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TransporTaTion research Board
2011 execuTive commiTTee*
Chair: Neil J. Pedersen, Administrator, Maryland State Highway Administration, Baltimore
Vice Chair: Sandra Rosenbloom, Professor of Planning, University of Arizona, Tucson
Executive Director: Robert E. Skinner, Jr., Transportation Research Board
J. Barry Barker, Executive Director, Transit Authority of River City, Louisville, Kentucky
Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern Corporation, Norfolk, Virginia
William A. V. Clark, Professor, Department of Geography, University of California, Los Angeles
Eugene A. Conti, Jr., Secretary of Transportation, North Carolina Department of Transportation, Raleigh
James M. Crites, Executive Vice President of Operations, Dallas–Fort Worth International Airport, Texas
Paula J. Hammond, Secretary, Washington State Department of Transportation, Olympia
Michael W. Hancock, Secretary, Kentucky Transportation Cabinet, Frankfort
Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley (Past Chair, 2009)
Michael P Lewis, Director, Rhode Island Department of Transportation, Providence
.
Susan Martinovich, Director, Nevada Department of Transportation, Carson City
Michael R. Morris, Director of Transportation, North Central Texas Council of Governments, Arlington
(Past Chair, 2010)
Tracy L. Rosser, Vice President, Regional General Manager, Wal-Mart Stores, Inc., Mandeville, Louisiana
Steven T. Scalzo, Chief Operating Officer, Marine Resources Group, Seattle, Washington
Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, Missouri
Beverly A. Scott, General Manager and Chief Executive Officer, Metropolitan Atlanta Rapid Transit Authority,
Atlanta, Georgia
David Seltzer, Principal, Mercator Advisors LLC, Philadelphia, Pennsylvania
Lawrence A. Selzer, President and CEO, The Conservation Fund, Arlington, Virginia
Kumares C. Sinha, Olson Distinguished Professor of Civil Engineering, Purdue University, West Lafayette, Indiana
Thomas K. Sorel, Commissioner, Minnesota Department of Transportation, St. Paul
Daniel Sperling, Professor of Civil Engineering and Environmental Science and Policy; Director, Institute of
Transportation Studies; and Interim Director, Energy Efficiency Center, University of California, Davis
Kirk T. Steudle, Director, Michigan Department of Transportation, Lansing
Douglas W. Stotlar, President and Chief Executive Officer, Con-Way, Inc., Ann Arbor, Michigan
C. Michael Walton, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin (Past Chair, 1991)
Peter H. Appel, Administrator, Research and Innovative Technology Administration, U.S. Department of
Transportation (ex officio)
J. Randolph Babbitt, Administrator, Federal Aviation Administration, U.S. Department of Transportation
(ex officio)
Rebecca M. Brewster, President and COO, American Transportation Research Institute, Smyrna, Georgia
(ex officio)
Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, U.S. Department of Transportation
(ex officio)
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the Interior,
Washington, D.C. (ex officio)
John T. Gray, Senior Vice President, Policy and Economics, Association of American Railroads, Washington, D.C.
(ex officio)
John C. Horsley, Executive Director, American Association of State Highway and Transportation Officials,
Washington, D.C. (ex officio)
David T. Matsuda, Deputy Administrator, Maritime Administration, U.S. Department of Transportation
(ex officio)
Victor M. Mendez, Administrator, Federal Highway Administration, U.S. Department of Transportation
(ex officio)
William W. Millar, President, American Public Transportation Association, Washington, D.C. (ex officio)
(Past Chair, 1992)
Tara O’Toole, Under Secretary for Science and Technology, U.S. Department of Homeland Security
(ex officio)
Robert J. Papp (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, U.S. Department of
Homeland Security (ex officio)
Cynthia L. Quarterman, Administrator, Pipeline and Hazardous Materials Safety Administration,
U.S. Department of Transportation (ex officio)
Peter M. Rogoff, Administrator, Federal Transit Administration, U.S. Department of Transportation
(ex officio)
David L. Strickland, Administrator, National Highway Traffic Safety Administration, U.S. Department
of Transportation (ex officio)
Joseph C. Szabo, Administrator, Federal Railroad Administration, U.S. Department of Transportation
(ex officio)
Polly Trottenberg, Assistant Secretary for Transportation Policy, U.S. Department of Transportation
(ex officio)
Robert L. Van Antwerp (Lt. General, U.S. Army), Chief of Engineers and Commanding General, U.S. Army Corps
of Engineers, Washington, D.C. (ex officio)
Barry R. Wallerstein, Executive Officer, South Coast Air Quality Management District, Diamond Bar, California
(ex officio)
*Membership as of April 2011.
