1

Turning Bases

Into Great Places:

New Life for Closed Military Facilities
Acknowledgements

The EPA team that wrote this report—Mary Kay Bailey, Rosemary Monahan, Ilana Preuss, Aimee Storm, and Megan 

Susman—would like to recognize the following individuals for their contributions and comments on earlier versions of 

this document: Bryan Barnhouse, International City/County Management Association; Greg Block, The Corky McMillin 

Companies; Tara Butler, National Governors Association; Terry Fancher, South Shore Tri-Town Development Corporation; Tim Ford, Association of Defense Communities; Jim Hicks, RKG Associates, Inc.; Theo Holtwijk, Town of Brunswick, 

ME; David Pace, Baldwin Park Development Company; Hilarie Portell, Lowry Redevelopment Authority; Mary Ryan, 

Nutter McClennen & Fish, LLP; and Vic Wieszek, Department of Defense, Office of the Deputy Under Secretary of 

Defense for Environment, Safety, and Occupational Health. We would like to acknowledge EPA staff who offered 

comments: Carl Dierker, Trish Garrigan, Margherita Pryor, Mary Sanderson, Tracey Seymour, Mark Stephens, Patty 

Whittemore, and Christine Williams. We also would like to acknowledge staff members of the Department of 

Defense’s Office of Economic Adjustment (Frank Barton, Amanda Leiker, and Joseph Cartwright) for providing 

informal comments on the role of the local redevelopment authority.

For additional copies of this report, please send an e-mail to smartgrowth@epa.gov. For an 

electronic version, please visit www.epa.gov/smartgrowth.

About the EPA offices that produced this report:

Development, Community, and Environment Division (DCED)

DCED works with communities, states, and the development industry to help them reach more 

environmentally friendly development alternatives, while improving economic conditions and quality of life. DCED 

provides information, education, and technical assistance. For more information about EPA’s smart growth program, 

see www.epa.gov/smartgrowth.

EPA Region 1: Smart Growth Program

EPA Region 1 works with communities, agencies, and organizations in the New England states to encourage environmentally sound development practices. For more information about the New England Office of EPA, see www.

epa.gov/region01.

Federal Facilities Restoration and Reuse Office (FFRRO) 

To overcome the difficulties posed by environmental contamination at federal facilities, FFRRO (and its counterpart offices 

in the EPA regions) works with the U.S. Department of Defense, U.S. Department of Energy, and other federal entities to 

develop creative, cost-effective solutions to environmental problems at their facilities. By focusing on partnering and public involvement, FFRRO accomplishes its mission of facilitating faster, more effective, and less costly cleanup and reuse of 

federal facilities. EPA, since the inception of FFRRO in 1994, has been an active partner in the Defense Department’s Base 

Realignment and Closure program. For more information, see www.epa.gov/fedfac.

Land Revitalization Office

The Land Revitalization Office works with EPA programs, other government agencies, and external partners to 

promote and develop land revitalization measures, tools, information, and training. The land revitalization vision is to 

restore the nation’s contaminated land resources and enable communities to safely return these properties to beneficial economic, ecological, and societal uses. For more information, see www.epa.gov/landrevitalization/.

Cover Photo: Citizens helped develop the plan that turned the former Orlando Naval Training Station 

into the new neighborhood of Baldwin Park.
Contents

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

How can this guidebook help your community? . . . . . . . . . . . 3

Steps to success. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Forming a Local Redevelopment Authority . . . . . . . . . . . . . . . . 7

Getting everyone on board . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Taking stock of assets and challenges . . . . . . . . . . . . . . . . . . . . 9

Creating a redevelopment plan for the base. . . . . . . . . . . . . . . . 16

Involving the public . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Incorporating good development practices. . . . . . . . . . . . . . . . . . . . 18

Creating a business plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Implementing the plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Developing design guidelines and zoning consistent with the vision . . . . . 22

Investing in infrastructure improvements. . . . . . . . . . . . . . . . . . . . . 23

Keeping the public involved . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Case studies:

Baldwin Park, Orlando, FL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Liberty Station, San Diego, CA. . . . . . . . . . . . . . . . . . . . . . . . . . 31

Lowry, Denver, CO . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

Appendix: Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Photo Credits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
2

Introduction

Having a military base close or reduce operations can be traumatic for its host community. The future 

is uncertain—residents worry about losing jobs and declining property values, local business owners 

fear a devastating impact, and people are concerned about environmental contamination on the base. 

The challenges may seem daunting, but many communities have transformed former bases into valuable 

assets. Indeed, many of these redevelopments have become showplaces for the entire region—boosting 

the economy, creating jobs, providing homes, and protecting the environment.

What if your base 

is partially closing? 

Many of the practices discussed in this guidebook will be useful to communities near military installations that are reducing operations 

and partially closing (“realigning”) under the 

federal Base Realignment and Closure (BRAC) 

process. In cases where only a portion of the 

base is closing, communities can apply these 

practices to the part of the property that will 

be made available to them. In this guidebook, 

the term “closed military base” also applies to 

partially closed facilities.

A completely or partially closed base may offer a community a large parcel of land for redevelopment—and the 

enticing potential for a new and enduring neighborhood 

that brings jobs, residents, visitors, and tax revenue. By 

accommodating growth on previously used land, the 

property allows the community to add new businesses 

and residents without having to build on undeveloped 

land elsewhere in the area. 

Many of the most successful military-base redevelopment projects share several important traits. First, local 

leaders began planning for redevelopment early, in some 

cases even before they were certain that the base would 

close, and they planned with an eye toward long-term 

benefits instead of short-term gains. They listened to 

the community’s desires, needs, and ideas and kept the 

public involved throughout the redevelopment process. 

They considered how best to balance the area’s need for 

jobs, homes, and public amenities like parks and natural lands. They used the base’s location, infrastructure, 

historic buildings, and environmentally sensitive lands 

to the best advantage. They emphasized good design to 

create neighborhoods that would feel welcoming, fit in 

with the surrounding community, be easy to get around 

in, and become a place people would be proud to call 

home. Communities around the nation have used these 

strategies to plan for growth, maintain and improve their 

quality of life, and protect public health and the environment. These approaches often are called “smart growth.” 

This publication will describe smart growth principles and 

practices in more detail later on.

Planning for redevelopment at the former Lowry Air Force 

Base.
3

Several military base reuse projects have explicitly 

used smart growth techniques to plan redevelopment. 

The former Lowry Air Force Base outside of Denver is 

now a flourishing community that preserves its military 

history and honors its heritage as a training center with 

several educational institutions. It also has homes, 

shops, offices, and parks, all of which are welcome 

additions to the surrounding neighborhoods. Orlando’s 

former Naval Training Center has become Baldwin 

Park, an award-winning neighborhood that truly feels 

like a community, with new, much-needed homes, ecologically important habitat, shopping, and offices—all 

just 2 miles from downtown Orlando. The transformation of the former Naval Training Center into Liberty 

Station reopened the San Diego Bay waterfront to the 

public for the first time in more than 80 years, and it 

preserved beautiful historic buildings while adding new 

houses, offices, stores, and arts facilities. This guidebook describes the smart growth techniques used in 

these and other successful base redevelopments to 

help communities with newly closed or partially closed 

bases chart a vibrant, new future.

How can this 

guidebook help 

your community?

Many other documents describe the steps 

that a community should take to develop and 

implement a reuse plan for a closing military 

base. A list of those resources appears in the 

appendix. This guidebook, by contrast, provides information on smart growth principles 

that communities can use to develop a vision 

of how a redeveloped base can enhance their 

neighborhoods, economy, and environment. 

It offers ideas for communities to weave this 

vision into the redevelopment process to create a reuse plan that is fair and economically 

successful, provides people with choices, and 

enjoys broad public support. 

A new neighborhood planned for the former Myrtle Beach Air Force Base.
4

Local governments, community members, 

and others can use the guidebook to pursue 

base reuse that: 

 Creates vibrant neighborhoods;

 Brings amenities to residents and the surrounding 

neighborhoods;

 Provides a balanced mix of jobs and housing; 

 Capitalizes on historic, cultural, and natural assets; 

 Protects environmental resources; and

 Is embraced by the community.

One of the key goals of base redevelopment is to 

replace the jobs lost when the base closes. The smart 

growth practices described in this guidebook create 

places with lasting economic value:

 Places that attract businesses and skilled workers 

because they offer amenities, transportation options, 

convenience, and character. 

 Places that have walkable neighborhoods where 

residents and visitors can live, work, shop, eat, and 

socialize. 

 Places where children can walk to school and older 

residents can more easily access stores and services. 

 Places that make the most of their natural assets, 

support their cultural resources, and honor their local 

history.

Communities that preserve and market their unique 

and distinctive aspects distinguish themselves from 

surrounding areas and become more economically 

competitive. In the 2005 Emerging Trends in Real 

Estate® report, real estate experts concluded that 

“revived districts that can offer a strong sense of place 

experience increased market demand. These visionary 

projects can change the fortunes of neighborhoods and 

entire cities.”i Many redeveloped bases have preserved 

their character and sense of place and reaped the 

economic benefits. The historic brick buildings of the 

Watertown Arsenal just outside Boston lure businesses. 

The natural areas, unmatched views, and historic 

buildings of the Presidio in San Francisco attracted 

filmmaker George Lucas to move his multimedia 

company there, building a new $350 million complex, 

paying $5.6 million in annual rent, and bringing with 

him 1,500 well-paid employees, many of whom will 

now live and spend money in the area. 

The practices described in this guidebook also can 

save communities money by placing jobs, homes, and 

services closer together. Studies have shown that it costs 

less to provide sewer, water, and transportation infrastructure; transport school children; and deliver emergency 

services in better planned, more compact areas.ii

These strategies are good for the environment and 

public health too. With destinations closer together in 

a walkable neighborhood, people can choose whether 

to walk, bike, take transit, or drive. Having these options means less air pollution from cars and trucks, as 

well as less traffic on the roads. In addition, compact, 

well-planned development results in less paved area 

per capita because it has smaller-scale parking lots and 

roads. Because runoff from paved surfaces is a major 

source of water pollution, reducing the amount of 

paved area per capita helps protect water quality.

The Presidio’s dramatic location and historic buildings make it attractive to residents and businesses.
5

Steps to success

Base redevelopment presents a unique opportunity for communities. As other base reuse publications emphasize, leadership and early action in developing a reuse plan are essential. Every 

community facing a base closure or realignment has to consider its individual circumstances, 

values, and needs. Local economic and market conditions, the extent of environmental contamination, the future owner(s) of the property, and the amount of land available to the community 

will influence the pace, type, and viability of redevelopment. To manage the reuse of the former 

installation, communities must understand the federal government’s process for determining 

how to “dispose” of a closed military property. The community also must understand the local 

demand for office space, housing, retail, and other forms of commercial development, as well as 

for recreation and green space. Armed with this information, the community can start planning 

for a new future. Communities that have successfully redeveloped former bases into thriving 

neighborhoods have found that the steps described below were critical to their success. 

