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Military Construction: Process And Outcomes

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Military Construction: Process and OutcomesDaniel H. ElseSpecialist in National DefenseDecember 14, 2016Congressional Research Service7-5700www.crs.govR44710

Military Construction: Process and OutcomesSummaryMilitary installations often provide the most tangible evidence of the economic impact of theDepartment of Defense (DOD) on local communities. and demonstrate American commitment toforeign countries. Congress provides DOD with a military construction appropriation of severalbillion dollars annually and authorizes the Secretary of Defense and the military departments ofthe Army, Air Force, and Navy to plan, program, design, and build the runways, piers,warehouses, barracks, schools, hospitals, child development centers, and other facilities needed tosupport U.S. military forces at home and overseas. This military base footprint, from the largestbase to the smallest reserve center, reflects both a federal investment in local communities and alocal investment in national defense.This report outlines the end-to-end military construction process by which DOD and Congress acttogether to build that footprint, beginning with the realization of the need for a facility and endingwith its dedication and the opening of its doors for occupancy. The process encompasses severalsteps: determination of need by the local installation commander and engineeringoffice,vetting and prioritization of construction projects within the military chain ofcommand and the military department,consolidation and budgeting within the Office of the Secretary of Defense tocreate the infrastructure construction portion of the multi-year Future YearsDefense Program (FYDP),inclusion of the final budget year list of projects in the President’s annual budgetrequest to Congress,review and adjustment of the list by the congressional defense committees,consideration and passage of the necessary appropriation and authorization billsand their enactment by the President, andexecution of the approved construction program by the military services’executive agents – Naval Facilities Engineering Command (NAVFAC), ArmyCorps of Engineers (ACE).Congressional Research Service

Military Construction: Process and OutcomesContentsIntroduction . 1Military Construction Projects: Guidance and Requirements . 1MILCON’s Diverging Paths. 2Department of the Army . 4Department of the Air Force . 4Department of the Navy . 5National Guard . 6The Translation from Requirements to Budget Request . 7Appropriations, Authorizations, and Enactment. 7Implementation: From Paper to Bricks and Mortar. 8FiguresFigure 1. Military Construction Process . 3Figure 2. Legislative Process / Congressional Operations . 8Figure D-1. Fort McNair Physical Fitness Center DD Form 1391. 23Figure D-2. Fort McNair Physical Fitness Center DD Form 1391. 24AppendixesAppendix A. Frequently Asked Questions (FAQs).11Appendix B. Military Construction’s Governing Statutes. 15Appendix C. What Does Military Construction Pay For? . 19Appendix D. Joint Base Myer Henderson Hall, Fort McNair Physical Fitness Center, DD1391 . 22ContactsAuthor Contact Information . 25Congressional Research Service

Military Construction: Process and OutcomesIntroductionMilitary construction (MILCON) is defined in law as “any construction, development,conversion, or extension of any kind carried out with respect to a military installation, whether tosatisfy temporary or permanent requirements, or any acquisition of land or construction of aDefense Access Road (DAR).”1The military missions of units and organizations drive the need for facilities and the supportinginfrastructure on any given military installation. Therefore, as the missions assigned to thoseorganizations change, as organizations move to or away from an installation, or as buildings ageor become obsolete, facilities and supporting infrastructure may need to be replaced or bereconfigured. While minor construction and repairs may be funded by operation and maintenance(O&M) funding, substantial alteration or the construction of new facilities that exceed 1,000,000must be funded by military construction appropriations.2 A typical military construction project isgranted a multi-year appropriation that allows five years or more to move from initial concept tocompleted facility. Low-priority construction, however, may not be completed for a number ofadditional years.Military Construction Projects: Guidance andRequirementsMilitary construction (MILCON) projects must meet guidance requirements issued by theSecretary of Defense and the secretaries of the military departments. The military constructionprocess itself comprises four phases: planning and programming, budgeting, design, andconstruction. The realization of need, planning, prioritizing, and programming into the President’sbudget could take three or more years. Furthermore, it is important to note that only those projectsthat have been assigned priority high enough to fit within the anticipated appropriation allocationappear in the President’s annual budget request. Lower-priority construction, even thoughvalidated as necessary, are listed for future consideration. The process of constructing militaryfacilities – from initiation to completion – may require five or more years.The need for a particular construction project may be part of a top-down initiative, such as thecreation of new missions for a given installation or the movement of units or offices betweeninstallations, or be the result of needed modernization or replacement of existing buildings. Ineither case, the process begins with a facility requirements evaluation by the installation’sengineering staff.Installation engineers evaluate the future need for facilities, such as training classrooms, firingranges, barracks, and family housing, and compare them to the facilities that already exist. 3 If110 U.S.C. §2801.10 U.S.C. §2245 - Operations and Maintenance (O&M) funds may not be used to purchase any item (including anyitem to be acquired as a replacement for an item) that has an investment item unit cost that is greater than 250,000.O&M funds may finance things such as headquarters operations, civilian salaries, travel, fuel, minor constructionprojects of 1M or less, training and education, and depot maintenance, and base operations support. O&Mappropriations are normally available for obligation for one fiscal year and are provided by the annual DefenseAppropriations Act. Appropriations for military construction are provided under the annual Military Construction andVeteran’s Affairs, and Related Agencies Appropriations Act.3Installation engineers are the principal offices responsible for providing authoritative analysis and strategic programrecommendations for Military Construction needs and priorities. Installation engineers may be referred to in various(continued.)2Congressional Research Service1