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SPECIAL REPORT 302
Federal Funding oF
TransporTaTion improvemenTs
in BraC Cases
Committee for a Study on Federal Funding of
Transportation Improvements in Base Realignment
and Closure (BRAC) Cases
Transportation Research Board
Washington, D.C.
2011
www.TRB.org
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Transportation Research Board Special Report 302
Subscriber Categories:
Administration; finance; policy
Transportation Research Board publications are available by ordering indi-
vidual publications directly from the TRB Business Office, through the Internet
at www.TRB.org or national-academies.org/trb, or by annual subscription
through organizational or individual affiliation with TRB. Affiliates and library
subscribers are eligible for substantial discounts. For further information,
contact the Transportation Research Board Business Office, 500 Fifth Street,
NW, Washington, DC 20001 (telephone 202-334-3213; fax 202-334-2519; or
e-mail TRBsales@nas.edu).
Copyright 2011 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America.
NOTICE: The project that is the subject of this report was approved by the
Governing Board of the National Research Council, whose members are drawn
from the councils of the National Academy of Sciences, the National Academy
of Engineering, and the Institute of Medicine. The members of the committee
responsible for the report were chosen for their special competencies and with
regard for appropriate balance.
This report has been reviewed by a group other than the authors accord-
ing to the procedures approved by a Report Review Committee consisting of
members of the National Academy of Sciences, the National Academy of Engi-
neering, and the Institute of Medicine.
This study was sponsored by the U.S. Department of Defense.
Cover and inside design by Melanie Wilkins
Library of Congress Cataloging-in-Publication Data
Federal funding of transportation improvements in BRAC cases / Committee for a
Study on Federal Funding of Transportation Improvements in Base Realignment
and Closure Cases, Transportation Research Board of the National Academies.
p. cm.
Includes bibliographical references.
ISBN 978-0-309-16081-0
1. United States. Defense Base Closure and Realignment Commission.
2. Military base closures—Economic aspects—United States. 3. Military base
closures—Social aspects—United States. 4. Traffic congestion—Government
policy—United States. 5. Traffic congestion—Economic aspects—United States.
6. Federal aid to transportation—United States. 7. Transportation, Military—
United States. I. National Research Council (U.S.). Transportation Research
Board. Committee for a Study on Federal Funding of Transportation Improve-
ments in Base Realignment and Closure Cases.
UA26.A2F43 2011
354.76'2460973—dc22
2011004550
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The National Academy of Sciences is a private, nonprofit, self-perpetuating
society of distinguished scholars engaged in scientific and engineering research,
dedicated to the furtherance of science and technology and to their use for the
general welfare. On the authority of the charter granted to it by the Congress in
1863, the Academy has a mandate that requires it to advise the federal govern-
ment on scientific and technical matters. Dr. Ralph J. Cicerone is president of the
National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the
charter of the National Academy of Sciences, as a parallel organization of out-
standing engineers. It is autonomous in its administration and in the selection of
its members, sharing with the National Academy of Sciences the responsibility
for advising the federal government. The National Academy of Engineering also
sponsors engineering programs aimed at meeting national needs, encourages
education and research, and recognizes the superior achievements of engineers.
Dr. Charles M. Vest is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of
Sciences to secure the services of eminent members of appropriate professions
in the examination of policy matters pertaining to the health of the public. The
Institute acts under the responsibility given to the National Academy of Sciences
by its congressional charter to be an adviser to the federal government and, on
its own initiative, to identify issues of medical care, research, and education.
Dr. Harvey V. Fineberg is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of
Sciences in 1916 to associate the broad community of science and technology
with the Academy’s purposes of furthering knowledge and advising the federal
government. Functioning in accordance with general policies determined by the
Academy, the Council has become the principal operating agency of both the
National Academy of Sciences and the National Academy of Engineering in pro-
viding services to the government, the public, and the scientific and engineering
communities. The Council is administered jointly by both Academies and the
Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair
and vice chair, respectively, of the National Research Council.
The Transportation Research Board is one of six major divisions of the
National Research Council. The mission of the Transportation Research Board
is to provide leadership in transportation innovation and progress through
research and information exchange, conducted within a setting that is objective,
interdisciplinary, and multimodal. The Board’s varied activities annually engage
about 7,000 engineers, scientists, and other transportation researchers and
practitioners from the public and private sectors and academia, all of whom
contribute their expertise in the public interest. The program is supported by
state transportation departments, federal agencies including the component
administrations of the U.S. Department of Transportation, and other organizations
and individuals interested in the development of transportation. www.TRB.org
www.national-academies.org
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Committee for a study on Federal Funding
of Transportation improvements in Base
realignment and Closure (BraC) Cases
Joseph M. Sussman, Massachusetts Institute of Technology, Cambridge,
Chairman
Thera Black, Thurston Regional Planning Council, Olympia, Washington
Thomas B. Deen, Transportation Consultant, Stevensville, Maryland
James R. Gosnell, West Coast Corridor Coalition, Los Angeles, California
Max Inman, Mercator Advisors, Fairfax, Virginia
Ashby Johnson, Houston–Galveston Area Council, Houston, Texas
Fred Meurer, City of Monterey, Monterey, California
Kevin Neels, The Brattle Group, Washington, D.C.
