GAO-07-227R Capitol Power Plant Utility Tunnels 

United States Government Accountability Office

Washington, DC 20548 

November 16, 2006 

The Honorable Wayne Allard 

Chairman 

The Honorable Richard Durbin 

Ranking Minority Member 

Subcommittee on the Legislative Branch 

Committee on Appropriations 

United States Senate 

The Honorable Jerry Lewis 

Chairman 

The Honorable David Obey 

Ranking Minority Member 

Committee on Appropriations 

House of Representatives 

Subject: Capitol Power Plant Utility Tunnels 

The Architect of the Capitol (AOC), through the Capitol Power Plant (CPP), operates 

five walkable utility tunnels1

 containing steam and chilled water pipes associated 

with serving the heating and cooling requirements of the U.S. Capitol and 23 

surrounding facilities. The tunnels also carry other utilities, such as fiber optic and 

telephone lines. The Office of Compliance (OOC), which is responsible for advancing 

safety, health, and workplace rights in the legislative branch, and the tunnel workers 

have raised concerns about health and safety issues in the tunnels. Specifically, in 

March 2006, the utility tunnel workers sent a letter to Congress complaining of unsafe 

working conditions in the tunnels, including falling concrete, asbestos, and extreme 

heat. 2 In February 2006, OOC filed a complaint against AOC concerning hazards in 

the tunnels, including falling concrete, an inadequate communication system for 

these confined spaces, and inadequate escape exits. According to OOC officials, 

these conditions had been previously brought to the attention of AOC by OOC 

inspectors as early as 1999. Following a reinspection in mid-2005, OOC determined 

that AOC had not made sufficient progress in addressing them and that conditions in 

the tunnels had deteriorated further. In addition, in January 2006, OOC issued 

citations for and asked AOC to address a potential asbestos hazard and heat stress 

 

1

The tunnels are not identified by name in this report for security reasons. 

2

On October 18, 2006, the utility tunnel workers filed a whistleblower complaint against AOC alleging 

that they were retaliated against after they informed Members of Congress about the conditions in the 

tunnels. 
conditions. In light of these concerns, you asked us to review the condition of the 

tunnels. Accordingly, we examined (1) the current condition of the tunnels, (2) 

AOC’s plan for making repairs and improvements to the tunnels, and (3) the 

responsiveness of AOC’s plan to the issues raised by OOC and the tunnel workers. 

To report on the condition of the tunnels, we reviewed various reports on the 

condition of the tunnels from 2000 to the present, viewed videotapes of the tunnels, 

hired a mechanical engineer to tour the tunnels, and interviewed tunnel workers and 

other AOC staff. To assess AOC’s plans for making repairs and improvements, we 

reviewed the August 31, 2006, Utility Tunnel Improvement Plan that AOC submitted 

to Congress and various projects that AOC initiated to implement this plan; 

interviewed AOC officials; and attended weekly AOC meetings at CPP on the repair 

efforts in the tunnels. Generally, it is our policy not to address issues in litigation. 

Thus, given the ongoing complaint and negotiations between OOC and AOC regarding 

the concerns identified in the tunnels, we did not address whether issues identified in 

the complaint or the actions taken by AOC complied with legal standards. To 

understand the concerns that had been raised and the status of the concerns, we 

interviewed the tunnel workers and officials from both AOC and OOC. We also 

compared the plan with the concerns that had been raised. Furthermore, in 

accordance with our policy, we did not address concerns the tunnel workers have 

raised in its recent whistleblower complaint.

This report is based on information gathered through October 2006, and AOC is 

continuing to work on solving the problems in the utility tunnels. We did not conduct 

an audit: We performed our work to assist Congress in considering the future needs 

of the Capitol Power Plant Utility Tunnel System. We requested comments on the 

draft of this letter from AOC and OOC. 

