Congress

And heaven knows, they've got plenty to answer for on that score. That said, they aren't the only jerks at the dance, here--Congress is FAMOUS for pork barrelling like crazy--if it is in a powerful congressman's district, then it's "good" for the military, even if the military doesn't want or need it (see Trent Lott forcing stupid ships down the Navy's throat as an example--and those aren't cheap, either).

I think the Services pulling this "stunt" is a great wake-up call. All they really need to do is just pull out most of their personnel assets, hire some Barney Fifes to guard the gates, and mothball stuff--those congressmen will quickly figure out that the effect on their local economies will be worse if an installation just sits there and rots, with no people to contribute to the local economy, rather than bite the bullet and convert the installation to commercial purposes.