Military Construction: Process and Outcomesthey discover or anticipate a shortfall, the engineers will weigh the costs and time required torehabilitate or alter structures on site against the cost and time required to replace them. Fundingfor additions or alterations to existing buildings and the construction of new buildings where costsexceed 1,000,000 is provided through annual military construction appropriations. Facilityrepair at a military base is supported through the operation and maintenance (O&M) accounts inthe annual defense appropriation bill, and is not addressed further in this report.4After engineers determine that a specific military construction project is needed, the prioritizationof prospective military construction begins at the meeting of the installation’s Facility UtilizationBoard – the conference between the engineers and representatives of all major residentorganizations and other installation tenants – that convene periodically. The result of theseconferences, a prioritized list of construction needs, is presented to the installation’s seniormilitary commander, who then accepts or adjusts the priorities to create a final list of proposedprojects for submission up the chain of command.The substance of that submission can be seen in a Department of Defense Form 1391 (DD 1391),Military Construction Project Data Sheet (see an example DD 1391 at Appendix D, created foreach proposed project by the installation engineers. The DD 1391 includes a cost estimate, adescription of the proposed construction, the specific requirement creating the need for the project(such as a change in mission or deterioration of facilities already in use), the current facilitysituation at the installation, the impact on installation mission if the project is not approved, andany other needed justification information. A DD 1391 form will accompany the constructionrequest throughout the executive and legislative process.MILCON’s Diverging PathsThese prioritized lists, once they leave the installation commanders’ offices, follow distinctlydifferent paths, depending on the military component responsible for managing any giveninstallation. These paths are graphically depicted in Figure 1.(.continued)titles according to each military service: the Post Engineer in the Army, Base Civil Engineer (BCE) in the Air Forceand Air National Guard, the Resident/Regional Officer in Charge of Construction (ROICC) in the Navy and MarineCorps, and the Construction and Facilities Management Officer (CFMO) in the Army National Guard.4The Operation and Maintenance sub-accounts associated with this type of maintenance work are referred to asFacilities Sustainment, Restoration, and Modernization, or FSRM. Construction estimated to exceed 1,000,000 mustbe funded through military construction appropriations.Congressional Research Service2

Figure 1. Military Construction ProcessSource: DOD information, CRS graphic.CRS-3

Military Construction: Process and OutcomesDepartment of the ArmyThe Secretary of the Army reorganized Army property management in 2002 by creating theInstallation Management Agency (IMA) and transferring to it the responsibility for maintainingthe physical infrastructure of all Army posts and depots. This change was followed by a furtherreorganization in 2006 when the IMA was folded into a new Installation Management Command(IMCOM), whose commanding general reports directly to the Army Chief of Staff.IMCOM is divided into four regions – Central, Atlantic, Pacific, and Europe. Constructionprojects from Army posts are forwarded to the appropriate IMCOM regional headquarters, wherethe submissions from all the garrison commanders at installations within its jurisdiction arereviewed and prioritized into a single consolidated list. Prioritized lists resulting from this revieware then submitted to Headquarters, IMCOM (HQ, IMCOM), which is located at Ft. SamHouston in San Antonio, TX. HQ, IMCOM consolidates, considers, reviews, and reprioritizes theproject list and submits it for further review to the Army’s Assistant Chief of Staff for InstallationManagement (ACSIM), the service’s senior officer responsible for setting installations-relatedpolicy.5At this point, responsibility for managing the Army’s construction requests shift to the civilianArmy Secretariat, the staff supporting the Secretary of the Army and his assistants. In the case ofmilitary construction, responsibility for further review and consideration falls to the AssistantSecretary of the Army for Installations, Energy, and Environment. Once approved by theAssistant Secretary, the Army’s proposed construction projects are ready to be sent to the Officeof the Secretary of Defense for consolidation with those of the other services and defenseagencies into a prioritized DOD master list.Department of the Air ForceThe Air Force Installation and Mission Support Center (AFIMSC) is that department’s nearequivalent to the Army’s IMCOM. The AFIMSC was established during August 2014 tostandardize construction and civil engineering support across all Air Force installations. Thecenter provides program management, resourcing and support activities previously supplied byeach of 10 major commands, two direct reporting units, and multiple field operating agencies.Historically, the day-to-day management of Air Force facilities has been exercised by the AirForce’s major operational commands, such as Air Combat Command or Air Mobility Command.At a typical Air Force base, the senior operational officer is typically also the base commander.The base commander reports to his or her relevant major operational command, not a separateinstallation management organization. For example, the commander of the 375th Air MobilityWing is a subordinate of the commanding general of the Air Force Air Mobility Command(AMC). The 375th Air Mobility Wing Commander is also the base commander at Scott Air ForceBase in Illinois. The Base Civil Engineer develops and submits the base’s DD 1391s through thebase commander to the relevant major command (Air Mobility Command in this instance) forconsolidation and prioritization.5In late 2016, the Department of the Army announced a realignment of IMCOM’s domestic regions, Atlantic andCentral, from a regional to a mission-oriented organization. These two regions are being replaced by three directoratesthat will manage domestic Army garrisons regardless of their location. IMCOM Support Directorate Readinessheadquarters is collocated with Army Forces Command at Ft. Bragg, NC. IMCOM Support Directorate Training iscollocated with Army Training and Doctrine command at Ft. Eustis, VA. IMCOM Support Directorate Sustainment iscollocated with Army Material Command at Redstone Arsenal, AL. The new structure became effective on November1, 2016. See Drew Brooks, “Army Changing Way It Manages Installations,” Fayetteville Observer, October 4, 2016.Congressional Research Service4