Results in Brief 

AOC has started to address problems in the tunnels, but their condition remains 

substantially unchanged—that is, the conditions OOC cited as hazardous remain. For 

example, AOC has installed supports in some areas of one tunnel to minimize the 

potential for falling concrete and has required individuals entering the tunnels to 

wear protective equipment and clothing to shield them from potential asbestos

exposure. In addition, AOC is working toward removing the delaminated concrete 

and cleaning the tunnels, so that the exhaust fans can be turned on to reduce the 

temperature in the tunnels.3

 An AOC contractor has completed assessments of three 

of the tunnels and determined that they are not in danger of collapse. The contractor 

is still assessing the two remaining tunnels and expects to complete these 

assessments by December 31, 2006. Most other AOC efforts are in the study, 

planning, or procurement stage. As a result, the potential for falling concrete, 

asbestos exposure, excessive heat, poor communications, and inadequate escape 

procedures continue to pose problems.4

 Progress in resolving the problems in the 

 3

Delaminating concrete is concrete that is separated from the steel reinforcing and is in danger of 

falling from the wall or ceiling. 4

The hot working conditions in the tunnels throughout the year are a result of the heat given off by the

steam pipes in an enclosed area. The heat is not related to seasonal changes in temperature. 

Page 2 GAO-07-227R Capitol Power Plant Utility Tunnels
tunnels has been hindered because the tunnel conditions that AOC and its 

contractors are trying to address make it difficult to work in the tunnels. 

AOC issued its Utility Tunnel Improvement Plan on August 31, 2006, as directed by 

the House Committee on Appropriations, but the plan is incomplete, in part because 

AOC has not completed its assessment of the tunnels. In a June 1, 2006, House 

report,5

 the House Committee on Appropriations directed AOC to provide to the 

committee “a plan and budget that strategically addresses long term repairs to the 

steam tunnels.” Combining the information it currently has on the condition of the 

tunnels, AOC categorized the tunnel projects into immediate and short-term repairs 

that it estimates will cost about $119 million over the next 6 years. AOC identified 

another $14.4 million in longer-range initiatives to mitigate the known problems in the 

tunnels. Such initiatives include conducting quarterly structural inspections and 

making necessary annual repairs. The plan does not contain an analysis or 

discussion of options for addressing the immediate and short-term needs of the 

tunnels, as called for in the House report. AOC does indicate in the plan that it will 

conduct an alternatives study to evaluate the long-term use of the existing tunnels 

and options for meeting the Capitol Hill Complex’s future utility distribution needs. 

AOC recognizes that the current plan does not fully respond to the questions raised in 

the committee’s report. According to AOC officials, AOC could not complete the 

work necessary to respond to all of the requested information in the time allotted. 

But without information on options and recommendations for addressing tunnel 

problems and future utility distribution needs, Congress does not get a full picture of 

the potential solutions to the tunnel problems and their costs. 

AOC and OOC are working cooperatively to resolve the health and safety concerns in 

the utility tunnels, but the slow progress of the work has left the tunnel workers 

frustrated. To settle OOC’s January 2006 citations and February 2006 complaint, AOC 

and OOC are exchanging proposals and discussing ongoing technical issues. OOC 

has been reviewing AOC’s utility improvement plan. While AOC’s plan covers the 

issues raised by the OOC and the tunnel workers, limited work has been completed to 

date and the workers have no clear picture of when the work will be done. To 

improve communication, AOC began holding weekly meetings with the tunnel shop 

workers in April 2006 to discuss tunnel issues and the actions being taken. 

Background 

CPP, which is managed by AOC, is located in Washington, D.C., at New Jersey and E 

Streets, Southeast. It is the central heating and cooling plant that provides steam, 

chilled water, or both, year-round for about 16 million square feet of space in 24 

facilities.6

Steam is used for comfort heating, heating domestic hot water, cooking, 

and humidification. Chilled water is used for comfort and equipment cooling. 

CPP consists of four main facilities: the steam plant, the East Refrigeration Plant, the 

West Refrigeration Plant, and administration buildings. The plant also includes a coal 

 5

H.R. Rep. No. 109-485, at 21-22 (2006). 6

CPP provides chilled water to 19 of the 24 facilities and steam to 24 facilities. Five of the buildings are

not part of the Capitol Hill Complex; however, they are served by CPP and are billed for services

provided. 

Page 3 GAO-07-227R Capitol Power Plant Utility Tunnels
yard south of the power plant. CPP’s distribution infrastructure consists of 

approximately 2-1/2 miles of walkable utility tunnels containing steam pipes, chilled 

water pipes, and other utility services, such as fiber optic and telephone lines for CPP 

customers. Access to the utility tunnels is provided through various manholes and 

tunnel entrances in buildings. In addition, some steam and chilled water pipes are 

buried in more than a half mile of covered trenches. Access to the buried utilities is 

through manholes. The walkable tunnels were built at various times—one in 1908, 

two in the 1930s, and two in the 1950s. 

