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Near the end of its first session, the 109th Congress approved a new round of military base closures and realignments. As the Department of Defense (DoD) implements the new round, potential issues for the 110th Congress include the pace and costs of closing and realigning the bases and the impacts on surrounding communities. The disposal of surplus property has stimulated interest among affected communities in terms of how the land can be redeveloped to replace lost jobs. Environmental contamination can present a challenge to economic redevelopment if funding or technological constraints would limit the degree of cleanup needed to make the land safe for its intended use. Most of the land on bases closed under prior rounds has been cleaned up and transferred for redevelopment. However, some bases have yet to be cleaned up to an extent adequate for the planned land use. Bases closed under the 2005 round could face similar redevelopment delays if a community's preferred land use requires a costly and time-consuming degree of cleanup. This report explains cleanup requirements for the transfer and reuse of properties on closed bases, discusses property transfer status and cleanup costs on bases closed in prior rounds, and examines estimates of costs to clean up bases to be closed in the 2005 round to make these properties safe for civilian reuse.
While expected environmental cleanup costs for unneeded property arising from the 2005 BRAC round are not yet fully known, Department of Defense (DOD) data indicate that about $950 million will be needed to clean up these bases, adding to the estimated $13.2 billion total cleanup cost for the prior rounds. Although DOD's cleanup program has matured compared to prior BRAC rounds, there are still many unknowns and the cleanup estimate for the 2005 round should be considered preliminary. In fact, environmental cleanup costs are likely to increase as more intensive environmental investigations are undertaken, additional hazardous conditions are discovered, and future reuse plans are finalized. Furthermore, Congress does not have full visibility over the total cost of DOD's BRAC cleanup efforts because none of the four reports DOD prepares on various aspects of environmental cleanup present all types of costs past and future to complete cleanup at each base. Compiling a complete picture of all costs requires extracting information from multiple reports, as GAO has done to estimate the total cleanup cost for the four prior BRAC rounds. More complete and transparent cost information would assist Congress in conducting its oversight responsibilities for this multibillion dollar effort.
American communities face serious challenges when military bases close. But affected municipalities and metro regions are not doomed. Taking a long-term, flexible, and incremental approach, Michael Touchton and Amanda J. Ashley make strong recommendations for collaborative models of governance that can improve defense conversion dramatically and ensure benefits, even for low-resource municipalities. Communities can't control their economic situation or geographic location, but, as Salvaging Community shows, communities can control how they govern conversion processes geared toward redevelopment and reinvention. In Salvaging Community, Touchton and Ashley undertake a comprehensive evaluation of how such communities redevelop former bases following the Department of Defense's Base Realignment and Closure (BRAC) process. To do so, they developed the first national database on military redevelopment and combine quantitative national analyses with three, in-depth case studies in California. Salvaging Community thus fills the void in knowledge surrounding redevelopment of bases and the disparate outcomes that affect communities after BRAC. The data presented in Salvaging Community points toward effective strategies for collaborative governance that address the present-day needs of municipal officials, economic development agencies, and non-profit organizations working in post-BRAC communities. Defense conversion is not just about jobs or economic rebound, Touchton and Ashley argue. Emphasizing inclusion and sustainability in redevelopment promotes rejuvenated communities and creates places where people want to live. As localities and regions deal with the legacy of the post-Cold War base closings and anticipate new closures in the future, Salvaging Community presents a timely and constructive approach to both economic and community development at the close of the military-industrial era.
Focuses on lessons learned from four rounds of base realignments and closures (BRACs) held in 1988, 1991, 1993, and 1995. Addresses the applicability of these lessons to future BRACs as related to savings, costs, and economic impact; legislative actions needed to authorize future BRAC rounds; and what improvements would be needed in the Department of Defense's process for identifying bases for realignment and closure. Charts and tables.
The Department of Defense (DoD) is currently implementing recommendations from the 2005 Base Realignment and Closure (BRAC) round, which is the fifth round undertaken by DoD since 1988. The 2005 round is, by GAO's assessment, the biggest, most complex, and costliest BRAC round ever, in part because, unlike previous rounds, the Secretary of Defense viewed the 2005 round as an opportunity not only to achieve savings but also to assist in transforming the department. GAO's testimony addresses the following: (1) GAO's role in the BRAC process, and (2) how DoD's current cost and savings estimates to implement the 2005 recommendations compare to the 2005 Defense Base Closure and Realignment Commission's (the Commission) cost and savings estimates. This testimony is based primarily on the report GAO issued yesterday (GAO-08-159) on the overall changes to DoD's cost and savings estimates for the 2005 BRAC round. To analyze these changes, GAO compared the Commission's estimates in its 2005 report to DoD's estimates in its fiscal year 2008 BRAC budget submission. This testimony is also based on several reports GAO has issued on the implementation of selected recommendations, and GAO's prior work assessing the 2005 decision making process. GAO's work was performed in accordance with generally accepted government auditing standards.
Through base realignment and closure rounds in 1988, 1991, 1993, and 1995, the Department of Defense expected to significantly reduce its domestic infrastructure and provide needed dollars for high-priority programs such as modernization. With the conclusion of the 6-year implementation period of the last round in fiscal year 2001, the department has closed or realigned hundreds of bases, has generated savings from these actions, and is in the process of transferring unneeded base property to other users. At the same time, the communities surrounding the former defense bases continue the lengthy process of recovery from the economic impact of the closure process. Our last comprehensive report on the implementation of base closure decisions was issued in December 1998. In that report, we concluded that the closure process was generating substantial savings (although the savings estimates were imprecise), most former base property had not yet been transferred to other users, and most communities surrounding closed bases were faring well economically in relation to key national economic indicators. In a July 2001 report and August 2001 testimony, we updated our closure implementation data and reaffirmed the primary results of our prior work.