George E. Schoener, I-95 Corridor Coalition, Celebration, Florida
Randall Yim, Independent Consultant, Scottsville, Virginia
Staff
Edward Weiner, Consultant
Stephen R. Godwin, Transportation Research Board
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preFaCe
T he amendment to fiscal year 2010 defense appropriations by Senator
Mark Warner requested a study by the National Academy of Sciences of
federal funding of transportation improvements in Defense Base Closure
and Realignment Commission (BRAC) cases. The amendment requires
that the study cover the following tasks:
1. Examine case studies of congestion caused on metropolitan
road and transit facilities when BRAC requirements cause shifts
in personnel to occur faster than facilities can be improved
through the usual state and local processes;
2. Review the criteria used by the Defense Access Roads (DAR)
program for determining the eligibility of transportation projects
and the appropriate Department of Defense (DoD) share of
public highway and transit improvements in BRAC cases;
3. Assess the adequacy of current federal surface transportation
and DoD programs that fund highway and transit improvements
in BRAC cases to mitigate transportation impacts in urban areas
with preexisting traffic congestion and saturated roads;
4. Identify promising approaches for funding road and transit
improvements and streamlining transportation project approvals
in BRAC cases; and
5. Provide recommendations for modifications of current policy
for the DAR and Office of Economic Adjustment programs,
including funding strategies, road capacity assessments,
eligibility criteria, and other government policies and programs
the National Academy of Sciences may identify to mitigate the
impact of BRAC-related installation growth on preexisting urban
congestion.
In response to the congressional request, the Transportation
Research Board of the National Academies (TRB) convened a committee
chaired by Joseph M. Sussman, JR East professor and professor of civil
and environmental engineering and engineering systems, Massachusetts
Institute of Technology. The committee has expertise in transportation
budgeting and policy, military budgeting and policy, infrastructure plan-
ning, state and local infrastructure management, economics, and military
facility planning (see Study Committee Biographical Information, p. 111).
vii
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preFaCe
To carry out this work, the committee met three times between
April and December 2010. In examining case studies and gathering other
information, the committee heard presentations from DoD, metropolitan
planning organizations, state and local representatives, and base personnel.
In carrying out its investigation of BRAC cases, the committee
became aware of underlying issues at military bases that apparently
affected BRAC 2005 decisions and continue to affect the ongoing relation-
ships between military bases and their surrounding communities. The
BRAC 2005 decisions have been made and, as of this writing, no further
BRAC rounds are contemplated. The law authorizing BRAC will expire on
September 30, 2011. The committee has recommendations that, if imple-
mented, will ameliorate some of the most adverse transportation impacts
of BRAC 2005, but its findings and recommendations about improved
communication and collaborative planning between growing bases and
surrounding communities will be helpful in the future even after current
BRAC legislation expires. Some military bases will continue to experience
growing pains, and those in built-up metropolitan areas will continue to
confront transportation constraints in the civil sector. The committee’s
findings and recommendations set the stage for better transportation
outcomes for growing bases and their surrounding communities.
Better information about civil sector transportation constraints in
the BRAC 2005 round could have resulted in different decisions. Should
there be another round of base consolidations, implementation of the
committee’s recommendations will help ensure that decisions about
military priorities are fully informed about adverse transportation
impacts on surrounding communities as well as on the bases.
As required in its charge, the committee makes recommendations
to modify the DAR program to make it more effective. The committee
finds the DAR criteria most in want with regard to bases in metropolitan
areas, and its recommendations to change the criteria are meant to apply
only to bases in metropolitan areas. However, the committee does not
intend for the changes recommended for the DAR program to apply only
in BRAC 2005 cases.
