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At the core of any BRAC transition process is the Local Redevelopment Authority (LRA). The LRA serves as a coordinating body for the community and is responsible for preparing and implementing the redevelopment plan. Additionally, the LRA works directly with OEA project managers and the military services to help with this process. The LRA is also the single community point of contact for all matters relating to the closure or realignment.

Successful transition requires strong, effective local leadership; it requires that local officials —both elected representatives and non-elected leaders —take charge of the process. The effects of base realignment, closure, or growth are felt most strongly at the local level; thus, the response from the local community is most important.

Conceptual Structure and Composition of an LRA

OEA recognizes that each community LRA should be established and aligned to face the needs of the local community. There is no template for the composition and organization of an LRA, but the chart below shows the conceptual structure and composition of an LRA.

A sample LRA organizational structure

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General Process for Reuse Planning and Property Disposal

Step 1: Organize

0-6 Months After Closure Approval Date
  • Communities begin process of organizing for community adjustment
  • DoD and Federal Property interests are identified
  • Surplus property determinations

The key to successful economic and community transition after closure is to be proactive. Communities that can redirect their energy away from fighting closure and harness that energy for transitioning to civilian redevelopment of the base will be more successful in the long run.

During the first 6 months following the date of approval, property not needed by the Department of Defense or other Federal agencies is identified, and a notice of surplus property available for redevelopment is published. Also in this time period, an LRA is structured and recognized by DoD through OEA and begins comprehensive redevelopment planning for the base.

The Local Redevelopment Authority (LRA)

The LRA is expected to provide leadership and build consensus for base realignment. The Secretary of Defense, through the OEA, will recognize only one LRA for a contiguous installation that is closed or realigned. If there are multiple affected installations in a jurisdiction, the same LRA could address all BRAC actions. Successful LRAs are:

  • Representative of the affected area and its demographics incorporate private as well as public sector representatives and be public.
  • Manageable in terms of committee structure and the number of members on the executive board and council.
  • Effective in taking advantage of existing resources and providing political and financial resources to support the community.

Step 2: Outreach

6-12 Months After Closure Approval Date
  • LRA solicits and considers notices of interest, conducts outreach, considers homeless assistance needs, and undertakes consultation regarding surplus property uses.

Following the initial organization process, and after a notice of surplus property has been provided, the LRA undertakes significant outreach efforts and begins the initial redevelopment planning process.

By law, the redevelopment planning process must include the identification of homeless needs and must reflect a balance with local community and economic development needs. LRAs must establish links to local homeless-assistance providers.

Other stakeholders in the community will likely be interested in participating in the redevelopment planning processes and may express interest in acquiring property through public benefit conveyance and other methods. School districts, colleges and universities, airport authorities, wildlife and conservation groups, alternative transportation organizers, historic preservation societies, business groups and entrepreneurs, and various other stakeholders may wish to participate in the planning process.

Key Points to Remember
  • Outreach and solicitation of interest must begin within one month of the surplus notice and follow either a three- or six-months schedule, depending on local needs.
  • The public should be informed and given an opportunity to participate at all stages of the process.
  • Communities should utilize established networks of businesses and non-profits to connect with a variety of stakeholders.
  • By law, the redevelopment plan should address the needs and concerns of homeless and reflect a balance with local community needs.
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Step 3: Plan

12-24 Months After Closure Approval Date
  • LRA prepares Redevelopment Plan and Homeless Submission and submits to DoD and HUD
  • Sponsoring Federal Agencies are notified of property possibly available under public benefit conveyance

Following the organizational phase (the first 6 months after the date of approval) and the initial outreach phase (the next 3 to 6 months), the heart of the LRA's planning process takes place in the second year after the date of approval. Having considered the NOIs received, the LRA prepares a redevelopment plan, taking into account a broad range of installation and community factors.

The redevelopment plan indentifies the LRA’s overall redevelopment strategy for the base. Under the BRAC law, the LRA and the community must ensure that the plan adequately balances local community and economic development needs with those of the homeless. This must be an open, public, and transparent process.

The first step is to determine the community goals that will guide the planning process. These goals will serve as the foundation of the overall adjustment strategy. For base closures, the primary community goal is often job creation. Other goals may include expanding the tax base, diversifying the local economy, maintaining a level of environmental quality, and meeting affordable housing needs.

In setting the community’s goals, a multitude of objectives may be identified, such as a civilian job replacement, public use of portions of the site, and effective efficient use of land and facilities.

The LRA should take into consideration the initial identified needs, goals, and objectives of the community. Often, this consensus is the basis for preliminary LRA consultation with interesting property users.

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Step 4: Implement

24 -30+ Months After Closure Approval Date
  • Compliance under NEPA completed for property disposal
  • Property can be disposed, Redevelopment Plan implemented

After consensus on redevelopment uses and configuration or community growth management activities is achieved, specific guidance is needed to implement the plan. What will be the structure of any follow-on entity tasked with putting the installation into civilian use or following through on growth management plans? Are subsidies required for the effort? If so, what will be the services? What are the schedules for site improvements or construction of community facilities? How will funding be secured to finance economic development? What roles will the private and public sectors play in redevelopment of the installation or implementation of the growth management? This is the “action” component of the plan and becomes the basis for implementing the plan.

When completed, the base redevelopment plan should identify the redevelopment configuration with the greatest comparative advantage for the community and address the feasibility of an entirely, or mostly, private sector implementation approach, one that maximizes public benefits while minimizing public costs.

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Sample Base Realignment & Closure Process Timeline

First YearSecond YearThird YearFourth Year
Sample Base Realignment & Closure Process Timeline
Community Actions
  • Begin contingency planning
  • Form Local Redevelopment Authority (LRA)
  • Begin redevelopment planning (as necessary)
  • Consult with military department on property
  • Conduct outreach to homeless providers and other interested parties
  • Latest deadline to receive notices of interests from homeless providers and other interested parties
  • Prepare and adopt redevelopment plan
  • Submit plan to DoD and HUD
  • Revise plan and resubmit to HUD (if necessary)
  • Transition LRA to implement plan (if necessary)
  • Implement plan
Federal Actions
  • DoD makes recommendations to BRAC Commission
  • Initiate designation of OEA project managers
  • Commission makes recommendations to President
  • Congress approves Commission recommendations
  • Date of approval and realignment
  • Assign base transition coordinators
  • OEA begins to recognize LRAs
  • Form Restoration Advisory Board (RAB) if needed
  • Complete Personal Property Inventory
  • Identify DoD and federal property needs
  • Prepare Installation Summary Report and NEPA analysis
  • Make surplus property determinations
  • Military departments solicit notices of interest from sponsoring federal agencies for public benefit
  • Identify uncontaminated parcels (latest)
  • HUD completes review of redevelopment plan and homeless submission
  • HUD completes review of revised plan (if necessary) and HUD reports on plan and property suitability (if necessary)
  • Complete environmental impact analysis (latest)
  • Issue disposal directions
  • Decide responsibilities for environmental restoration not yet completed
  • Begin property disposal and continue environmental restoration as needed

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