub-categories and exclusions reasonable?– Is data reasonable?
• Capacity analysis, COBRA input, MILCON cost estimates, capacity of receiver installations
– 1995 commission staff received and generated ~400 COBRA runs for evaluation and consideration
– Commission generates and runs its own COBRA models for bases added by commission to list
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Review Process (con’t)
• Five R&A teams review application of military value criteria to BRAC process– Analyze Services’ methodology to ensure compliance
with law– Confirm accuracy of data– Determine if base-specific recommendations were
properly offered by SecDef
• Interagency issues team– Analyzed non MV-criteria across all Services
• ROI, economic and environmental impacts, community infrastructure
– Provided analysis on airspace issues
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How Commission Uses Data
• To track cost and savings estimates of DoD recommendations– In 1995, DoD modified ROI calculations for 64 of original
146 recommendations
• To evaluate 7 environmental attributes– Threatened and endangered species– Wetlands– Historic and archeological sites– Pollution control– Hazardous materials/wastes– Land and air uses– Programmed environmental costs/cost avoidances
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How Commission Uses Data (con’t)
• To validate economic impact– Analysis of economic procedures– Review personnel changes– Employment data and actual economic activity– Economic areas assigned to installations– Analysis of indirect job multipliers used to measure
indirect job impacts• Services directed to correct inconsistencies during
commission review process
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Commission Report
• Closure decisions made in formal, public voting sessions over period of 2-3 days– Commissioners required to cast individual votes on all
targeted bases• Commission staff outlines SecDef/community issues• Simple majority vote prevails
• Following votes, information collected into formally printed and bound presentation
• Commission must explain and justify recommendations that differ from SecDef’s
• Copies provided to congressional defense committees on same day report goes to President
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Commission Report (con’t)
• Goes to the President– Contains findings and conclusions based on commission’s
analysis and review of SecDef’s recommendations– Contains commission’s recommendations for closure and
realignment• Changes in SecDef’s recommendations must be due to
substantial deviations from force structure plan and final criteria
– Also includes redirects of previous commission recommendations
– History of BRAC process detailed– Current commission processes, personnel described
• Official historical record of commission’s proceedings
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Community Involvement
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States’ and Communities’ Role
• Identify and utilize local expertise– Leadership form “core group” of executive committee
• Consistent interaction with military services, OSD, members of Congress and congressional staff– Build and maintain local/state/federal team
• Develop executive branch and legislative advocacy
• Assist in data collection and analysis
• Assist in preparation of technical case for retention of bases– Review BRAC data calls for accuracy and completeness
– Provide alternative data to BRAC commission• Must be obtained outside “official” sources
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States’ and Communities’ Role
• Provide response to SecDef’s draft selection criteria (window closed)
• Attend and participate in regional hearings– Provide expert witnesses– Testify to economic impact of SecDef’s recommedations
• Both positive and negative
– Challenge SecDef’s compliance with selection criteria
• Develop and execute overall strategy for base retention– Identification of new and current mission enhancements– Present and future infrastructure requirements– Methodologies to improve base activities so as to reduce base
operating costs– Recommendations and strategies
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Consultants’ and Lobbyists’ Role
• Assist and counsel state/local BRAC councils• Develop strategic and tactical plans• Working group planning• Provide subject-matter and process expertise• Liaison with Washington
– Congress– Military Services, OSD– Federal agencies, departments, commissions
• Attend hearings, public events• Serve as extension of state/local BRAC groups
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Pre-BRAC List Activities
• Input on BRAC selection criteria (window closed) • SWOT evaluation of base current status (too late)• Meetings with DoD, Service HQ officials
regarding regional military facilities’ missions and potential as receiver sites