Military Construction: Process and OutcomesHeadquarters staff at each major command (or MAJCOM) reviews, consolidates, and prioritizesthe submitted projects before forwarding them to AFIMSC. There, the AFIMSC reviews,consolidates, and prioritizes the list across the major commands. The AFIMSC Commanderreviews and approves the projects before submitting them to the civilian Assistant Secretary ofthe Air Force for Installations, Environment and Logistics (ASA (IE&E)). The AssistantSecretary’s office then performs a final Air Force review of construction projects beforesubmitting the department’s list to the Office of the Secretary of Defense.Department of the NavyLike the Army, the Navy centrally manages its facilities. Each base or station is assigned to aNavy Civil Engineering Corps Resident or Regional Officer in Charge of Construction (ROICC)who takes on the responsibilities of installation engineer and develops the necessary DD 1391s.Each Navy shore installation is assigned to a Navy Region.6 The engineering staff at each NavyRegion headquarters reviews and prioritizes the submitted construction projects, forwarding theresulting list to Navy Installations Command, located at the Washington Navy Yard in the Districtof Columbia.7 Navy Installations Command consolidates, reviews, and reprioritizes the projectsbefore submitting them to the Chief of Naval Operations (CNO) through the Deputy Chief ofNaval Operations (Fleet Readiness & Logistics). Upon evaluation and approval, the CNO’s staffpasses the list to the Assistant Secretary of the Navy for Energy, Installations and Environmentfor submission to the Office of the Secretary of Defense.Marine CorpsThe Marine Corps does not have its own installation engineering staff. Instead, it relies on theNavy’s ROICCs to plan and administer construction on its installations. Nevertheless, theMarines do channel their construction requests through their own chain of command forrequirements screening and prioritization.After installation construction requirements are determined and the requisite DD 1391s arecreated and prioritized, they are forwarded to the appropriate Marine Corps InstallationsCommand headquarters for screening and consolidation.8 There, the proposed militaryconstruction projects are reviewed, reprioritized and forwarded to their respective Fleet MarineForce (FMF) headquarters.9 After the FMF headquarters review, military construction projects aresubmitted to Headquarters, Marine Corps, in Washington, DC, where a final prioritized list iscompiled and submitted to the Assistant Secretary of the Navy for Energy, Installations andEnvironment for presentation to the Office of the Secretary of Defense.6Navy Regions considered to lie within the Continental United States (CONUS) include Naval District Washingtonand Navy Regions Mid-Atlantic, Northwest, Southeast, and Southwest. Outside of the United States (OCONUS) lie theNavy Regions of Europe, Africa, and Southwest Asia (all included as one region); Hawaii; Japan; Korea; Joint RegionMarianas; and the Singapore Area Coordinator.7The Commander, Navy Installations Command (CNIC) provides oversight on all shore installation management,exercises authority as the Budget Submitting Office for installation support, and acts as the Navy point of contact forprogram execution oversight and installation policy.8There are four Marine Corps Installation (MCI) Commands: the National Capital Region (MCINR), Pacific(MCIPAC), East (MCIEAST) and West (MCIWEST), each responsible for the major Marine bases and air stationswithin their respective geographic areas.9FMF is roughly equivalent to an Air Force major command. There are two FMFs, Atlantic (FMFLANT) and Pacific(FMFPAC), commanding the deploying Marine Expeditionary Forces. FMFLANT is headquartered at Naval StationNorfolk, Virginia, while FMFPAC is headquartered at Camp H.M. Smith, Hawaii.Congressional Research Service5

Military Construction: Process and OutcomesNational GuardThe National Guard (Army and Air) is a state-based reserve component of the armed forces.10Unless the Guard is federalized, each state’s National Guard is its own distinct militaryorganization, with the governor as its commander in chief and the Adjutant General (TAG) as itssenior military officer.11 Each National Guard is a joint organization under the TAG, but its Armyand Air construction requirements are handled somewhat differently.Army National GuardWithin the state’s Army National Guard (ARNG) organization, Construction and FacilitiesManagement

Military construction (MILCON) projects must meet guidance requirements issued by the Secretary of Defense and the secretaries of the military departments. The military construction process itself comprises four phases: planning and programming, budgeting, design, and construction.