The Glen, formerly Glenview Naval Air Station in Illinois, brings housing, shopping, and entertainment within walking distance 

of residents.
6

How should communities prepare for life after 

closure?

The Association of Defense Communities (ADC) suggests that communities facing 

a base closure follow these steps:

 ”Create a plan that works: A community’s first task is to create a plan and this must happen as 

quickly as possible. The plan should be a realistic vision guided by market forces and environmental 

conditions. Information improves planning. From environmental conditions to infrastructure assets 

—communities need to get all available information from the Department of Defense (DoD).

 Know the process: Base redevelopment is a complex process involving a myriad of state and 

federal agencies and regulations. Knowledge will be an important asset to ensure the community’s 

voice is heard.

 Speak with one voice: Communities must reach consensus about the future of a closed base in 

a timely manner. While attaining consensus among community members can be burdensome, the 

impact of neglecting this step can be huge.

 Learn from experience: Impacted communities are not alone. Hundreds have struggled with base 

closure following past rounds and their experiences will provide new communities with an important 

source of knowledge.

 Remember, base closure is a community issue: Base closure is more than a real estate 

transaction; it is about people, their jobs, and a way of life—it is a true community issue. Planning for 

life after closure must be a community-driven process.”

The historic brick buildings of Watertown Arsenal outside of Boston, Massachusetts.
7

Forming a Local 

Redevelopment 

Authority (LRA)

Jurisdictions affected by the Base Realignment and 

Closure (BRAC) decisions will need to establish a Local 

Redevelopment Authority (LRA) for all installations where 

property ownership will be transferred. The Department 

of Defense (DoD) Office of Economic Adjustment (OEA) 

works with community leaders to structure an LRA and will 

recognize the LRA on behalf of the federal government. 

The LRA is responsible for creating a redevelopment plan 

for the base or directing implementation of the plan. The 

OEA administers programs that help LRAs develop a base 

reuse plan, and other federal agencies, including the Departments of Labor and Commerce and member agencies 

of the President’s Economic Adjustment Committee, offer 

resources to support economic recovery. (See Resources

appendix for more information.)

The LRA is made up of members of the community 

affected by the base closure and reuse and should represent 

the widest possible range of interests. The Resources appendix of this guidebook lists some documents that provide 

advice on how to form an LRA, including guidance on size 

and composition. These publications also describe experience gained by LRAs in previous base closures, which will 

be useful to communities as they consider the LRA structure 

that will best meet their needs. Once formed, the LRA 

should work with other local leaders to involve the community in the redevelopment planning process, keep the public 

informed about progress, ask what the community wants 

and needs, solicit ideas for the redevelopment, and give 

feedback about those ideas. The more open and collaborative the planning process is, the more likely it is that the plan 

will gain the public support it needs to succeed. 

The LRA also must work with DoD to transition the base 

from military ownership to private or local government 

control. The property screening process gives the federal 

government an opportunity to use the land. If the land is declared surplus, federal, tribal, state, and local governments 

can request that the land be used for public benefit, such as 

parks, schools, or housing for the homeless. 

Federal property 

screening, surplus 

land determination, 

and disposal process

Before a BRAC installation is determined 

to have surplus federal land or facilities, 

the appropriate military department 

(Army, Navy, Air Force, or other DoD 

component) notifies other federal agencies 

and military services regarding the availability of the property. Thus, all or part of 

the property may be transferred within the 

federal government. The redevelopment 

plan should recognize and provide for 

these federal agencies’ needs (as identified 

before the surplus property determination). Once federal property is determined 

to be surplus, the LRA solicits and considers the needs of state and local entities, including public- and private-sector interests, 

such as affected tribal and other governments, recreation and conservation interests, development consortia, education 

and health care institutions, and providers 

of homeless services. A successful reuse 

plan also must take into account compatibility of uses. More information on the 

screening and disposal process for federal 

property is available in the OEA publication Responding to Change: Communities 

& BRAC (see Resources appendix).

The more open and 

collaborative the planning 

process is, the more likely 

it is that the plan will gain

the public support it needs

to succeed.
8

Sometimes closed bases languish for years, their 

buildings falling into disrepair as developers or local 

governments squabble over reuse plans. The city of 

San Diego found one innovative idea for keeping the 

buildings in use. The Navy closed its Naval Training 

Center on San Diego Bay incrementally over 4 years. 

During that time, the city leased base buildings from 

the Navy and then subleased them to other entities. 

This arrangement kept the buildings occupied and 

in good repair until the city officially took over the 

property. Other bases awaiting redevelopment, including South Weymouth Naval Air Station, have used 

similar leasing arrangements. Communities will need 

to review current regulations and work with DoD to determine where and under what circumstances leasing 

arrangements are possible.

Getting everyone on 

board

As with any development project, the key to success 

is building broad public support for the plan. People 

will support a plan that represents a clear, shared vision 

for the future, is fair, and benefits the community as a 

whole. The LRA’s great challenge will be to constructively harness the interest and enthusiasm of the various constituencies affected by the base redevelopment. 

The community’s efforts will be most effective if they 

speak with one voice. The LRA must delicately balance 

the need to get input and develop consensus with the 

need to keep the project moving forward. 

Education is fundamental to winning public support. Citizens must understand the possibilities and the 

limitations of the base redevelopment process. The 

LRA and the community can learn from other closed 

military bases that have been successfully redeveloped into vibrant, sought-after neighborhoods. These 

transformations can show local residents how the 

base can become a neighborhood. Peer exchanges 

can provide essential information about how other 

LRAs successfully transformed their bases—especially 

important details about financing, governance, and lessons learned. In addition, outside experts in the fields 

of urban design and planning can help the community 

visualize the possibilities on the site.

Cultivating community interest and support in the 

project is critical to success. From the earliest stages of 

gathering data on existing conditions, the public can 

play a role in providing information and comments. As 

the work shifts into planning for the future of the base, 

the LRA can work with community members to develop 

a vision for the site. Through a visioning exercise, the 

LRA can gain a sense of the community’s goals and 

aspirations for the redevelopment. To carry out this exercise, the LRA may want to consider bringing in one of 

the many firms that specialize in visioning processes.

As the plan develops, community input is critical. 

At the Orlando Naval Training Center, the commission creating the redevelopment plan held more than 

170 public meetings over 2 years. At Lowry Air Force 

Base, the LRA brought the community together for 

thousands of hours of meetings to develop the reuse 

plan. In some cases, the public may vote on the reuse 

plan or adopt zoning to implement it, making early and 

ongoing public involvement even more important. 

The goals of the public outreach are to motivate 

people to participate and to give everyone interested in 

the redevelopment a chance to get involved. Outreach 

techniques that work in one community may not work in 

The historic buildings at the former Naval Training Center in 

San Diego are being restored and reused.
9

others, but some techniques are generally more likely to 

succeed. A public notice in the newspaper, for example, 

may satisfy legal requirements for informing the public, 

but it rarely generates the enthusiasm necessary to motivate someone to invest his or her time and energy in 

helping develop a great plan. Person-to-person contact, 

on the other hand, usually works well. Cultivating a core 

group of people who are interested in the project from 

the beginning and who are influential in their neighborhoods and community helps the LRA enlist a broad 

array of people in developing the plan.

Partnerships with state and regional government officials can help the LRA secure grants, loans, and financial 

incentives and navigate state and federal regulatory processes. These officials can also help by sharing information about the activities of other LRAs in the state.

Taking stock of assets 

and challenges

A successful redevelopment plan based on smart 

growth principles depends on a realistic assessment 

of local assets and challenges. This assessment will be 

the foundation for the plan that the LRA will develop 

with the public’s help. It also can identify limitations on 

potential redevelopment. The community should start 

by determining what is special about local neighborhoods and the region and what people see as their 

community’s identity. The assessment should also 

include what the community needs and wants. From 

there, the community can consider what the base has 

to offer, such as its unique history, structures, natural 

resources, open spaces, and cultural assets, and what 

community needs it can help meet. If any DoD activities remain on or near the base, the community must 

consider how compatible the redevelopment will be 

with those activities. To help develop this understanding of present conditions and a vision for the future, the 

community might consider some detailed questions, 

such as those suggested below. The LRA may consider 

commissioning economic, environmental, transportation, and other necessary studies to help answer these 

and other questions. 

Is there any environmental contamination

on the base? If so, what are the contaminants, and where are they?

Many military facilities have contaminated areas on 

or near the property because of DoD’s former missions 

and activities at the base. Under federal law,iii DoD is 

responsible for cleaning up the property to a level that 

is protective of human health and the environment. In 

many cases, DoD already has investigated and cleaned 

the contamination or is in the process of doing so. 

Through discussions with DoD and federal or state 

environmental regulators, the LRA should learn which 

locations on the base contain (or may contain) environmental contamination, as well as locations where 

environmental cleanup actions already are complete. 

Different uses may require different levels of cleanup. 

Where cleanup activities are underway or complete, 

reuse plans should consider how site protectiveness 

will be maintained. The LRA must seek out information 

about the location and extent of any contamination 

before it begins developing the reuse plan with the 

community.

Where might 

contamination be 

found on a base? 

Possible locations of environmental contamination on an installation include in the 

groundwater; in the soil; under buildings; 

within buildings (e.g., lead-based paint, asbestos); under water towers and outdoor 

operational, storage, and maintenance 

facilities; in closed landfills; in training or 

maneuvering areas; on munitions and 

small-arms ranges; in the wastewater; 

or in ponds, lakes, or streams. LRAs also 

should learn about the history of the base 

to help uncover other areas with possible 

environmental contamination.
10

Knowing the type and location of contaminants 

will greatly benefit the LRA in formulating base redevelopment options and making future land use determinations that appropriately take contamination and 

cleanup options into consideration. Many installations 

have a Restoration Advisory Board (RAB) comprised of 

representatives from the community, the military installation, local government, and regulatory agencies. The 

RAB members provide input to the installation about 

its cleanup program, activities, and decisions. If an RAB 

exists at the base, the LRA and RAB members should 

communicate regularly to ensure that the base reuse 

plan and the cleanup strategy schedules are in accord. 

Additionally, the LRA should discuss past, ongoing, and 

planned cleanup efforts with DoD and the environmental regulators to ensure that the base cleanup and reuse 

planning/redevelopment timelines are coordinated and 

synchronized, if possible. This coordination can be more 

efficient, saving the community time and money.

Special caution should be taken when planning new 

uses at installations where military munitions were 

once produced, stored, or utilized, as residual risks 

from unexploded ordnance and munitions constituents likely remain at the site. Ensuring that these areas 

are delineated and appropriately reused is essential. 

Another critical aspect to managing contamination is 

knowing the responsibilities of each party—DoD, the 

LRA, the new property owner(s), and others as appropriate—regarding adherence to and ongoing maintenance 

for land use controls. 

DoD and federal and state environmental regulators examine various factors—such as risks to human health and the environment, the current use of 

the property, the anticipated future land uses of the 

property, past cleanup activities, remediation feasibility, 

estimated costs, and time to complete—when addressing cleanup of environmental contamination at a 

base. The LRA also should examine these factors when 

considering redevelopment options. Successful reuse 

will hinge on the LRA’s ability to stay informed about 

all issues regarding environmental contamination and 

to understand fully how to manage reuse planning and 

construction in concert with long-term protection of 

human health and the environment. Striving to create a 

base reuse plan that aligns future land uses with environmental cleanup and site conditions is in everyone’s 

best interest. 

