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Assessment of BRAC 133 Final Environmental Assessment of July 2008 and Transportation Management Plan of July 2010 (Report No

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Assessment of BRAC 133 Final Environmental Assessment of July 2008 and Transportation Management Plan of July 2010 (Report No Additional Information The Department of Defense Office of the Deputy Inspector General for Policy and Oversight, prepared this report. If you have questions, contact the signer of the report. Suggestions for Assessments To suggest ideas for or to request future reviews, contact the Office of the Deputy Inspector General for Policy and Oversight at (703) 602-1017 (DSN 664-1017) or fax (703) 604-9808. Ideas and requests can also be mailed to: Office of the Deputy Inspector General for Policy and Oversight Department of Defense Inspector General 400 Army Navy Drive (Room 1011) Arlington, VA 22202-4704 INSPECTOR GENERAL DEPARTMENT OF DEFENSE 400 ARMY NAVY DRIVE ARLINGTON, VIRGINIA 22202-4704 April 20, 2011 MEMORANDUM FOR AUDITOR GENERAL, DEPARTMENT OF THE ARMY SUBJECT: Assessment of BRAC 133 Final Environmental Assessment of July 2008 and Transportation Management Plan of July 2010 (Report No. D-2011-TAD-001) On October 13, 2010, the DoD IG Technical Assessment Directorate initiated a detailed independent engineering assessment of the sufficiency of the Army's Final Environmental Assessment Implementation of 2005 Base Realignment and Closure Recommendation 133, dated July 2008 (BRAC 133 EA), and the Transportation Management Plan for BRAC 133 at the Mark Center, dated July 2010 (BRAC 133 TMP). The assessment was undertaken in response to a requirement of the Ike Skelton National Defense Authorization Act for Fiscal Year 2011, Section 2704, "Transportation Plan for BRAC 133 Project under Fort Belvoir, Virginia, BRAC Initiative," (Public Law 111-383). The Act directed that the DoD IG “submit to the congressional defense committees a report evaluating the sufficiency and coordination conducted in completing the requisite environmental studies associated with the site selection of the BRAC 133 project.” The assessment was contracted to the engineering firm Acelsior, Inc. and its subcontractor, Wight & Company, utilizing their specialized experience in environmental and traffic engineering. We issued a draft report, considered your comments, and are releasing our final findings, recommendations, and report. As reported in the February 24, 2011 draft, we determined that the proposed traffic mitigations in the BRAC 133 EA may not be sufficient to support the Finding of No Significant Impact (FNSI) and recommended that the Army perform a reassessment of the transportation effects, including a traffic impact analysis and monitoring program. The Army responded to our draft stating that they do not intend to perform any new traffic analyses because recent studies sufficiently support the suggested improvements. However, we found that the recent studies were inadequate to support the FNSI and are standing by our recommendation. We also found that the 2010 BRAC 133 TMP did not include or sufficiently address several critical travel demand management strategies and recommended that that the Army revise and update the BRAC 133 TMP and conduct a more technically robust, standalone traffic impact analysis. The Army agreed to revise the TMP; but did not agree to conduct a more technically robust traffic impact analysis, stating that more recent traffic studies were sufficient. However, the recent traffic studies did not adequately address existing and projected peak hour traffic volumes; appropriate site variables; and effects of BRAC 133 traffic on additional intersections and interchanges beyond the narrowly defined BRAC 133 EA and/or TMP study limits. Therefore, we are standing by our recommendations. Table of Contents Page No. Attachment 1 1 Office of Inspector General Findings, Recommendations, Summaries of Army Responses, and Responses to the Department of the Army’s Comments Attachment 2 11 Response to Department of Defense Inspector General (DoD IG) Draft Report of the Independent Engineering Assessment of the Transportation Management Plan and the Final Environmental Assessment Implementation of BRAC 133 Attachment 3 21 The Acelsior Report: Independent Professional Engineering Assessment of Final Environmental Assessment, dated July 2008, and Transportation Management Plan, dated July 2010, for BRAC 133 at Mark Center iii Attachment 1 Office of the Inspector General Findings, Recommendations, Summaries of Army Responses, and Responses to the Department of the Army’s Comments 1 This page intentionally left blank 2 Office of Inspector General Findings, Recommendations, Summaries of Army Responses, and Responses to the Department of the Army’s Comments Finding 1 The existing traffic conditions and projections reported in the July 2010 BRAC 133 TMP show greater congestion than