aCknowledgmenTs
The committee appreciates the contributions of a number of people
who provided information that assisted in the preparation of this report:
Mark Brunner, Senator Warner’s office; Dorothy Robyn, deputy under
secretary of defense; Darryl Hampton, director, DoD DAR program;
Timothy Canan, Washington Area Council of Governments, Transporta-
tion Planning Board; Cord Sterling, member of Virginia’s Commonwealth
viii
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preFaCe
Transportation Board and the Stafford County Board of Supervisors;
Andrew Scott, special assistant to the secretary, Maryland Department of
Transportation; Colonel Mark Moffatt, deputy garrison commander for
BRAC, Fort Belvoir, Va.; Jim Turkel, chief, BRAC Integration Office, Mark
Center, Va.; Al Miller, transportation demand management coordinator,
National Geospatial Agency; Bert Rice, BRAC project office, Fort Meade,
Md.; Jeff Miller, transportation program manager, National Naval Medical
Center, Bethesda, Md.; Dan Penrose, project manager, Office of Economic
Adjustment Grants, Economic Development, City of Lakewood, Wash.;
Craig Helmann, technical services manager, Urban Planning Office,
Washington Department of Transportation; Steven Perrenot, director of
public works, Joint Base Lewis–McChord; Patrick O’Brien, director, DoD
Office of Economic Adjustment; Cyrena Eitler, lead and program manager,
Compatible Use Program, DoD Office of Economic Adjustment; and
Ronald Kirby, director of transportation planning, Metropolitan Washington
Council of Governments.
The report was reviewed in draft form by individuals chosen for
their diverse perspectives and technical expertise, in accordance with
procedures approved by the National Research Council’s Report Review
Committee. The purpose of this independent review is to provide
candid and critical comments that will assist the institution in making
its published report as sound as possible and to ensure that the report
meets institutional standards for objectivity, evidence, and responsiveness
to the study charge. The review comments and draft manuscript remain
confidential to protect the integrity of the deliberative process.
Thanks go to the following individuals for their review of the
report: Major General Del Eulberg (ret.), Booz Allen; David H. Morrison,
the Boeing Company; Barry Seymour, Delaware Valley Regional Planning
Commission; Robert L. Sack, New York Department of Transportation;
Martin Wachs, RAND Corporation; Tom Clark, Metro-Denver Economic
Development.
Although these reviewers provided many constructive comments
and suggestions, they were not asked to endorse the committee’s findings
or recommendations, nor did they see the final draft of the report before
its release. The review was overseen by National Academy of Engineering
members A. Ray Chamberlain, retired, and C. Michael Walton, University
of Texas, Austin. Appointed by the National Research Council, they were
responsible for making certain that an independent examination of this
report was carried out in accordance with institutional procedures and
that all review comments were carefully considered. Responsibility for the
final content of this report rests entirely with the authoring committee and
institution.
ix
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preFaCe
Edward Weiner served as a consultant to the committee and pre-
pared the report under the guidance of the committee and supervision of
Stephen Godwin, Director of Studies and Special Programs. Weiner also
prepared Appendix A. Suzanne Schneider, Associate Executive Director
of TRB, managed the report review process. The report was edited by
Cay Butler; Rona Briere provided valuable editorial direction for the
chapter of case studies; Janet M. McNaughton handled the editorial
production; Melanie Wilkins assembled the maps for the case studies;
Juanita Green managed production; and Jennifer J. Weeks prepared
the manuscript for prepublication web posting under the supervision
of Javy Awan, Director of Publications, TRB. Special appreciation is
expressed to Amelia Mathis for assistance with meeting arrangements
and communications with the committee.
x
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ConTenTs
exeCuTive summary ..............................................................................................1
1 inTroduCTion ....................................................................................................5
Organization of the Report ..................................................................... 9
2 Case sTudies....................................................................................................11
National Capital Region ....................................................................... 11
Joint Base Lewis–McChord, Washington State...................................... 31
Eglin Air Force Base, Florida ................................................................ 36
Fort Bliss, Texas ................................................................................... 40
Conclusions ......................................................................................... 43
3 planning and deCision-making proCesses ................................................ 47
Metropolitan Transportation-Planning Process ..................................... 47
Military Base Planning and Budgeting Process ...................................... 49
Implications for BRAC 2005 Decisions................................................. 50
Conclusions and Looking Forward ...................................................... 51
4 Funding opTions .............................................................................................55
Department of Defense Programs ......................................................... 55
Non-DoD Transportation Programs ...................................................... 66
Conclusions ......................................................................................... 76
5 Findings and reCommendaTions .................................................................. 81
Nature of the Problem .......................................................................... 81
Institutional Misalignment ................................................................... 83
Nature of Required Solutions ............................................................... 88
Funding ............................................................................................... 89
appendiCes
a Background PaPer on ImPact Fees .............................................................. 97
B IllustratIve examPle oF ImPact Fee calculatIon For exPansIon
oF mIlItary Bases ...................................................................................109
sTudy CommiTTee BiographiCal inFormaTion .............................................. 111
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