256 buildings, 200 miles of underground utilities, and 25 

miles of road were demolished and recycled for the 

development of Baldwin Park.

Environmental 

insurance

Commercially available financial products, 

such as environmental insurance, may 

help manage uncertainties that underlie 

redevelopment of contaminated properties. Environmental insurance policies 

can be tailored to cover potential legal, 

financial, and environmental risks that 

may be associated with redeveloping a 

former DoD property. LRAs may explore 

how insurance or other financial products 

can assist with reuse challenges resulting 

from site conditions.
11

What type of development (commercial, industrial, residential, or a mix 

of these uses) best capitalizes on the 

base’s location, existing structures, 

and infrastructure? 

With long-term economic success as a goal, communities should consider market forecasts as well as 

current conditions when developing a reuse plan. A 

mix of uses may provide the most overall benefits for 

the community. Commercial development and even 

light industry can coexist with residential development 

and open space in a well-planned development. The 

base and the local area’s unique assets and needs can 

help determine suitable uses. A base may be ripe for 

marketing to a specific sector or niche depending on 

regional economic conditions. For example, the region 

may be a center for pioneering research and need a 

site for product manufacturing. Many bases can provide the large sites that some manufacturers, research 

facilities, or other businesses often have trouble finding. A reuse plan with zoning that allows these uses as 

part of a well-designed, mixed-use development can 

be very attractive to businesses seeking to build such 

facilities. No matter what the reuse plan contains, the 

community may need to adopt new zoning, ordinances, and regulations to implement it. 

Can the base connect to a surrounding 

neighborhood? Can a redeveloped 

base become a town center?

Bases that are surrounded by residential and commercial development will be easier to redevelop with a 

mix of those uses. For example, Baldwin Park, a former 

Naval Training Center, is in urban Orlando, Florida. It 

connected easily to the surrounding neighborhoods, 

providing much-needed parks for the entire area, while 

the existing community around it offered a ready supply of customers for Baldwin Park’s retail businesses. 

For some towns, the base is already emotionally or 

physically the heart of the community, and redevelopment simply reinforces that role by making it a town 

center. If a base is farther from an existing community, 

the reuse plan should consider how the redevelopment 

will connect to the rest of the community.

The community can 

consider what the base 

has to offer and what 

community needs it can 

help meet.

Early transfer of 

BRAC properties

The LRA also should learn about the early 

transfer process if the community is interested in accepting base property from DoD 

before cleanup is finished. Under the early 

transfer provisions in federal law, a community gains title to the property through 

a transfer from DoD prior to the completion 

of cleanup activities.iv An additional consideration is whether DoD or the property recipient will continue cleanup activities until 

complete. If the property recipient agrees 

to conduct the cleanup on behalf of DoD, 

DoD still ultimately retains responsibility 

to ensure that cleanup is accomplished 

properly and in a timely manner. Certain 

uses on the property may be restricted 

until site cleanup actions are complete and 

concurred on by the appropriate environmental regulatory agency. Additionally, the 

governor of the state must grant his or her 

concurrence before any BRAC property may 

be transferred early. EPA needs to concur 

on an early transfer if the base is listed on 

the Superfund National Priorities List. To 

find out if an installation is listed on EPA’s 

Superfund National Priorities List, please 

see www.epa.gov/fedfac/ff/index.htm.
12

Fitzsimons is home to a world-class health sciences campus with hospitals, housing, research facilities, and amenities.

Building on history

Taking advantage of its medical history, the former Fitzsimons Army Medical Center in Aurora, Colorado, is redeveloping into a world-class health sciences campus and biotechnology research park. The 

University of Colorado’s Health Sciences Center, with its attendant hospitals, specialty medical institutes, 

and laboratories, has led the way, bringing a projected 19,000 jobs to the site by 2010. At completion, 

the site will have a town center with retail and 400 to 600 homes, as well as a police station and hotel. 

For more information, see www.colobio.com/index.html. 

What are the base’s unique historic and 

natural assets? What other community 

amenities already exist at the site?

Historic buildings or other treasured features on the 

base can serve as focal points for redevelopment and 

connect the new development with the rich history of 

the facility. Perhaps the most prominent example is 

the Presidio in San Francisco. The Presidio served as 

a military base since the Spanish built it in 1776 until 

it was closed in 1994. The site has buildings from two 

centuries of military construction. It also has extensive natural lands, parks, and waterfront access. The 

Presidio’s rich history makes it a tourist attraction as 

well as a unique place for businesses to locate and 

people to live. 

The Presidio’s architecture spans centuries, making it a 

unique destination.
13

Updating historic 

buildings

After 200 years as a cannon and armament 

manufacturing facility, the former Watertown Arsenal in Massachusetts closed 

in 1995. It is now an office and manufacturing center, with a mix of restaurants, 

retail, childcare centers, sports facilities, 

and pedestrian and bicycling trails. The 

historic brick buildings that house the new 

development create a unique and appealing setting. The renovation preserved the 

structures’ architectural integrity while 

modernizing every building, including 

rewiring them with fiber-optic cables so 

all tenants could have internet access. 

Some bases occupy very desirable land: a waterfront, the center of a growing neighborhood, or property surrounded by parks. Many of the former installations were communities unto themselves, so they often 

already have golf courses, playing fields, swimming 

pools, bowling alleys, recreational facilities, and other 

amenities. The community may decide to restore these 

facilities during redevelopment or build new ones. 

The LRA also should consider where it makes sense to 

continue using facilities like hospitals and schools for 

appropriate similar civic uses.

Protecting wildlife 

habitat

Closed in 1991, New Hampshire’s former 

Pease Air Force Base sits on the shore 

of Great Bay, which supports the largest 

concentration of wintering black ducks 

and bald eagles in the state. The local community recognized the habitat value of the 

lands bordering the bay early in the reuse 

planning. In 1992, 1,054 acres of the 4,365-

acre site were transferred to the U.S. Fish 

and Wildlife Service to create the Great 

Bay National Wildlife Refuge, now enjoyed by about 60,000 visitors every year. 

Establishing the refuge was an important 

catalyst for a larger habitat protection 

effort in New Hampshire’s Seacoast area 

that has led to the protection of more than 

7,000 acres of marshes and uplands. The 

remainder of the former base was redeveloped into Pease International Tradeport, 

which consists of an international airport 

and an industrial park with 75 tenants 

employing nearly 2,000 workers.

Natural assets create amenities for the entire region surrounding 

the former Pease Air Force Base.

Modern updates to historic buildings make office space in 

Watertown Arsenal enticing.
14

Natural assets as an 

economic advantage

Lawrence, Indiana, took advantage of Fort 

Benjamin Harrison’s proximity to rolling 

hills and woods. Soon after the reuse 

plan was approved, the state applied for a 

public benefit transfer for 1,700 acres. Fort 

Harrison State Park became the first urban 

state park in Indiana. Lynn Boese, then executive director of the Fort Harrison Reuse 

Authority, noted that “We could not have 

predicted how important it would be to 

the redevelopment of Fort Harrison.... Businesses like to locate nearby, and people 

desire to live near the park. It has become 

one of our best marketing tools.”v 

Many bases have large, undisturbed natural areas 

that can continue to provide great habitat for fish and 

wildlife and recreational space for people. In other 

cases, some tracts are best left undeveloped because 

of contamination that makes them unsuitable or unsafe 

for human use. The community should be able to 

get information from the base and from federal and 

state agencies on natural resources such as wetlands, 

streams, flood plains, and fish and wildlife habitat. A 

conservation easement or conservation conveyance 

can preserve some or all of these lands in perpetuity 

if the community desires. The LRA can consult with a 

land trust and DoD to pursue this option. Siting new 

development to protect important natural resources 

will make it easier to get the necessary development 

permits from local, state, or federal agencies. 

Are there enough places for people to 

live in the region? Are there housing 

choices (that is, different sizes, styles, 

price ranges) so that a variety of people 

can live there? 

Fearing higher costs for schools and services, a local 

government’s initial reaction often is to shun residential 

development. Many communities turn to retail development to help prop up their tax base, but retail will not 

survive without customers. Retail development needs 

residential development—not only for a customer base but 

as a source of workers too.

In many parts of the country, regardless of their 

income, people are having trouble finding homes that 

they can afford in a convenient, safe location. Base redevelopment can help fill that gap by providing homes 

for the various community members who need them, 

including young people just starting out, singles, empty 

nesters, families, and active retirees. These homes can 

house people vital to a community’s health and safety, 

such as nurses, firefighters, police officers, and teachers, 

who are often priced out of the communities they serve.

The Presidio, for example, occupying a prime location 

in one of the nation’s most expensive housing markets, has 

a Public Safety Housing Program that reserves up to 40 

units for full-time, Presidio-based firefighters and U.S. Park 

Police officers. Participants pay 30 percent of their gross 

This historic building on the former Fort Benjamin Harrison has 

been converted into the Kendall Inn, a 28-room boutique hotel.

The Presidio provides much-needed housing.
15

income for rent. All full-time employees of organizations located in the Presidio get preference for housing, no matter 

what their income. Rent for workers making less than area 

median income is 30 percent of their gross income.vi

How well is the base served by transportation? Can additional transportation be 

easily extended there if necessary?

Neighbors of redevelopment projects often are 

concerned about increased traffic, but locating homes, 

offices, recreational amenities, and shopping closer 

together gives people choices in how they get around 

and can reduce the extra traffic that new development 

will bring. Reuse plans should examine how well the 

Cameron Station has lots of housing options—townhomes, 

apartments, and single-family houses, with ample parks for 

neighbors to enjoy.

Housing in a hot 

market

Once home to the Army and the Defense 

Logistics Agency, Cameron Station is now a 

residential development in Alexandria, Virginia. The Army sold 101 acres to a private 

developer and transferred 63 acres to the 

county parks department. The surrounding 

area is rich with employment but short on 

housing. The project has more than 2,000 

homes, including townhouses, condominiums, and single-family homes. Residents can 

walk or take a community shuttle to reach 

many of their daily needs. In addition to the 

park, Cameron Station has a small commercial area with a daycare facility, corner market, coffee shop, dentist, florist, and salon. 

The development also has a new elementary 

school—the first new school constructed in 

the city of Alexandria in 30 years. Its location 

and design have made Cameron Station 

a very desirable neighborhood in the hot 

Washington, DC-area real estate market. 

Balancing commercial 

and residential 

growth

During the development process, LRAs 

should consider how to balance the rates 

of residential and commercial development. Some bases, such as the South 

Weymouth Naval Air Station, choose to 

phase in homes and commercial development together. Phasing gives nearby communities time to adjust to and absorb the 

impacts of the redevelopment. It allows 

infrastructure improvements to keep pace 

with growing demands, and it can respond 

to changing market conditions.

