MARCH
10, 1998
STATEMENT
BY:
JOHN B. GOODMAN
Deputy Under Secretary of Defense
(Industrial Affairs and Installations)
BEFORE THE SUBCOMMITTEE ON
MILITARY CONSTRUCTION
OF THE HOUSE APPROPRIATIONS COMMITTEE
MARCH 12, 1998
&
BEFORE THE SUBCOMMITTEE ON
MILITARY INSTALLATIONS AND FACILITIES
OF THE HOUSE NATIONAL SECURITY COMMITTEE
INTRODUCTION
Mr. Chairman and distinguished members of the Subcommittee, thank you
for this opportunity to update you on the status of our Military Housing
Privatization
Initiative. Quality of life for our military personnel and their families
continues to be of utmost importance in attracting and retaining the
high quality personnel who make our armed services the envy of the
world. Secretary
Cohen's Defense Reform Initiative identifies housing as a critical element
of that quality of life and our housing privatization initiative is a
cornerstone of our efforts to improve living conditions for our personnel.
The Department of Defense has completed a successful second year in
the implementation of the Military Housing Privatization Initiative (MHPI).
During this year, we worked diligently to refine the most efficient uses
of the authorities provided by the Congress to improve the quality of
housing for our military families. This report describes the progress
made in the second year of this important initiative. It also discusses
how this initiative fits in the Department's overall housing goals and
describes the keys to future success.
DOD'S HOUSING PROBLEM
Last year,
the Department of Defense set a critical goal for the Military Services
to eliminate all inadequate
housing by 2010. The challenge is
significant: Approximately 200,000 of DoD's domestic housing units are
inadequate. Fixing this problem using traditional military construction
alone would cost as much as $20 billion and take over 30 years. To meet
our 2010 goal, the Military Services have begun to prepare detailed installation-by-installation
plans. These plans will describe the condition of the housing at each
installation and delineate how various tools and approaches – including
privatization – will be used collectively to meet the 2010 objective.
FY 1996 AUTHORITIES
The Military Housing Privatization Initiative legislation provides a
range of important authorities:
- Guarantees, both for loans and rental
occupancy
- Conveyance or lease of existing property and facilities
- Differential payments to supplement Service members housing allowances
- Investments, both limited partnerships and stock/bond ownership
- Direct Loans
These authorities are provided for a five year test period. They can
be used individually, or in combination.
PROJECTS COMPLETED
Naval Air Station Corpus Christi, Texas
In
May 1997, military families from Naval Station Ingleside, Naval Air Station
Kingsville and Naval Station Corpus
Christi started moving into
two new townhouse complexes. This project – a limited partnership
agreement with Landmark Organization Inc. of Austin, Texas – built
404 units of off-base family housing at a cost of approximately $30 million.
The Navy's total equity contribution is $9.5 million with the developer
financing the rest. (Spending the same amount of money using the traditional
government construction approach would have yielded one fourth the number
of units.) These complexes offer quality affordable rental housing with
amenities such as swimming pools, soccer and baseball fields, and basketball
courts. All units have been completed with sailors being given first
preference to rent at specified rates which are below that of comparable
housing in the local community. At the end of the ten year partnership,
the Navy will receive one-third of the net value and will be repaid its
equity share. The authorities allow the money to be redeposited into
the Family Housing Improvement Fund (FHIF) for use on future privatization
projects.
Naval Station Everett, Washington
A second Navy Limited Partnership project was completed in the summer
of 1997. The units are now occupied by enlisted personnel from Naval
Station Everett. For this project, the Navy contributed $5.9 million
to facilitate the development of approximately 185 units of off-base
family housing. The developer provided the remainder of the total project
cost of approximately $19 million. As is the case with the Corpus Christi
project, sailors are given first preference to rent at rates that are
set below that of comparable housing in the community and the Navy's
share of the equity and proceeds is available for future projects at
the end of the ten year partnership. An added feature of this project
is that the military occupants have the option to purchase their units,
at below market prices, starting in the last five years of the partnership.
PROJECTS IN PROCUREMENT
Fort Carson, Colorado
On February
10, 1998, the Department notified Congress of our intent to transfer
$15.82 million of family housing
construction funds into
the FHIF and to award the contract for the Army's project at Fort Carson.
This project is the first to use a number of our new authorities, including
a loan guarantee and transfer of existing government units. The developer
is responsible for the construction, maintenance and management of 840
new single and multifamily structures and the phased revitalization,
maintenance and management of the 1824 existing housing units on base
at Fort Carson – a total of over 2600 units. Rent for these units
is set at the soldier's housing allowance and will be paid to the developer
via an allotment. The developer will also maintain unoccupied and public
areas associated with the housing community; construct and maintain associated
new roads and infrastructure; and undertake any required reinvestments
or improvements in community areas, such as green areas, parks, picnic
areas, and day care centers. The Army will outlease land for both the
new and existing units and convey title to the existing structures. The
contract is set for a period of 50 years, with a renewable option of
25 years.
Lackland Air Force Base, Texas
The procurement for Lackland Air Force Base is in its final stages with
best and final offers expected in late March of 1998. This project requires
the developer to construct, manage, and maintain 420 family housing units
located on base. Rent for these units is set at the airman's housing
allowance and will be paid to the developer by an allotment. The installation
is offering to outlease 96 acres of land for a period of up to 50 years.