• Develop presentations highlighting regional military facilities’ strategic assets– Educational campaign for local/state/federal audiences
• Influence appointment of BRAC commissioners• Develop multi-level strategy for responding to
DoD BRAC 05 recommendations
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Post-BRAC List Activities
• Analyze DoD BRAC submission for errors, violations of BRAC criteria
• Respond to BRAC recommendations if they affect local bases
• Attend and participate in BRAC Commission hearings– Washington, D.C.– BRAC Commission regional hearings (if required)
• Meetings and other contacts with BRAC commissioners• Monitor BRAC Commission activity involving other
bases for synergistic impacts• Achieve consensus on reuse plan
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Base/Community Relationship
• All DoD military/civilians working BRAC 2005 process required to sign non-disclosure agreement
• Base commander must support SecDef’s position– Officially constrained from assisting with base retention
activities• May put strain on previously friendly relationships within
community
• Morale of DoD civilian employees will be affected• Cleanup and reuse have potential for becoming
very contentious– Early planning and preparation necessary but may be
misinterpreted as giving up
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Summary: BRAC Key Events
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BRAC ’05 Key Events
• Selection criteria published– NLT 12/31/03 SecDef publishes in Federal Register
and transmits to congressional defense committees the criteria proposed to be used by SecDef in making recommendations for closure or alignment of military installations inside the United States
– Public comment• SecDef must provide opportunity for public comment
for at least 30 days
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BRAC ’05 Key Events (con’t)
• Selection criteria finalized– Published by SecDef in Federal Register NLT
2/16/04• (45 days after initial criteria published)
– Criteria + Force Structure Plan + Infrastructure Inventory will be the basis for recommendations for closure or realignment
• Unless disapproved by an Act of Congress on or before 3/15/04
– Criteria used in earlier BRAC rounds to have no bearing
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BRAC ’05 Key Events (con’t)
• Commission selected– NLT 3/15/05 President nominates 9-member BRAC
Commission – Congressional input
• Nominated by President in consultation with Congress
• Senate confirmation
– Failure to nominate kills ’05 BRAC round
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BRAC ’05 Key Events (con’t)
• BRAC list announced– NLT 5/16/05 SecDef publishes in Federal Register and
transmits to congressional defense committees recommended list of bases for closure or realignment
• This becomes the “grist” for review by the BRAC Commission
– States / localities begin major efforts to save bases of interest
• Seek to show that SecDef deviated from selection criteria by:– Challenging process/procedures in building data call– Challenging accuracy/completeness of data call– Challenging military value assumptions – bring in “expert
witnesses”
• Use contacts to influence commission
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BRAC ’05 Key Events (con’t)
• Commission conducts review– NLT 9/8/05 BRAC Commission transmits its report
of recommended actions to the President– Commission reviews:
• Force Structure plan
• Infrastructure inventory
• DoD Criteria
– Commission has 16 weeks to act (5/16 to 9/8 2005)– Commission terminates 7 months after its report
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BRAC ’05 Key Events (con’t)
• Presidential Review– NLT 9/23/05 President “prepares” a report
containing approval or disapproval of the Commission’s recommendations
– In response to the President’s review, the Commission may prepare a revised list of recommendations and transmit this revised report to the President NLT 10/20/05
– IF the President does not transmit to Congress an approval and certification by 11/7/05, then the BRAC process is terminated
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BRAC ’05 Key Events (con’t)
• Congressional review– Closure and realignment recommendations become
binding 45 “legislative” days after Presidential transmission or adjournment sine die, unless Congress enacts joint resolution of disapproval
• Resolutions of disapproval introduced following 1991, 1993 and 1995 rounds but failed to win passage
– Congress’ role in BRAC is limited• Senators, representatives advocate for bases
• Congressional delegations trade on past and present relationships with BRAC commissioners
• Agreement among delegation is critical
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References
• DOD website– www.dod.mil/brac/
• Navy-Marine Corps website– www.dod.mil/brac/navy.htm
• Army website– www.dod.mil/brac/army.htm
• Air Force website– www.dod.mil/brac/af.htm