In South Weymouth, the LRA and the 

communities surrounding the former base 

required the development to be built in 

three phases over a period of approximately 14 years. Each phase has a maximum amount of residential development 

that can be built and a minimum amount 

of commercial development that must be 

built before the developer can proceed to 

the next phase. For example, in Phase I, 

the developer can build up to 1,000 homes 

and must build at least 300,000 square feet 

of commercial development before starting Phase II. The recreational amenities are 

similarly phased in. See www.ssttdc.com

for more information.
16

base is served by roads, as well as by public transit 

(such as buses, rail lines, or shuttles) and bicycle and 

pedestrian routes. On the former South Weymouth 

Naval Air Station, for example, the proposed development will be close to a commuter rail system that runs 

to and from downtown Boston. 

Street design is important, not only for automobile 

traffic, but also for pedestrians and bicyclists. Narrower, 

tree-lined streets with attractive sidewalks make pedestrians feel safer and are more interesting and comfortable to walk along. A grid network of streets distributes 

traffic more evenly throughout a development instead 

of concentrating it on a few heavily traveled arterial 

roads. For example, removing the fence that had surrounded Baldwin Park when it was a military facility 

created more than 30 new entrances and actually 

relieved rather than increased traffic in nearby neighborhoods because drivers had more options. 

Is there existing infrastructure on the 

base (e.g., sewer, water), or is there 

sufficient capacity nearby?

Access to sewer, water, roads, and other infrastructure is key to attracting high-quality, compact development. If the existing infrastructure cannot support redevelopment, the LRA must find funding to rehabilitate 

sewer and water systems, roads, and other services. 

Many communities have had to rebuild the existing 

infrastructure on a base. This overhaul is expensive, 

and some communities have offered developers incentives to balance the added expense. The city of San 

Diego gave Liberty Station’s developer a ground lease 

on almost 200 acres of land to compensate for the cost 

of demolishing and replacing the base’s infrastructure. 

The Glen, the mixed-use redevelopment of the former 

Glenview Naval Air Station in Illinois, covered its infrastructure replacement costs with revenues from land 

sales and property taxes. Many base redevelopments, 

including Liberty Station and Baldwin Park, recycled 

the demolished material into new roads and other infrastructure, saving money and conserving resources. 

The former control tower was converted into a bookstore at 

Glenview Naval Air Station.

The proposed development around the commuter rail 

station at South Weymouth.

Creating a redevelopment

plan for the base

The LRA is responsible for developing a reuse 

plan for the property. Depending on its staff’s size and 

expertise, the LRA may need to hire consultants to help 

draft the plan. If the LRA or local government is going 

to acquire any of the property, they may want to hire 

a developer early on to work with them as they draft 

the plan. Regardless of who the LRA hires to help, the 

reuse plan must be economically feasible. A pretty plan 

isn’t enough—it must respond to the market. 
17

Involving the public 

Using the vision for base reuse and other available 

information, the LRA and the community can begin 

drafting the plan for redevelopment. As the Association 

of Defense Communities notes, “[the] LRA Base Reuse 

Plan offers the best opportunity to shape the future use 

of a closed base.”viii To take full advantage of that opportunity, the LRA must describe an effective strategy 

for replacing jobs and demonstrate vigorous public 

engagement throughout plan preparation. 

One of the most important steps the LRA can take is to 

ensure strong public involvement in developing the reuse 

plan. Broad community support is critical to a successful 

redevelopment. Successful base reuse projects all have 

included extensive, ongoing public involvement.

Many tools are available to help the LRA and local 

governments educate the public about the benefits of 

a compact and well-designed redevelopment, solicit 

community input on the design, and clearly envision 

the kind of development the community wants. A visual preference survey, for example, shows images of 

different development types and asks the participants 

to rank them by preference. Software tools compare 

different redevelopment options based on the amenities each provides, the traffic each generates, the water 

each consumes, and the proximity of households 

to parks and transit. Public participation workshops, 

including design charrettes, are very effective and help 

develop a plan that is economically feasible and that 

the community supports. For more information on 

these and other tools, see the Resources appendix.

Residents of the surrounding towns participate in developing 

the plan for South Weymouth.

Lessons learned at 

Fort Devens in 

Massachusetts

Jeffrey Simon, former director of Fort 

Devens during its redevelopment, recently 

summarized the reuse planning process:

”Here is what we did right:

 We had strong leadership starting with 

[former Governor William F.] Weld and [former] Lieutenant Governor Paul Cellucci.

 We provided lots of forums for the public 

to vent.

 No one spent time trying to reverse the 

[closure] decision.

 We approached this as an opportunity to 

define the future.

 We created the Devens Enterprise 

Commission, a new form of municipal 

government that recognized that the 

only chance for economic recovery 

lay in recognizing the limitations and 

overcoming them.

 The state worked closely with the towns 

in a partnership unique in Massachusetts.

Here is what we did wrong:

 Out of fear of the impact on municipal 

budgets we brushed aside nearly all of 

the strongest market and quickest path 

to economic recovery—residential 

development.

 We took too long getting this property 

back in productive use.

 We allowed a federal prison on the property, which compromised the quality of 

other development.”vii
18

Incorporating good development 

practices

When growth comes, communities must balance 

the impacts of the new development while preserving and enhancing the best aspects of their neighborhoods and regions. Growth brings investment, 

along with new residents and new workers who need 

transportation options, homes, stores, services, and 

other amenities. The communities that have used that 

investment to their advantage—giving residents new 

amenities, more housing and transportation choices, 

and more convenience—typically employ a similar set 

of techniques. These techniques, often referred to as 

smart growth, have been distilled into ten principles 

reflecting the experiences of successful communities 

around the nation. Smart growth practices help ensure 

that development improves the economy, community, 

public health, and the environment.

Participants use drawings, maps, and building-shaped blocks 

to envision the future layout of Baldwin Park.

Engaging the 

community 

through a design 

charrette

Design charrettes can be very effective in 

creating a plan with broad support. Charrettes are intense workshops, usually lasting 

about a week, in which a design team meets 

several times with the public and individual 

stakeholder groups to get their ideas for the 

development plan. The team sketches out 

plans based on this input and, in a series of 

feedback loops, shows them to the public, 

then refines the plans based on the public’s 

comments. The result is a plan that community members are more likely to view as 

fair, because they have had several chances 

to comment on it. Charrettes require skilled 

professionals to lead them and a great deal 

of up-front preparation, and they can be 

expensive. Most communities feel, however, 

that the cost is worth it. Ultimately, many 

developers find that they spend less time 

and money on a charrette than they would 

if they had to fight public opposition later in 

the process. 

At Fort Ord in Monterey, California, the 

redevelopment plan for the East Garrison 

portion of the site was initiated by a weeklong design charrette in November 2001. A 

team of nationally recognized experts led 

participants in crafting principles to guide 

the development and sketching images 

of what that development could look like. 

The developer said of the process, “While 

considerably more planning, analysis and 

implementation lies ahead, the East Garrison 

charrette process will long be remembered 

as the defining moment that helped put 

aside differences and created common goals 

and understandings.”ix For more information 

about Fort Ord, see www.eastgarrison.com.
19

For more information on smart growth 

techniques

EPA’s smart growth program has many resources to help communities grow and develop while protecting environmental resources. See www.epa.gov/smartgrowth for more information. EPA is also 

a partner in the Smart Growth Network, a coalition of environmental groups, historic preservation 

organizations, professional organizations, developers, real estate interests, and federal, state, and local 

government entities. The network’s Web site, www.smartgrowth.org, features hundreds of resources, 

including news articles, research reports, Web sites, tools, and case studies, to help communities learn 

about development practices that protect the environment and public health, benefit the economy, and 

create lively, safe, and attractive communities. Some specific publications that may be useful are:

Getting to Smart Growth: 100 Policies for Implementation

(www.smartgrowth.org/pdf/gettosg.pdf [2.7 MB PDF]): This publication is a road map for states and 

communities that have recognized the need for more efficient and environmentally sound development, but are unsure about how to achieve it.

Getting to Smart Growth II: 100 More Policies for Implementation (www.

epa.gov/smartgrowth/getting_to_sg2.htm): The second volume offers more concrete techniques to 

improve development and growth in communities.

Protecting Water Resources with Smart Growth (www.epa.gov/smartgrowth/

pdf/waterresources_with_sg.pdf [1.4 MB PDF]): This publication features 75 policies that communities 

can implement to protect water resources while they grow.

Creating Great Neighborhoods: Density in Your Community (www.epa.

gov/smartgrowth/density.htm): This publication highlights nine community-led efforts to create vibrant 

neighborhoods through density and introduces design principles to ensure that density becomes a 

community asset.

Several homes in Baldwin Park are grouped along a shared front yard, creating easy opportunities to mingle with neighbors.
20

Mix land uses: Putting jobs, homes, shops, and 

recreation near each other gives people options for 

getting around. They can walk, bike, drive, or take 

public transit. The traditional neighborhoods and 

small towns that many people cherish have this mix 

of uses. Locating homes near offices and shops also 

means that people will be walking on the streets at 

different times of the day, making the community 

livelier and safer.

Use land efficiently: Communities can save 

money and resources by building compact neighborhoods where it makes sense. In denser areas, communities spend less on new infrastructure, consumers spend less on water, and emergency services can 

respond more quickly. Compact neighborhoods can 

offer more transportation choices by putting destinations close enough for people to walk. Balancing 

different levels of density lets communities provide 

residents with choices—offering urban living to some 

residents while preserving suburban living for others.

Create a range of safe, convenient, and 

affordable housing opportunities and 

choices: Providing high-quality homes for people 

of all income levels and at all stages of life is an 

integral component in any smart growth strategy. 

The type and location of homes affect commuting patterns, energy and water use, and access to 

transportation, community services, and education. 

Communities can give their residents more choices 

by encouraging different types of housing in existing 

neighborhoods and in new development.

Create walkable neighborhoods: Mixing 

uses and placing them close together makes it easier 

for people to walk to school, work, shopping, and 

fun. Communities also can encourage walking by 

creating more pleasant sidewalks and safer streets. 

Walkable neighborhoods give people options for 

getting around and also offer them an easy way to 

incorporate physical activity into their daily routines.

Foster distinctive, attractive communities with a strong sense of place: New 

development should respect the unique culture, 

history, and geography of a community. People are 

proud of a community that has a distinct character. 

Such places attract tourists, new businesses, and 

new residents.

Preserve natural lands, farmland, and 

critical environmental areas: Protecting the 

natural environment means cleaner air and water, 

healthy habitat for fish and wildlife, and beautiful 

vistas and recreational lands. Many communities 

also want to preserve working lands, like farms and 

ranches that are fiscally self-sustaining and are a critical part of their economy, history, and culture. 

The Glen’s interesting mix of retail attracts visitors and residents 

alike.
21

Making the development attractive 

to businesses

The former Fort Devens in Massachusetts 

has become a national leader in sustainable economic development. Now run 

by the Devens Enterprise Commission in 

cooperation with MassDevelopment, the 

former base is a thriving jobs center that 

has attracted 75 firms that employ more 

than 3,000 people. One reason for the 

redevelopment’s success is its one-stop 

permitting program. The commission acts 

on all applications to locate on the former 

base in less than 75 days, with many 

completed in only 45 days. No other facility in the region can match this approval 

speed, making Devens very attractive to 

businesses.