The request for proposals (RFP) also requires the developer to demolish
272 substandard housing units currently on a portion of the property
to be outleased. Additionally the RFP notes that the government is willing
to offer a limited loan guarantee, as well as a direct second mortgage.
This project is expected to provide the first use of our direct loan
authority.
REQUEST FOR PROPOSALS READY FOR ISSUE
Marine Corps Logistics Base (MCLB), Albany, Georgia
Notification was provided to Congress on January 5, 1998 of intent to
issue an RFP for a project at MCLB Albany. The successful offeror will
be required to construct, manage, and maintain approximately 155 family
housing units on base. This project does not have a family housing construction
appropriation and will be funded through the divestiture of 419 family
housing units which are located in an off base enclave called Boyett
Village. Proceeds of this divestiture will be used to leverage development
of the on base housing under a long term lease arrangement.
Marine Corps Base (MCB) Camp Pendleton, California
The Department of Defense expects to provide notification of intent
to issue an RFP for a project at Camp Pendleton this spring. This project
requires the private developer to construct, manage, and 204 new single
and multifamily housing structures. In addition, the developer will be
responsible for the phased renovations, maintenance and management of
512 existing housing units. All units will be on base in this project.
REQUEST FOR PROPOSALS UNDER DEVELOPMENT
Five more projects have been approved for RFP development
which is currently underway. Upon completion of the RFP, we will provide
notification to
Congress of our intent to issue RFP's for these projects. The locations
of these projects are listed below along with the number of housing units
expected to be privatized
Robins AFB, Georgia 760 units
Fort Hood, Texas 5825 units
Elmendorf AFB, Alaska 828 units
Fort Stewart, Georgia 3282 units
Fort Lewis, Washington 3956 units
PROGRAMMATIC ISSUES AND IMPROVEMENTS
Our work on housing privatization this past
year was affected by two key issues: budget scoring and loan/loan guarantee
documentation. For
the first six months of the year, we worked with the Office of Management
and Budget (OMB) to determine appropriate rules to score obligations
of the government incurred by using our new authorities. The Director
of OMB approved scoring guidelines in June that enable us to use our
new authorities and maximize the leveraging of our scarce Milcon funds.
Developing the loan and loan guarantee instruments for both the Ft. Carson
and Lackland projects proved very time consuming. In particular, the
Housing Revitalization Support Office (HRSO) had to work with the financial
community to translate the loan guarantee concepts into actual documents
that would receive favorable – i.e., investment grade -- financing.
Resolution of these two issues will now enable us to move more quickly
on the projects that follow. In addition, we completed a competition
for consultant support to the Housing Revitalization Support Office (HRSO)
so that it could increase its workload and bring creative new perspectives
to the program. The HRSO also continued to refine the comprehensive pro
forma used to help screen the financial viability of projects. Joint
HRSO and Military Service teams have now completed visits to over 30
potential privatization sites and evaluated their financial feasibility.
This process has markedly enhanced our understanding of how best to use
our authorities over a large spectrum of projects and geographic locations.
As with any complex program, the devil is in the details and we will
continue to resolve these issues as they arise and ensure that all lessons-learned
make the next projects easier and faster.
STATUS OF FUNDS
The Family Housing Improvement Fund was established in FY1996 with an
initial appropriation of $22 million. In FY1997, the Department received
a $25 million appropriation for the FHIF and a $5 million appropriation
for the Unaccompanied Housing Improvement Fund. In the first two years,
the Department used about $9 million for administrative costs including
contract support. In FY1998, we anticipate administrative costs of $7
million and have requested a $7 million appropriation to the FHIF for
HRSO administrative costs in FY1999. Additionally $9.5 million was used
to fund the Corpus Christi project, and another $760 thousand to fund
development of RFP's for the projects at Ft. Carson and MCLB Albany.
The primary method of funding projects continues to be transfer of existing
family housing construction funds into the Family Housing Improvement
Fund. The $5.9 million cash investment for the Naval Station Everett
limited partnership was funded in this manner. The statutory notification
and reporting requirements will provide the Congress oversight, at key
steps, as the Department increases the number of projects in the procurement
process.
MOVING THE PROGRAM FORWARD
While we continue to conduct aggressive outreach to the private sector,
we are also working to institute lessons learned from our first projects.
In February of this year, we convened a two day seminar with all key
participants of the Fort Carson privatization project attending. This
face-to-face interaction helped capture all the minute details needed
to provide lessons learned for our next projects. We have continued active
training programs to increase the knowledge of privatization and private
sector financing among all DoD personnel involved in housing privatization.
Combining lessons learned with increased
training, we expect to significantly reduce
the time and effort required to complete privatization projects. In
the two years since enactment
of this legislation, the Department has made significant progress in
establishing required policies and procedures. Equally important, we
have moved forward with a number of important projects – totaling
about 18,000 housing units. We are paying close attention to our current
projects to ensure effective implementation and expect to propose permanent
legislation next year.
CONCLUSION
In closing Mr. Chairman, thank you and your Subcommittee members for
giving me the time to discuss this important privatization initiative.
I look forward to working with you over the next year as we refine the
program and seek permanent legislation. I would be pleased to answer
any questions you may have.
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