predicted in the July 2008 BRAC 133 EA. The BRAC 133 EA used historical traffic data and traffic counts in 2007 and 2008 to describe the existing conditions as well as those anticipated in 2011. Based upon the data, the BRAC 133 EA assumed no change in existing or baseline traffic conditions and volume (without BRAC 133) from 2008 to 2011. When a change in project conditions occurs, such as the traffic congestion increase reported in the 2010 BRAC 133 TMP, then 32 Code of Federal Regulations 651.5(g) requires the Army to reassess the project conditions and their associated environmental effects. The BRAC 133 EA has not been supplemented or reassessed to reflect the documented changes in the projected traffic conditions. Therefore, the proposed traffic mitigations in the BRAC 133 EA may not be sufficient to support the BRAC 133 EA Finding of No Significant Impact (FNSI) conclusion of "long-term negligible to minor, but not significant adverse effects" on transportation. Army Response to Finding 1 The Army non-concurred with Finding 1. The Army stated, “We acknowledge that the TMP and other studies have shown some increase in traffic volumes and more traffic congestion than the EA analysis at some locations.” However, the Army further stated that “the increased current traffic is not reflective of an overall trend, but rather, reflective of local conditions related to the construction workforce.” Additionally, the Army stated that the TMP traffic analysis is “an integral part of the open and interactive process that has been ongoing throughout the project to reassess traffic conditions and mitigations proposed for the project.” The Army referred to the four previous BRAC 133-related traffic studies: 1) the April 2009 study prepared by Parsons Brinkerhoff for the Virginia Department of Transportation (VDOT), 2) the November 2009 study by VHB, 3) the December 2009 study prepared by GEC, and 4) the January 2011 study prepared by GEC. Our Response The Acelsior report indicated that the existing traffic conditions and projections reported in the July 2010 BRAC 133 TMP show greater congestion than predicted in the July 2008 BRAC 133 EA. The four reports referred to by the Army revealed no substantiation of the Army’s claim that traffic increase is caused by the construction workforce. However, the reports did present significantly greater traffic congestions than predicted in the July 2008 BRAC 133 EA. Accordingly, we request that the Army reconsider its position and provide comments on our final finding. 3 Recommendation 1 We recommend that the Army perform a reassessment of the transportation effects to confirm the FNSI or determine whether additional traffic mitigations are required to maintain the FNSI. The reassessment should be appropriately documented in either a Record of Environmental Consideration or in a Supplemental Environment Assessment. According to Acelsior report, the reassessment should contain a traffic impact analysis and monitoring program, to include a cumulative effects analysis of transportation for past, present, and future traffic conditions; and to confirm the sufficiency of the transportation mitigation measures outlined in the BRAC 133 EA. This reassessment should also be coordinated with all concerned parties to include VDOT, nearby tenants, and local residents. Army Response to Recommendation 1 The Army partially concurred with Recommendation 1. The Army agreed to “perform an assessment to ascertain the adequacy of the 2008 EA in light of this new traffic information to determine whether supplementation is required.” The Army also agreed to “document its findings in a Record of Environmental Consideration (REC) or in a Supplemental Environmental Assessment if the conclusions reached during the REC indicate that supplementation is required.” Our Response Although the Army partially concurred with our recommendation and stated that they would perform an assessment to ascertain the adequacy of the 2008 EA and potentially file a REC or Supplemental Environmental Assessment, their response is nonresponsive to the recommendation. The Army’s response is nonresponsive because they stated in recommendation 2B that they would not conduct any new traffic analyses. According to the Acelsior report, the FNSI cannot be revalidated without a new Traffic Impact Analysis. Further, the four traffic studies mentioned by the Army do not address our concerns because they reference data from prior reports dating as far back as 2008. Furthermore, the Virginia Department of Transportation, Guidelines for Traffic Impact Analysis, Regulations 24VAC30-155 (p. 61, 62 required elements of a traffic impact analysis), set a standard for the affected area radius to be up to 2 miles. The reports did not contain any data for other intersections within a one to two mile area other then the seven intersections identified in the report. Accordingly, we request that the Army
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