Incorporating many or all of these principles will 

help ensure a plan that is fair, is likely to succeed economically, and enjoys broad public support. Perhaps 

most important for base redevelopment is making 

development decisions that are fair and inclusive. 

The public will support the plan if the citizens feel like 

their concerns have been heard and addressed, and 

the business community will support the plan if the 

decisions are predictable and economically viable. The 

LRA should be confident enough in its process that, if 

the plan goes to a public vote, it can be reasonably sure 

that the plan will be approved.

Strengthen and direct development 

toward existing communities: Reusing 

existing infrastructure, schools, and public services 

helps make the best use of taxpayer dollars. Building in 

existing communities also protects undeveloped land.

Provide a variety of transportation 

options: Making it easy for people to walk, bike, 

or take transit can reduce traffic congestion and air 

pollution. People who cannot or choose not to drive, 

including children, seniors, and disabled persons, 

have more freedom when they can get around easily 

without depending on someone to drive them. 

Make development decisions predictable, fair, and cost effective: One of the best 

ways to get private-sector support for a community’s 

vision is to create certainty and predictability in 

where and how the community will develop.

Encourage community and stakeholder 

collaboration in development decisions:

Give everyone with a stake in the community a seat at 

the table. Development decisions should be open and 

fair, with public involvement to ensure that the community’s needs are met.
22

Creating a business plan

In concert with the land use planning, the LRA needs 

to conduct financial analyses and develop a business 

plan. The LRA must estimate the costs of developing the 

property, including infrastructure investments and operating costs, and assess expected revenue sources. An 

ADC publication, The Community Base Reuse Planning 

Process: A Layman’s Guide, notes that “[r]edevelopment 

of these typically large-scale, complex facilities is costly, 

often requiring large investments in basic infrastructure 

along with a professional organization capable of managing the process over several years.”xi This publication and 

others listed in the Resources appendix provide information on financial planning for redevelopment. 

Compact design wins approval

At the former South Weymouth Naval Air Station in Massachusetts, the surrounding communities of 

Weymouth, Rockland, and Abington voted to adopt a reuse plan that protects about 70 percent of the 

1,400-acre property’s natural lands and mixes development uses on the remaining 30 percent. The plan 

calls for nearly 3,000 homes and up to 2 million square feet of commercial and industrial development. 

Using a software tool called Smart Growth INDEX,x EPA helped the communities compare the likely 

environmental impacts of the proposed reuse plan with earlier versions that had focused largely on just 

one type of development. The proposed plan is more compact, mixes uses, and preserves more open 

space. It gives the area more transportation options by making better use of the commuter rail system 

and making walking easier and more attractive. Mostly because of the compact design, the blend of 

uses, and the preserved natural lands, the development will produce much less stormwater runoff than 

the earlier plans would have.

The proposed town center for South Weymouth will put jobs, homes, and shops near each other so people can walk to their destinations.
23

Implementing the Plan

The LRA may choose to implement the plan itself or 

hire a developer to implement it. The decision on whether 

and when to hire a developer will depend in part on 

whether the LRA receives the property, and whether the 

LRA or local government has the financial resources and 

expertise to develop the former base. Some communities, like Lowry, replace their planning LRA with an implementing LRA. The local government’s redevelopment 

agency could act as the implementing LRA if its members 

have the authority to oversee local redevelopment. Regardless of who implements the plan, the following steps 

will help make it successful.

Developing design guidelines and 

zoning consistent with the vision

Too often there is a gap between an attractive plan 

and the development that ensues. The LRA should 

insist on superior design and ensure that it is implemented. Development that is designed well from the 

beginning has lasting economic benefits for communities, and it will improve property values in surrounding 

areas as well as on the former base. Building-design 

guidelines, architectural standards, street-design standards, and zoning that adhere to the vision will ensure 

that the community-supported plan is built as intended.

The Lawrence Government Center at the former Fort Benjamin Harrison was built under the architectural guidelines.

Architectural 

guidelines preserve 

character

Fort Benjamin Harrison was the heart of 

Lawrence, Indiana. Many of its buildings 

were built between 1906 and 1910, and 

others date from the 1930s and 1940s. 

The Fort Harrison Reuse Authority (FHRA) 

recognized these structures as an important asset for the area’s character and a 

draw for new employers and residents. To 

ensure that additional development on the 

base would be compatible with the existing buildings, FHRA designated historic 

districts and established architectural and 

development standards. The standards 

require that new construction reflect the 

style and materials of the older buildings. 

According to FHRA, this has created a 

near-seamless transition between the new 

construction and the historic buildings. 

Since the base closed, the property has 

added more than 1,000 homes and more 

than 100 businesses, creating 1,500 jobs.xii 

See www.fhra.org/architecture.htm.
24

Keeping in touch 

with the community

Neighborhood participation was critical in 

developing the Lowry reuse plan, and that 

involvement did not stop once construction began. A 21-member community 

advisory committee counsels the LRA on 

implementation matters and any updates 

that have to be made to the plan to reflect 

changing market conditions. Other committees, for design review, affordable 

housing, and environmental cleanup, meet 

regularly. The LRA keeps residents and 

businesses informed through a monthly 

newsletter called Re: Developments, as 

well as maintaining LowryLink.com, a Web 

site with calendars for events and public 

meetings. Residents have organized Lowry 

Neighbors, a grassroots neighborhood 

association. The LRA supports the Lowry 

Employers Action Network, which brings 

together Lowry businesses to build skills, 

network, and socialize.

A sense of ownership 

is a powerful motivator to keep people engaged.

Investing in infrastructure 

improvements

On many bases, the existing infrastructure, such as 

roads, utilities, sewer, and water, may be antiquated 

and inadequate for the planned development. The LRA 

should develop an infrastructure plan that will support the 

reuse plan. This plan should address how the improvements will be financed. It may be difficult to market the 

site until some of these investments are made. At Lowry, 

the LRA invested heavily in the infrastructure to give the 

first home builders the security they needed to understand and embrace the development vision. In addition, 

the LRA did not launch a sales effort for the commercial 

district until it had demolished the runways and obsolete 

buildings, installed infrastructure, and landscaped the 

grounds. This upfront investment was essential to make 

the site attractive to private investors. 

Keeping the public involved

As important as public involvement is in developing 

the reuse plan, it is equally important in seeing the plan 

through. Citizens keep the LRA and local government 

accountable and on track with the vision. Keeping the 

public engaged throughout implementation also will 

minimize the risk of last-minute challenges that could 

prove costly and time-consuming for the developer 

and/or the LRA. Although sustaining public interest 

and enthusiasm for such a long time can be demanding, many base reuse projects have done so successfully. Newsletters, Web sites, and public meetings can 

share information with the public. The LRA must also 

periodically give people opportunities to comment on 

the plan’s progress—information sharing cannot be a 

one-way street. Once construction is underway, public 

tours of the project give citizens a chance to see their 

vision becoming a reality. This sense of ownership is a 

powerful motivator to keep people engaged.
25

Conclusion

We can learn a lot from communities that faced base closures in previous BRAC rounds:

 The steps in this guidebook can help create redevelopment that may be better for the 

community economically and environmentally than when the base was active. But getting 

to this point takes time.

 Taking stock of assets and challenges is important. A reuse plan that is well thought out and 

based on solid information is fundamental to success.

 Getting everyone on board is critical. Investing time and energy upfront in substantive public 

education and involvement leads to broad-based support later.

 Good development practices are essential. A reuse plan based on smart growth practices 

results in development that is good for the economy, the environment, public health, and the 

community. 

 Help is available. Many agencies and organizations, some specializing in base reuse and some 

specializing in smart growth practices, have resources and even funding to help LRAs develop 

and implement their plans. 

Learning that the military base that provides jobs and revenue to the community is about 

to close can be frightening. But it doesn’t have to be devastating. In fact, as many redeveloped 

bases have shown, base closure can open up new opportunities. It can provide jobs and homes 

to people who need them, create parks and recreational resources for the entire region, and become a truly distinctive legacy for the community. The history and resources of the base remain 

after the military leaves; now those treasures belong to the whole community.

We hope that this guidebook helps your community make the most of this unsought but 

unique opportunity. 

27 Case Study

Baldwin Park 

(formerly Naval Training Center)

Orlando, Florida

The U.S. Navy announced the closing of its Orlando Naval Training 

Center (NTC) in 1993, and the base officially closed 3 years later. Although 

the community initially felt a sense of loss, the demand for developable 

land within Orlando meant that opportunities abounded for redevelopment. 

Today, the former base is Baldwin Park, an award-winning development 

only a few miles from downtown Orlando.

When the Navy announced that the base would close, the city of Orlando 

immediately formed a base reuse commission to create a redevelopment plan. The commission, made up of 150 central Florida business and 

government leaders, held 174 public meetings over the next 2 years to get 

the public’s ideas and feedback on proposed plans. When the commission 

finished its plan in 1995, the city created a seven-member NTC Advisory 

Board to implement it and held more than 100 public meetings to select the 

developer and refine the plan. Among the tools at these public meetings 

were visual preference surveys that showed attendees different building 

and community design options, and then asked them to rate each one. The 

vision that came from these meetings was “the overwhelming desire to 

link the property with surrounding neighborhoods, provide public access to 

lakes, form a network of green throughout the project, create a vibrant main 

street, and disperse automobile traffic through a gridded street network.”xiii 

The city received the base from the federal government and transferred it to a private developer, chosen 

through a competition, who renamed the parcel Baldwin 

Park. The developer paid $7.6 million for 1,093 acres: 90 

acres went to the federal and state governments for government offices and 468 acres were protected wetlands, 

lakes, and land set aside for parks, leaving 535 developable acres for more than 4,000 homes, 1 million square 

feet of offices and stores, a new elementary school, a 

new middle school, a church, and three community 

centers. The developer also paid $1.7 million to cover 

additional cleanup costs. The city offered the developer a 

loan and a line of credit to help with demolition, environmental remediation, and construction, and a $13.5 

million impact-fee credit based on what the Navy had 

spent on the base’s infrastructure.xiv As the planning and 

building proceed, the city holds monthly public meetings 

in cooperation with the developer, and the Navy monitors environmental conditions at the site.

”Baldwin Park is 

an ideal location 

to build a new 

practice and not 

have to drive 45 

minutes from my 

home everyday. 

I look forward to 

serving the people in 

my own community 

and establishing longterm relationships with 

them—not only as 

patients, but as neighbors and friends, too.“

Dr. William Dunn, a dentist who lives in Baldwin 

Park and plans to open a new practice therexv 

The Baldwin Park Development Company set aside 468 acres 

as protected wetlands, lakes, and park land.
28

The developer reconnected the former base to the surrounding neighborhoods by taking down the fence that had surrounded the property and 

extending the neighborhood streets through Baldwin Park. To re-create the 

look and feel of traditional neighborhoods, Baldwin Park includes narrow, 

tree-lined streets with wide sidewalks; homes designed in the architectural 

style of pre-1940s central Florida, with front porches and garages in the rear; 

and a blend of uses close together so people can walk from their homes or 

offices to parks, restaurants, shops, school, or church. The development has 

more than 15 different housing styles, ranging from rental apartments to 

townhouses and high-end custom houses. It features more than 50 miles of 

walking trails and sidewalks.

