A 10-step “how-to” guide provides an effective way to pursue these opportunities.

After months of public hearings, study and research (not to mention nonstop lobbying), the 2005 Base Realignment and Closure (BRAC) Commission has issued its final list of military bases for closure and realignment. Land developers and homebuilders across the U.S. are now beginning to seriously eye the bases picked for decommissioning as tempting development
opportunities.

Nationwide, 191 facilities of varying sizes and shapes have been selected for closure (see attached list).  Now that the BRAC Commission has finished its job and President Bush approved their findings, Congress has an all-or-nothing vote within 45 days of the President’s signature. Congress is expected to fully approve the list.

Decommissioned bases can offer unique development potential, but the challenges are also evident: environmental contamination, inadequate infrastructure, buildings that aren’t up to code, and, occasionally, unexploded weaponry that must be dealt with. Most bases need substantial reconfiguration to become suitable for private development; before being decommissioned, bases must first be “normalized.”

In previous BRAC rounds, cities or counties could acquire base land gratis or at minimal cost through an economic development conveyance (EDC) and public benefit conveyance (PBC), authorized under BRAC to facilitate job creation and economic recovery. Both of these conveyance tools will likely be available during the 2005 BRAC round of closures, although altered slightly from previous rounds through the enabling legislation.

It’s also required that local government agencies establish a Local Redevelopment Authority (LRA) to initiate and guide the reuse process. To further assist communities, Congress in 1994 enacted the Base Communities Assistance Act (BCAA). Among other activities, the BCAA supports economic development through such measures as maintaining civilian job-generating uses to the maximum extent possible; expediting environmental cleanup; providing larger economic planning grants; and assisting civilian worker transition to non-military jobs.

Being a seasoned negotiator is an important attribute in this base reuse arena. Developers who acquire bases for reuse will likely have to make a number of concessions to local government entities and the community, including the building of new utility systems, roads, parks, schools, and public service facilities.  They must also collaborate with state, county, and local governments – usually through the LRA - and their constituents/stakeholders to create acceptable land-use and development plans.

BRAC Basics : 10 Principles for Base Redevelopment
The BRAC process from the actual closure to the actual planning and development is a complex enterprise that must necessarily occur over a long period. Developers looking to swoop in and effect a quick transformation will find themselves stymied… particularly if the surrounding community is inexperienced with large-scale redevelopment and wary of its effects.

From our experience, the 10 key principles for developing and securing approval for successful base reuse are:

1. Join the Army (Navy or Air Force)
Early partnering with the military can lead to a smoother transition. It’s important to learn about the type of facilities and activities at the BRAC targeted installation, as well as learning how the service plans to dispose of the property (the Army, Navy and Air Force each has its own unique process).

2. Think Big: Create a Vision
Determining the highest and best new use for a closed base is critical to its ultimate success, and redeveloping a military base may be one of a few lifetime chances for a community to do something really big and significant. Creating a vision of an exciting future use(s) at an installation helps a community quickly overcome the anxiety of base closure. It’s important to think about creating enduring planning and development solutions that are right for the community.

3. Partner for Success: Involve the Community
A successful reuse effort will be the result of close cooperation between public and private interests. It’s best if the community and developer generally have the same goals for success. The closure of a military installation can be a scary experience for a community, but it also can represent an outstanding opportunity for redevelopment and revitalization. Listen to surrounding citizens and neighbors about their hopes and dreams, as well as the larger community. Citizen support can help ensure the successful implementation of a reuse plan. Developers and communities would be well advised to consider creating web sites to disseminate planning ideas and gather stakeholder input.

4. Know the Market
This is probably the most critical aspect of planning for base reuse. A community (or developer’s) vision for the property must be supported by market realities. For example, while residential, retail and commercial are currently the strongest markets in most parts of the country, particularly near larger metro areas, the type of residential development that is appropriate and marketable will vary geographically. A community may need to add incentives such as a hospital complex or community college to enhance the potential for market-driven uses.

5. Know the Politics
Understanding local politics is as important as understanding the local community. The redevelopment plan will most likely be shaped by a Local Redevelopment Authority (LRA). Get to know the stakeholders and what they have in mind for the property. In addition, work with local elected officials to make sure they understand the process and share the vision. Their support will be needed to implement the plan through zoning, potential funding for infrastructure needs, and potential development incentives.

6. Understand Potential Hurdles and How to Overcome Them
Local jurisdictions and developers need to understand fully the physical and legal obstacles to reuse; these can be significant, but they also can be overstated. Among the most common are environmental contamination, as well as other considerations such as historic buildings, sensitive species’ habitats, and unexploded ordnance. In addition, federal agencies, as well as homeless and workforce housing advocates, may have an interest in, and legal rights to, use of the property for their specific purposes. Retaining a knowledgeable attorney who is familiar with the BRAC reuse process as part of the planning and development team can facilitate the process and help minimize hurdles. Also, knowing the legal issues unique to the 2005 BRAC is critical to acquiring and developing those bases included in this round of closures.

7. Knit the Installation Back Into the Community
Because of security concerns, most military installations are fenced and only accessible to the larger community through a few entrance gates. A key to successful reuse is reintegrating the property into the community. Look for opportunities to connect roads and other infrastructure. Similarly, many utility systems, even if they can be retained, will need to be reintegrated into the larger community systems. Separate metering of buildings will most likely also be necessary.

8. Create a New Image: Look for Early Winners
As early as possible, take the base’s fences down, open the base golf course to the public, create a welcome center, let the local college use a building or two for a satellite campus, and open recreation facilities – all are important to conveying the message that something is happening. A new, perhaps friendlier name for the base is also a good idea, which of course, should convey the desired future uses and character of the development. Creating an early sense of momentum can lead to later successes. Finding uses, even temporary ones, for major visible facilities will help attract subsequent users/ tenants/ developers.

9. Take It One Step at a Time
The process of redevelopment, particularly for large installations, will not happen overnight. Successful redevelopment requires multiple simultaneous deals and land transfer negotiations. The plan for development should build on the early winners while avoiding the establishment of uses that would deter future development. In addition, as the years go by, the community and the developers should embrace the vision created early in the process — staying consistent with that vision ensures that community support will remain strong and on course.

10. Be Flexible
No plan can possibly predict all the ideas, trends, and outside forces that will arise as the installation is redeveloped. Plans will change as markets and local conditions change, and new markets of opportunity may well emerge over time. Because the plan may need to be revised from time to time, the key to successful planning is being flexible enough to respond to changing factors and forces. Implementation tools such as zoning and other land use controls must also be flexible to respond to changes without always requiring burdensome rezoning and variance processes.

A developer who is fully informed about current BRAC issues and equipped to handle the reuse task is likely to find reinventing a closed base a rewarding undertaking.  With creativity, knowledge, and collaboration, developers working hand-in-hand with the community can facilitate an influx of new housing, businesses, education, recreation, and community support services.  While the planning and redevelopment of a base may appear daunting at the outset, success is attainable with sincere and enlightened cooperation among the developer, the community, local stakeholders, and the military.  SLDT