Oversight Hearing - State of the Civil Works Program

House Subcommittee on Energy and Water Development, and Related Agencies

2025-02-25

Loading video...

Source: Congress.gov

Summary

The hearing convenes to discuss the United States Army Corps of Engineers' (USACE) civil works program with Lieutenant General Butch Graham, Chief of Engineers, and other division commanders.[ 00:10:31-00:11:00 ] The committee expresses gratitude for the Corps' vital service to the nation, acknowledging its profound impact on economic competitiveness, public safety, and infrastructure development.[ 00:11:06-00:11:24 ]

Themes

Challenges in Project Execution

Committee members voiced significant concerns regarding persistent issues with cost overruns, schedule delays, and engineering inadequacies in USACE projects.[ 00:11:59-00:12:29 ]

Citation requires full transcript

Sign in to continue

Sign in
 Chairman Fleischmann highlighted the Chickamauga Lock project as an example, noting repeated funding requests and design issues that require going "back to the drawing board" mid-construction.[ 00:12:35-00:13:07 ]

Citation requires full transcript

Sign in to continue

Sign in
 General Graham conceded that the current 73% on-schedule rate is unacceptable, attributing shortfalls to both uncontrollable factors like inflation and labor shortages, and controllable factors. The Corps aims to improve by ensuring engineering is sufficiently mature (at least 35% complete) before authorization, improving project management with realistic schedules, and optimizing business practices. He emphasized a "go slow to go fast" approach, focusing on thorough planning during the feasibility stage.

Workforce and Industrial Base Issues

The discussion touched upon the Corps' internal workforce and the capacity of the private industrial base to handle large-scale projects.[ 00:28:50-00:29:15 ]

Citation requires full transcript

Sign in to continue

Sign in
 General Graham acknowledged a shrinking pool of contractors capable of undertaking multi-billion dollar projects and the challenge of attracting skilled engineers in a competitive labor market.[ 00:30:03-00:30:15 ]

Citation requires full transcript

Sign in to continue

Sign in
 To address this, the Corps is working to maximize competition, support small businesses, and consolidate specialized work within the organization to build expertise, such as centralizing design for locks and dams.[ 00:30:26-00:30:38 ]

Citation requires full transcript

Sign in to continue

Sign in

Environmental Compliance and Permitting Streamlining

Several members raised concerns about lengthy environmental compliance processes and permitting delays. Representative Cloud pointed out instances where environmental groups allegedly use legal challenges to indefinitely delay or kill projects. General Graham explained that meticulous adherence to environmental regulations, while seemingly slow, is ultimately faster than facing lawsuits that cause further delays. Brigadier General Hibner discussed the complexities of Section 404 Clean Water Act permitting, noting a state's ability to process permits more efficiently, though he clarified that this doesn't necessarily save the Corps money but shifts resources. Representative Maloy advocated for "permit by rule" and General Graham agreed on the need for faster, more efficient environmental decisions.

Political Interference in Water Management

A contentious point arose regarding alleged political interference in water management decisions. Representative Lee questioned a recent release of water from California dams, suggesting it was a "political stunt" by the previous administration that did not assist wildfire response and potentially worsened future water shortages. General Graham maintained that the Corps' actions were lawful, in compliance with water control manuals and authorities, and involved releasing excess flood storage water. He emphasized the Corps' commitment to statutory processes and compliance with all laws and executive orders, while acknowledging potential challenges to local coordination.

Importance of USACE Missions and Investments

The committee underscored the critical role of the USACE Civil Works program across the nation.[ 00:11:45-00:11:54 ]

Citation requires full transcript

Sign in to continue

Sign in
 The navigation program supports 98% of overseas trade, and flood risk management prevents $200 billion in damages annually. Members highlighted the increasing importance of the Corps' work in light of climate change and more frequent natural disasters. The Everglades restoration was cited as the largest ecosystem restoration program globally, requiring sustained federal investment due to its economic benefits and vital importance to Florida and the nation.[ 01:32:32-01:33:49 ]

Citation requires full transcript

Sign in to continue

Sign in

Tone of the Meeting

The tone of the meeting was largely respectful and appreciative towards the military officers and the Corps' overall mission, with members frequently thanking the witnesses for their service.[ 00:11:06-00:11:24 ] However, a strong undercurrent of frustration and concern was evident regarding chronic project delays, escalating costs, and bureaucratic inefficiencies.[ 00:11:59-00:12:29 ]

Citation requires full transcript

Sign in to continue

Sign in
 Committee members were assertive in seeking actionable plans and accountability for improvements.[ 00:24:33-00:24:36 ]

Citation requires full transcript

Sign in to continue

Sign in
 A point of contention arose with questions about potential political interference in water management decisions, leading to some direct and pointed exchanges.