The developer had to almost completely rebuild the base’s infrastructure, 

dismantling 200 miles of underground utilities and 25 miles of roads and 

demolishing all but 5 of the 261 existing structures. The developer recycled 

as much of this material as possible to build new roads and other projects, 

such as stormwater filtration systems and parkland.

Audubon of Florida worked with the developer to help create viable 

ecosystems in Baldwin Park by restoring natural features that had been 

displaced when the base was built 50 years earlier. The developer also 

preserved the base’s mature trees as much as possible and planted 4,000 

new street trees.

The city anticipates that when Baldwin Park is completely built and occupied sometime in 2006, the development will house 8,000 residents, support 6,000 permanent jobs, and generate more than $1.5 billion in property 

tax value, more than $30 million in annual property tax revenue, and more 

than $180 million in payroll.xvi The development began 

spurring investment in surrounding neighborhoods even 

before most of its residents had moved in; nearby, two 

shopping centers are being redeveloped and a medical 

building is under construction.xvii As David Pace, managing 

director of the development company, points out, other 

benefits to the surrounding community include “the addition of hundreds of acres of parks the public gets to use, 

grocery stores they don’t have to go out on Highway 50 for 

anymore, and property appreciation.”xviii

”The planning and 

partnerships which 

have brought us to 

this day will carry us 

through to the day

when we can 

celebrate youngsters 

riding their bicycles on 

community sidewalks, 

families picnicking in 

one of the community’s

parks and grandparents

watching their grandchildren thrive in a 

true neighborhood.“

Orlando Mayor Glenda Hood, at an event 

celebrating the start of construction at Baldwin 

Park, June 5, 2001xix

Baldwin Park includes a variety of housing types.
29

The city notes that “Baldwin Park is what the citizens 

of Orlando ask for: quality homes; a mixture of uses 

with businesses, schools, residences, and recreation 

contained within one community; job creation and 

tax generation.”xx The development has won national 

recognition with awards such as EPA’s National Award 

for Smart Growth Achievement (2005), Urban Land 

Institute’s Award of Excellence (2004), the National 

Arbor Day Foundation’s “National Building with Trees 

Award of Excellence” (2004), and the Council for Sustainable Florida’s “Sustainable Florida Best Practices 

Award” (2004). The developer won the Distinguished 

Corporation Award from Audubon of Florida, and one 

of the architects won a Palladio Award for his design of 

one of the development’s recreation centers.

Web site: www.baldwinparkfl.com. 

For details on the city’s process, see 

www.cityoforlando.net/planning/ntc/ntcclos.htm. 

Neighborhood shops and services are convenient for Baldwin Park 

residents. 

Attractive office space is a critical part of the 

Baldwin Park project.

Year base closed: 1996

Year construction started: 2001

Year first homes were occupied: 2003

Year of completion: 2008 (projected)

Acreage: 1,093 (535 developable)

Number of homes: 4,100 (projected)

Commercial and retail space: 1 million square feet

Residents: 8,000 (projected)

Jobs: 6,000 (projected)

Total property value: $1.5 billion (projected)

Annual tax revenue: $30 million (projected)
30
31

Liberty Station 

(formerly Naval Training Center) 

San Diego, California

The Naval Training Center (NTC) trained members of the U.S. Navy and 

U.S. Naval Reserve for 70 years. Almost 550 acres in size, NTC included 624 

buildings, many in the Mission Revival style, with nearly 3 million square feet of 

space. Using many of these historic buildings and the base’s prime location on 

San Diego Bay, the city has turned the training center into a beautiful redevelopment, restoring waterfront access to the public for the first time in 80 years, 

creating new parks, and establishing creative arts facilities. 

After the 1993 BRAC round slated NTC for closure, the Navy closed the 

facility incrementally. As the NTC closed, the city and the Navy reached an 

agreement in 1995 that gave the city interim use of 67 acres of the site (the 

agreement was later expanded). The city subleased buildings to nonprofit 

organizations, city departments, and small businesses. This interim leasing 

allowed the city to keep the buildings and landscape areas in good shape while 

the Navy decreased its funding.xxi The Navy officially closed NTC in 1997 and 

transferred the NTC to the city of San Diego through a no-cost economic development conveyance.

Liberty Station, the name for the redeveloped NTC, encompasses 361 acres 

and several distinct districts. On the north shore of San Diego Bay, just a few minutes from downtown and the airport, the community will have 125 acres of parks 

and open space, including a waterfront path that leads all the way to downtown; 

a nine-hole golf course (constructed in 1925 and considered a national historic 

resource); shopping villages and restaurants; a 28-acre civic, arts, and cultural 

district called NTC Promenade; two hotels; a seven-building office district; 349 

homes in 3 neighborhoods; and a 22-acre educational campus including seven 

schools. Because of the way the military buildings were clustered, Liberty Station 

has separate districts for homes, offices, shops, and cultural activities rather than 

blending these uses together. As the development is only about 1 mile from end 

to end, and all of the facilities are connected by landscaped walkways, walking 

from one district to another is easy. About 94 acres will be new construction, and 

another 95 acres will make up the historic district, which includes more than 50 

historic structures to be preserved, as well as the USS Recruit, a landlocked ship 

built in 1949 and used in training for many years.xxii 

After the base closing was announced, the city held hundreds of community 

meetings, design charrettes, and public workshops. Thousands of people, not 

only neighbors but also retired Navy officers who still lived nearby, participated 

in the process. The public had not had access to this section of the waterfront 

since the base opened in 1923, and regaining access was one of the main de-

”We’ve worked 

for more than a 

decade now to 

transform the 

former Naval 

Training Center 

into a resource all 

San Diegans can 

use, while reflecting 

the rich maritime history our city enjoys. 

We’re one step closer 

to the vision of NTC, 

ultimately as a destination for residents and 

visitors alike; a place 

surrounded by green, 

bordered by water and 

centered on history.“

Hank Cunningham, assistant executive 

director of the San Diego Redevelopment 

Agencyxxiii

Case Study

A landscaped promenade creates a pleasant 

walking environment for residents.
32

sires expressed in the meetings. This public process resulted in a comprehensive plan for Liberty Station that emphasized public use, a pedestrian-oriented 

environment, and a vibrant mix of uses that would replace the jobs lost when 

the base closed. A residents’ group called Save Our NTC has kept a watch on 

the development process. Contentious issues have included objections to the 

height of some proposed buildings and concerns that the public space is being 

developed more slowly than the offices and housing.

Without the money to redevelop the base on its own, 

the city held a competition and awarded the redevelopment to a private developer, with the San Diego Redevelopment Agency as a partner. Redevelopment is estimated 

to cost $850 million over the first 15 years, and most of 

the money will come from private financing. As an incentive, the city gave the developer 81 acres to develop and 

sell for homes and offices. The developer holds a 66-year 

ground lease, owned by the city, on the remainder of the 

property to develop and lease for commercial uses.

The development is expected to create 8,000 permanent jobs. Room tax from the two hotels is expected to 

generate $4.8 million annually. Tax revenue from the 

developed property could bring in $2.4 million a year, 

including $750,000 annually for low- and moderate-income housing.xxiv The developer is obligated to build $125 

million worth of infrastructure improvements, including sewer, water, electric, 

cable, phone and storm-drain system improvements, new parking areas, and 

new road and traffic improvements to internal and surrounding streets. Road 

improvements include new curbed medians, renovated sidewalks, bike lanes, 

New housing built in the traditional architectural style of the area.

Liberty Station occupies a prime location near downtown San Diego.
33

Preserving the unique architecture on the former base.

and extensive landscaped paths. Demolition of obsolete infrastructure 

created about 300,000 tons of crushed concrete and 200,000 tons of 

pulverized asphalt, almost all of which is reused for fill and road base.

In the initial offering, Liberty Station home prices ranged from 

about the mid-$400,000s to the high $800,000s. More than 1,500 

families entered a lottery for a chance to purchase the first homes. 

The development was more than 50 percent sold out within 8 

months and completely sold out by March 2004. The townhouses 

and detached homes are a blend of architectural styles that represent 

the base’s history and reflect the style of nearby neighborhoods. 

Homes feature off-street, alley-access garages shielded from the 

street; include porches and balconies to foster a sense of community; and use green building materials. As noted earlier, to meet San 

Diego’s requirement of 15 percent affordable housing, the redevelopment agency will set aside tax revenue to provide housing elsewhere 

in the city to people of low and moderate incomes. 

The developer proclaimed that Liberty Station would be a model 

of smart growth and noted how well it fits with San Diego’s “City 

of Villages” plan.xxv The company saw this project as an excellent 

opportunity for infill development. Although increased traffic is possible from suburban residents coming to work at Liberty Station, the 

developer hopes to keep the amount of traffic in and out of the community down by giving residents everything they need—a place to live, 

work, shop, and eat—within the development. 

Web sites: www.sandiego.gov/ntc and 

www.libertystation.com.

Year base closed: 1997

Year construction started: 2001

Year first homes were occupied: 2003

Acreage: 361 

Number of homes: 349 homes

Commercial and retail space: 680,000 square feet

Jobs: 8,000 (projected)

Annual tax revenue: $7.2 million (projected)
34
35

Lowry 

(formerly Lowry Air Force Base)

Denver, Colorado

In 1991, after 54 years of operation, the 1,866-acre Lowry Air Force Base 

found itself on the BRAC closure list. A member of the Lowry Redevelopment 

Authority characterized the unique challenge: “Most real estate developments 

don’t start out with 1,000 vacant buildings, 28 miles of obsolete streets, three 

runways, and a 12-mile-long chain-link fence. Not to mention environmental 

issues and no money.”xxvi But that was the starting point for the redevelopment 

of this base, just 15 minutes from downtown Denver.

Realizing that 7,000 jobs and $295 million in annual spending were leaving the area, the mayors of Denver and Aurora, the two communities with 

jurisdiction over Lowry, forged an unprecedented alliance to charge ahead with 

redevelopment. As soon as closure was finalized, the mayors established the 

Lowry Economic Recovery Project (LERP), a 40-member advisory committee 

charged with reuse planning. 

Between 1991 and 1993, LERP embarked on an intensive 18-month planning process. Representatives from the community served on committees 

focused on transportation, housing, and economic development issues. There 

was no shortage of community participation during the thousands of hours 

of public meetings. Many nearby residents from the historic neighborhoods 

surrounding the base had never been behind the fence and on the base. They 

were eager to see redevelopment that would add character, amenities, and 

value to the existing neighborhoods. 

At the same time, LERP ensured that its congressional delegation was able 

to intervene on its behalf with any federal property issues. LERP was able to 

raise money by hiring a property management group to lease 800 homes on 

the base. In the longer term, this funding served as collateral for larger infrastructure loans.

When the Air Force officially closed its 

operations in September 1994, LERP already 

had completed the reuse plan. According to the 

LRA, Lowry was the first base ever to have a 

reuse plan in place before it closed. Many have 

attributed the successful redevelopment to this 

early planning. The plan called for 4,500 homes, 

2 million square feet of commercial space, 

schools, and 800 acres of parks and recreational 

amenities. In particular, the plan called for development guided by several principles: 

 To blend with the surrounding neighborhoods 

and build upon their strengths; 

”I chose to live 

in Lowry because 

it allowed me to 

live in a community

that has retail and 

recreational services 

within walking 

distance of residential.“

Ken Gordon, Colorado State Senatorxxvii

Case Study

The conditions at Lowry Air Force Base before redevelopment.
36

 To reflect a diversity of home styles and price points; 

 To be pedestrian friendly; and 

 To provide easy access to parks, schools, and businesses.

By 1994, LERP dissolved, and the Lowry Redevelopment Authority (LRA) 

was formed to implement the plan. The LRA was set up so that it could issue 

revenue bonds to fund infrastructure improvements, which was one of the first 

steps to encourage investors to look at the property. Redevelopment progressed 

in stages, with the LRA beginning residential construction in areas without 

environmental contamination. To ensure high-quality construction and design, 

Lowry established architectural design guidelines reflecting Denver’s urban 

architecture. The Southwest Neighborhood, with 650 single-family homes and 

townhouses, opened with great fanfare at a 1998 “Parade of Homes” event. As 

the LRA Deputy Director Montgomery Force noted, “This event, like no other, 

launched Lowry as a desirable place to live.”xxviii

The employment, educational, commercial, and other residential projects 

quickly followed suit. Building on its legacy in education as an Air Force training 

center, Lowry currently is home to three early childhood centers, five primary 

schools, a private high school, and two adult learning institutions. 

The reuse plan sought to diversify commercial properties by constructing small 

and large office spaces and reusing historic structures. Employers range from 

financial services to medical office firms. By 2003, Lowry had 89 

employers and 5,947 employees on site.xxix Lowry has been able 

to sell itself to employers because of the amenities within walking distance (restaurants, parks, and retail) and the proximity of 

the site to employee housing and schools. The town center is 

the retail showcase for Lowry. It has more than 40 shops, including a full-service grocery store, and is designed so that employees and residents can walk to it. Several apartment properties 

are adjacent to the center, helping to create a lively atmosphere. 

Lowry retained many of the distinctive and historic 

features from the base. For example, two of the massive 

hangars were preserved and now serve as the Wings Over 

the Rockies Air and Space Museum. Many of the officers’ 

quarters have been redeveloped as high-end housing, while the enormous, 

1,000-man barracks building has become apartments for a senior living facility. 

The original steam plant has been redeveloped into the Power House Lofts and, 

on the parade grounds, loft homes have been constructed on Officers’ Row. 

During the reuse planning, Lowry promised residents a wide spectrum 

of housing choices. Currently, the site has approximately 3,000 homes and 

apartments ranging in price from $115,000 to $2 million. To ensure that 

”Our employees 

have several 

lunch options at the 

Town Center. In addition, if our employees 

want to get outside and 

exercise during lunch or 

after work, they’ve got 

countless options. This 

move has been good 

for our company and for 

employee morale.“

Jeff Tetrick, employee advocate, Pinnacol 

Assurance, a 535-employee companyxxx

Trails connect homes to parks, libraries, and other amenities.
37

homes would be available to moderate- and low-income residents, the LRA 

created the Lowry Community Land Trust (LCLT) to manage the sale of 

up to 300 affordably priced homes. LCLT owns the land, while the homeowner 

owns the home. Thus, the homeowner builds equity in the house, but LCLT’s 

land ownership keeps the resale price lower so that the house remains affordable in the future. Despite these efforts, Lowry has struggled with implementing the homeless housing provisions required under federal BRAC law. 

Following a lawsuit brought by homeless-assistance providers in 1999, the 

LRA built two mixed-income apartment buildings that will house the homeless, along with providing market-rate and affordably priced units. 

Sidewalks line every street in Lowry, and a trail system connects residents 

and visitors to parks, the town center, and the popular neighborhood library. 

Lowry also provides residents with real-time transit information and bike parking and storage to encourage alternatives to automobile travel. 

Lowry’s redevelopment has been a success for its residents, for the cities 

of Aurora and Denver, and for the region as a whole. Between 2003 and 2005, 

home values at Lowry increased an average of 9.42 percent, outperforming 

Denver’s median increase of 2.7 percent.xxxi Lowry employees have created a 

net economic benefit to the city and county of Denver of $1.4 billion, including 

wages, retail sales, and purchases. Lowry residents have generated $188 million to the city and county of Denver through spending and sales and property 

taxes. The LRA estimates that between 1994 and 2003, the entire redevelopment created a $4 billion gross economic impact and created a tax base where 

there was none previously. Extensive community involvement, thoughtful 

attention to design principles, and neighborhoods with lasting amenities have 

ensured Lowry’s success. 

Web site: www.lowry.org.

”The renovated buildings, recycled runways, 

and other elements 

anchor residents to 

Lowry’s heritage, while 

we build a new legacy 

for the future. The 

Lowry Redevelopment 

Authority and other 

entities have worked 

hard to preserve the 

sense of place that 

Lowry has always 

possessed.“

Amy Ford, neighborhood leaderxxxii

Lowry is just a short distance from downtown 

Denver.

Year base closed: 1994

Year construction started: 1996

Year first homes were occupied: 1998

Year of completion: 2009

Acreage: 1,866 (800 acres of open space)

Number of homes: 4,500 (projected)

Commercial and retail space: 3.8 million square feet

Residents: 10,000 (projected)

Jobs: 7,000 (projected)

Total economic benefit (1994–2003): $4 billion

Appendix: Resources

 Dawson, Yvonne. Organizing 

Your Planning Effort: The First 

Steps in Installation Redevelopment. National Association of 

Installation Developers. Infobrief. 

May 2005. Available at www.

defensecommunities.org/

Planning_LRA.pdf.

 Herberghs, Todd. Understanding 

Base Realignment: What Communities Should Know First. 

National Association of Installation Developers. Infobrief. May 

2005. Available at www.

defensecommunities.org/

InfoBrief_Realignment.pdf.

 NAID and ECS, Inc. Environmental Insurance and BRAC Communities: Building a Successful 

Partnership. 2001. Available 

at www.defensecommunities.

org/ResourceCenter/

Environmental_Insurance.pdf.

International City/County Management Association (www.icma.org):

Services and resources, including 

technical and peer assistance, for 

local governments. Publications 

include:

 McMillen, Jacen, and Daniel Pickett. ICMA Base Reuse 

Handbook: A Navigational Guide 

for Local Governments, Second 

Edition. International City/County 

Management Association. 2002.

 Smart Growth Issue Summary: 

Military Encroachment and Base 

Reuse. March 2005. Available at 

www.icma.org/upload/

library/2005-05/{27100F1D-6291

-411F-8883-089488C11AD3}.pdf.

 Baseline Newsletter.

National Governors Association (www.nga.org): Resources 

aimed at state-level officials. 

Publications include:

 “The Redevelopment of 

Former Military Installations” 

fact sheet. May 2005. Available at www.nga.org/Files/pdf/

0505BRACStateFS.pdf.

Base closure

Federal agencies

U.S. Department of Commerce, 

Economic Development Administration (www.eda.gov/Research/

DefenseConversion.xml): Information and federal resources to assist 

communities with BRAC-related 

defense conversions.

U.S. Department of Defense:

Information on Base Realignment and Closure (BRAC) for 2005 

(www.defenselink.mil/brac). For 

information on prior BRAC rounds, 

see www.defenselink.mil/brac/

priorbracs.html. 

Office of Economic Adjustment 

(www.oea.gov): Manages and 

directs the Defense Economic Adjustment Program and coordinates 

the involvement of other federal 

agencies to provide resources 

for communities affected by DoD 

program changes. Publications on 

website include:

 Responding to Change: Communities & BRAC. Available at 

www.oea.gov/oeaweb.nsf/

LIBbyTitle?readform.

 California Military Base Reuse.

Department of Toxic Substances Control, CAL EPA. Available 

at www.oea.gov/OEAWeb.

nsf/DB074580440F7293852570

1500417E70/$File/eac.pdf

 From Barracks to Business. MIT 

Military Base Redevelopment 

Project. March 2000. Available at 

www.eda.gov/Research/

ResearchReports.xml.

 Use of Master Developers in 

Implementing Military Base 

Reuse Plans. Economic & Planning Systems, Inc. March 1999.

 Economics of BRAC Sites. June 

2005. 

 Early Transfer Authority: A Guide 

to Using ETA to Dispose of 

Surplus Property. October 2005. 

President’s Economic Adjustment 

Committee (EAC): Committee of 

22 federal agencies that support 

BRAC-related activities through 

technical assistance and financial 

resources for affected communities. OEA coordinates resources 

available via the EAC. A description of the EAC is available at 

www.oea.gov/OEAWeb.nsf/

7B2D6546FA4B85256E83004488F2/

$File/eac.pdf.

U.S. Department of Labor, Employment and Training Administration 

(www.doleta.gov/BRAC and www.

brac-coach.org): Tools and services for BRAC-affected workers 

and communities. 

U.S. Environmental Protection 

Agency, Federal Facilities Restoration & Reuse Office (www.epa.

gov/fedfac): Information on environmental contamination, cleanup, 

and reuse for military installations 

being addressed by EPA.

Organizations

Association of Defense Communities (formerly National Association 

of Installation Developers) (www.

naid.org): Resources for active and 

closed military base communities. 

Publications include:

 The Community Base Reuse 

Planning Process: A Layman’s 

Guide. National Association of 

Installation Developers. 

NAIDinfoseries. February 2004. 

Available at www.

defensecommunities.org/

ResourceCenter/Base_Reuse.pdf.

39
Publications

Defense Environmental Network 

& Information Exchange. “Using 

Environmental Insurance in DoD 

Property Transfers: A New Tool 

for Managing Cleanup Risk.” April 

2001. Available at https://www.

denix.osd.mil/denix/Public/ESPrograms/Cleanup/ei_factsheet.pdf.

General 

information 

about growth 

and development 

patterns

Organizations

U.S. Environmental Protection 

Agency (www.epa.gov/

smartgrowth): Offers research, 

publications, tools, a policy 

database, and other resources. 

Particularly useful are Getting to 

Smart Growth, Volumes I and II, 

with 100 policies in each volume 

to help communities improve 

the quality of their development. 

Also available is Protecting Water 

Resources with Smart Growth, a 

book of 75 policies to protect water 

quality while continuing to grow. 

See EPA’s brownfields site (www.

epa.gov/swerosps/bf/index.html) 

for information about redeveloping contaminated sites. 

Smart Growth Online (www.

smartgrowth.org): A service of the 

Smart Growth Network, a coalition 

of more than 35 organizations, 

including environmental groups, 

historic preservation organizations, professional organizations, 

developers, real estate interests, 

and local and state government 

entities, that work together to encourage development that benefits 

the economy, community, public 

health, and the environment. 