Participants

Transcript

Good morning.  The hearing will come to order.  It's my pleasure today to welcome Lieutenant General Butch Graham, the Chief of Engineers and Commanding General of the United States Army Corps of Engineers to discuss the state of the civil works program.   Joining General Graham are Major General Mark C. Quander, Commanding General of the Great Lakes and Ohio River Division, Brigadier General Daniel Hibner, Commanding General of the South Atlantic Division, Colonel James J. Handura, Commander of the South Pacific Division, and Colonel George H. Walter,   commander of the Southwestern Division.  These division commanders have made themselves available to address project execution from a local and regional perspective.  Before I talk about my formal remarks, gentlemen, I want to thank each and every one of you all for what you do for our country, not only for the Army Corps of Engineers,   our great United States Army and service to our great nation.  It's with profound thanks   that we do this hearing today.  And as chairman, this subcommittee, and I would say our full committee, my dear friend Marcy Kappner from Ohio would probably agree with me.  We are civil, we are cordial.  When there are differences, we understand that.  But it's with the utmost respect that we have you before us here today.  And I say that as chairman of this full subcommittee.   Gentlemen, few federal programs have such a direct and immediate impact on the American people's daily lives as the Army Corps of Engineers Civil Works program.  The mission underpins America's economic competitiveness, promotes public safety, and protects trillions of dollars in private investment and economic activity.
Congress expects the Corps to address some of the nation's most   complex and high-profile challenges, and the Corps does tremendous work to deliver on this critical mission.  The Corps also faces many challenges inherent to government contracting.  We would all prefer to see federal construction projects delivered at the cost and speed of the private sector.   However, patterns have emerged in recent years that go beyond the regular course of business.  I continue to hear from my colleagues and stakeholders about projects of all sizes in different parts of the country and with little else in common, all facing similar issues and fact patterns.  The Chickamauga Lock in my district, the great third district of Tennessee, has experienced many of these same challenges, which we will have time to discuss later in the hearing.   Congress has provided record funding for the Corps in annual energy and water appropriation acts and tens of billions more in supplemental appropriations over much of the last decade.  We have funded several major construction projects to completion, some multiple times, only for the Corps to tell us they need more.   Projects are derailed due to inadequate engineering, requiring the Corps to go back to the drawing board in the middle of construction.  The Corps has all but abandoned design and engineering when studying projects to recommend for construction, leading chiefs of engineers to certify cost estimates and project plans based on concepts, not designs.  We are building the plane while we are flying it.   Meanwhile, we've heard from many core stakeholders about the need to modernize the core's contracting process.  Private industry would never procure complex infrastructure projects in the same way.
Contracting improvements alone can reduce uncertainty, improve affordability, and enhance engineering quality earlier in the life of a project.   Many project sponsors feel they have no choice but to plead with our friends on the authorizing committees for the federal government to put larger shares of these much larger bills.  I don't blame anyone who comes to that conclusion, but every time that cycle repeats, the choices facing subcommittee become more difficult, worsening the outlook for every project in America.   The Corps executes a no-fail mission, and there is always more to be done.  We need to finish what we start so that we can deliver for our constituents, and achieving those goals requires the Corps to define success and measure progress.   General Graham, sir, you are new in this role, and you certainly have your work cut out for you.  I greatly appreciate the attention that you've already given to these issues and the vision you laid out in your written testimony.  I look forward to today's discussion and working with you, sir, to promote a healthy and sustainable civil works program for the American people.  I will now turn to my friend and ranking member, Ms.  Kaptur, for her opening statement.
Thank you, Mr. Chairman.  It is such a great turnout this morning on both sides of the aisle here.  This is a wonderful committee, and I'm just thankful everyone is here, including our honored guests, the Corps of Engineers Civil Program, Civil Works Program.  And I want to thank you and all of those who work under your command for your dedication to the civil works of our country going back to close to our founding.   There aren't too many organizations that can say that.  And the American people thank you for your service, not just here in our country, but many times called upon around the world, as was my uncle, who served in the Engineers Corps during World War II at the Battle of the Bulge.   I want to thank my friend and colleague, Chair Fleischman, for holding this hearing.  While Congress is about a half a year late already and has still not finished our jobs for the fiscal year of 2025,   should have been done October, November, December, January, February, moving into March, half a year late.

Sign up for free to see the full transcript

Accounts help us prevent bots from abusing our site. Accounts are free and will allow you to access the full transcript.

Sign up