Affordable Housing Design 

Advisor (www.designadvisor.org):

Demonstrates that moderately 

priced homes can look just like 

market-priced ones. It has examples and practical advice. 

U.S. Green Building Council, in 

partnership with the Congress for 

the New Urbanism and the Natural 

Resources Defense Council, is 

developing a LEED (Leadership in 

Energy and Environmental Design) standard for Neighborhood 

Developments (LEED-ND). Currently 

in the preliminary draft stage, this 

rating system details the design, site 

plan, and other components that 

qualify a project as smart growth. 

The certification program is expected to launch in 2007. Available 

in draft at www.usgbc.org/DisplayPage.aspx?CMSPageID=148. 

Publications

The Smart Growth Shareware 

CD-ROM (Smart Growth America, 

2004) compiles a wide range of 

smart growth resources, including 

publications, articles, fact sheets, 

and Web links to more than 100 

resources. It is available at www.

smartgrowthamerica.org.

Smart Growth Network and 

National Neighborhood Coalition. 

“Affordable Housing and Smart 

Growth: Making the Connection.” 

2001. Available at www.epa.gov/

smartgrowth/pdf/epa_ah_sg.pdf.

Visioning 

resources

Organizations

The Tampa Bay Regional Planning 

Council assists cities and towns 

with community visions. Its Web 

site contains several completed 

community visions. See www.

tbrpc.org/livable/cvt.htm.

The Charlottesville, VA, area 

developed a vision for the city 

and three surrounding counties. 

The Thomas Jefferson Planning 

District Commission Web site describes the process and outcomes. 

See www.tjpdc.org/community/

epi.asp.

Publications

The Center for Rural Pennsylvania. 

Planning for the Future: A Handbook on Community Visioning. 

Second Edition. 2000. Available at 

www.ruralpa.org/visioning.pdf.

Green, Gary, et al. Building Our 

Future: A Guide to Community 

Visioning. University of Wisconsin Cooperative Extension. 2000. 

Available at http://cecommerce.

uwex.edu/pdfs/G3708.pdf. 

The Planning Center. Growth 

Visioning for Sustaining a Livable 

Region: Visioning Design Process.

Southern California Association 

of Governments. 2001. Available 

at www.scag.ca.gov/livable/download/pdf/FULLREPORT.pdf. 

Community 

involvement 

tools

Organizations

The National Charrette Institute

(www.charretteinstitute.org) offers 

training in organizing charrettes 

and other public-engagement 

processes. 

PlaceMatters.com (www.

placematters.com) offers tools, 

techniques, and case studies to 

help communities undertake 

vision-centered place-based 

planning, civic engagement, and 

community design and decision 

making. 

U.S. EPA offers resources for 

concerned citizens (www.epa.

gov/epahome/Citizen.html), including information on environmental 

issues and tools to help people 

become involved and make a difference in their communities.

Publications

Boyd, Susan, and Roy Chan. 

Placemaking: Tools for Community Action. Fall 2002. Available at 

www.sustainable.org.

Goldberg, David. Choosing Our 

Community’s Future: A Citizen’s 

Guide to Getting the Most Out of 

New Development. Smart Growth 

America. 2005. Available at www.

smartgrowthamerica.org. 

Local Government Commission. 

Neighborhood-Scale Planning 

Tools to Create Active, Livable 

Communities. No date. Available 

at www.lgc.org/freepub/PDF/

Land_Use/fact_sheets/

neighborhood_planning.pdf.

40
i PriceWaterhouseCoopers and Urban Land Institute. “Emerging Trends in Real Estate—2005.” New York, NY. p. 19.

ii See, for example: 

Burchell, Robert, et al. The Costs of Sprawl—Revisited. TCRP Report 39, Transportation Research Board. 1998. 

Burchell, Robert W., and Mukherji, Sahan. “Conventional Development Versus Managed Growth: The Costs of 

Sprawl.” American Journal of Public Health, Vol. 93, No. 9. Sept. 2003. pp. 1534-1540. 

Muro, Mark, and Puentes, Robert. Investing In A Better Future: A Review of the Fiscal and Competitive 

Advantages of Smarter Growth Development Patterns. Brookings Institution. 2004.

ii

 Office of Economic Adjustment. Renaissance: New Jobs, New Uses of Space and Resources, New Life for 

Former Military Bases. 2002. Available at www.defenselink.mil/brac/docs/oeabro02.pdf. 

iii Title 42 USC Section 9620. Also known as Section 120 of the Comprehensive Environmental Response, 

Liability, and Compensation Act of 1980 (CERCLA), as amended (the federal Superfund law).

iv Title 42 USC Section 9620. Also known as CERCLA Section 120 (h) (3).

v Boese, Lynn. “Fort Benjamin Harrison” in Case Studies in Base Conversion, ed. John E. Lynch. National 

Association of Installation Developers. July 2002.

vi The Presidio Trust. “Presidio-based Employee Housing Programs.” Available at www.presidio.gov/Leasing/

ResidentialLeasing/LiveWorkPrograms/default.htm. 

vii Simon, Jeffrey A. “Lessons for Hanscom.” Boston Globe. April 18, 2005.

viii Association of Defense Communities. Community Base Reuse Planning Process: A Layman’s Guide. 2004.

ix Anderson, John. “The Plan Background and Current Status.” Fall 2002. Available at www.eastgarrison.com/

wwwroot/documents/articles529.html.

x For more information on Smart Growth INDEX, see www.epa.gov/smartgrowth/topics/sg_index.htm.

xi Seymour, Craig, and Jeff Donohoe. “Financial Implications of the Initial Base Reuse Plan.” The Community 

Base Reuse Planning Process: A Layman’s Guide. NAID infoseries. February 2004. pp. 44-48.

xii Schneider, Rob. “Base closings brought changes; Military facilities targeted in ‘90s are now residential, business and 

recreational areas.” Indianapolis Star. May 19, 2002. Available at www.dinfosalum.org/dinfos/pages/article.htm.

xiii City of Orlando. 2005 Entry Package for the National Award for Smart Growth Achievement.

xiv Haner-Dorr, Noelle. “The Good, the Bad, the Beef with Baldwin.” Orlando Business Journal. Nov. 16, 2001.

xv Press release. “Commercial Land in Sparse Supply at Baldwin Park—Neighborhood Offices Almost Sold Out.” 

Baldwin Park Development Company. May 4, 2005. Available at www.baldwinparkfl.com/web/pressreleases.

asp?NEWS_ID=55.

xvi City of Orlando. 2005 Entry Package for the National Award for Smart Growth Achievement.

xvii Krueger, Jill. “Baldwin Park Spurs Redevelopment, Growth.” Orlando Business Journal. Oct. 1, 2004.

xviii Krueger, Jill. “Cleaning Up.” Orlando Business Journal. April 1, 2005.

xix Krueger, Jill. “Developer Names New Community Baldwin Park.” Orlando Business Journal. June 5, 2001.

xx City of Orlando. 2005 Entry Package for the National Award for Smart Growth Achievement.

Endnotes

41
xxi City of San Diego. “Overview: History of the Naval Training Center.” Available at www.sandiego.gov/ntc/overview/history.shtml.

xxii Liberty Station Web site. Available at www.libertystation.com/about/faq.html. 

xxiii Press release. “McMillin Gets Green Light to Build NTC Park.” Liberty Station. May 26, 2005. Available at www.

libertystation.com/about/press-releases/pr_5-26-2005.html.

xxiv San Diego requires redevelopment areas to reserve 15 percent of homes for people of low and moderate incomes, or else provide twice that amount of affordable housing elsewhere. Liberty Station contains no affordably priced homes, so the redevelopment agency must set aside tax revenue to provide housing elsewhere in 

the city to people of low and moderate incomes (www.sandiego.gov/ntc/housing/affordable.shtml).

xxv For more information on the City of Villages plan, see www.sandiego.gov/cityofvillages.

xxvi Portell, Hilarie. “Marketing a Closed Military Base: If You Build It, We May Come.” Lowry 101 Mobile Workshop 

manual at National Association of Installation Developers/An Association of Defense Communities conference. 

June 4, 2005.

xxvii Lowry Redevelopment Authority. “Lowry 10 Years in the Making: A Report to the Community.” 2004.

xxviii Force, Montgomery. “Lowry Air Force Base,” in Case Studies in Base Conversion. National Association of 

Installation Developers. July 2002. 

xxix Lowry Redevelopment Authority. “Lowry 10 Years in the Making: A Report to the Community.” 2004.

xxx Lowry Redevelopment Authority. “Lowry 10 Years in the Making: A Report to the Community.” 2004.

xxxi Lowry Redevelopment Authority. “Re:Developments Newsletter.” May 2005.

xxxii Lowry Redevelopment Authority. “Lowry 10 Years in the Making: A Report to the Community.” 2004.

Endnotes

42
43

Photo Credits

Front Cover: Photo collage of Baldwin Park. Top photo, U.S. EPA; middle and bottom photos, Courtesy of Baldwin

Park Development Company. 

Page 2: Lowry Redevelopment Authority

Page 3: Rendering by Tom Laging

Page 4: © Brenda Tharp

Page 5: Village of Glenview, Illinois and Samuels Architectural Photography

Page 6: Warren Patterson Photography

Page 8: Dave Harrison

Page 10: Courtesy of Baldwin Park Development Company

Page 12: top: © Brenda Tharp

Page 12: Fitzsimons Redevelopment Authority

Page 13: top right: Warren Patterson Photography

Page 13: bottom left: Marcus Walsh, New Hampshire Fish and Game Department

Page 14: top right: Fort Benjamin Harrison Reuse Authority

Page 14: bottom left: U.S. EPA

Page 15: Cameron Station Homeowners Association

Page 16: top left: Village of Glenview, Illinois and Samuels Architectural Photography

Page 16: middle right: Tricia Bruno

Page 17: From the Village Center Plan, used with permission

Page 18: Courtesy of Baldwin Park Development Company

Page 19: U.S. EPA

Page 21: Village of Glenview, Illinois and Samuels Architectural Photography

Page 22: From the Village Center Plan, used with permission

Page 23: Fort Benjamin Harrison Reuse Authority

Page 24: Fort Benjamin Harrison Reuse Authority

Page 25: From the Village Center Plan, used with permission

Page 26: Debbie Cirillo 

Pages 27 and 28: Debi Harbin

Page 29, top: Doug Scaletta

Page 29, bottom: Judy Hodge

Page 30, top: San Diego Historical Society

Page 30, bottom: U.S. EPA

Page 31: The Corky McMillin Companies

Pages 32-33: U.S. EPA

Pages 34-37: Lowry Redevelopment Authority

Page 38: Baldwin Park. Doug Scaletta


United States

Environmental Protection Agency

(1807-T)

Washington, DC 20460

Official Business

Penalty for Private Use $300

EPA 231-R-06-002

January 2006

www.epa.gov/smartgrowth

Recycled/Recyclable–Printed with vegetable oil based inks on 100% (minimum 50% postconsumer) recycled paper.