In 2000, an AOC contractor reported that its study of the walkable utility tunnels 

indicated deterioration of the tunnel structure due to, among other things, aging and 

failure of the waterproofing system. According to the contractor, the deterioration 

was rapidly advancing in some sections and required immediate attention, and the 

tunnels posed a danger to worker safety, especially from delaminating concrete in the 

tunnel roofs that could fall without warning. On December 7, 2000, OOC’s General 

Counsel issued a citation for unabated hazards in the tunnels—falling concrete, an 

inadequate communication system, and inadequate escape exits from these confined 

spaces. In 2005, OOC inspected the tunnels and determined that AOC had not made 

sufficient progress in addressing the previously identified hazards; OOC also 

identified additional concerns. As a result, in January 2006, OOC’s General Counsel 

issued two more citations—one for an asbestos hazard and one for a heat stress 

hazard—and asked AOC to address them. In addition, on February 28, 2006, OOC’s 

General Counsel issued a complaint stating that AOC had not taken sufficient action 

to address the problems identified in the December 2000 citation. 

Since OOC’s initial citation in December 2000, AOC has reported taking some actions 

to address some of the problems in the tunnels, including the following: 

 

• In 2001, AOC contracted with the Federal Occupational Health (FOH) to 

assess the condition of asbestos in the entire CPP, including the tunnels.7

 FOH 

found that the asbestos in the tunnels was generally in good condition—that is 

it was not damaged or exposed.8

 

• In 2004, AOC replaced 600 feet of the roof in one tunnel in response to the 

2000 contractor’s report on tunnel conditions. 

• In 2004, AOC began another project to upgrade 15 tunnel entry and exit points. 

• In 2005, AOC removed asbestos from one of the tunnels.9

 

In addition, since 1999, AOC’s Construction Management Division has been working 

to identify and remove developing spalls10 and has recently increased its efforts to 

identify and remove any spalling concrete. 

 7

FOH is a component of the United States Public Health Service within the Department of Health and 

Human Services. 8

According to OOC officials, FOH’s finding is inconsistent with OOC’s observations in the tunnels. 9

According to an AOC official, AOC has determined that there is still some asbestos in the far end of 

this tunnel. 10A spall indicates an area of concrete delamination that may expose the existing reinforcing steel in 

the tunnel structure. 

Page 4 GAO-07-227R Capitol Power Plant Utility Tunnels
Condition of the Utility Tunnels Remains Substantially Unchanged 

AOC has taken some steps to mitigate problems in the tunnels and has initiated some 

actions to resolve them, but little change has taken place thus far. To mitigate 

problems, AOC has installed supports to parts of the ceiling of one tunnel to minimize 

the potential of falling concrete; required individuals entering the tunnels to wear 

protective equipment and clothing; contracted with FOH for air sampling and 

asbestos condition assessments; purchased a portable air-conditioning system; begun 

upgrades to the tunnels’ communication system; and improved several tunnel 

emergency escape exits. In addition, an AOC contractor has completed structural 

assessments of three of the five tunnels and determined that they are not in danger of 

collapse. AOC has received a draft assessment report on the fourth tunnel, and the 

assessment of the fifth tunnel is still in progress. AOC is scheduled to receive the final 

reports for these two tunnels by December 31, 2006. Most of the actions AOC has 

initiated to resolve the tunnel problems are still in the study, planning, or 

procurement stage. (For specific information about the tunnel projects, see enc. I.) 

While AOC has taken a number of actions to begin addressing the problems identified 

in the tunnels, few of the problems have been resolved thus far and the condition of 

the tunnels remains substantially unchanged. Problems persist, including the 

potential for falling concrete, loose asbestos, and high heat; communication systems 

that do not provide consistent coverage throughout the tunnels; a lack of adequate 

emergency egress; inadequate lighting; and a lack of emergency lighting. Progress in 

addressing the tunnel problems has been hindered because the conditions that AOC 

and its contractors are trying to address make it difficult for them to work, according 

to AOC officials. 

In a preliminary report in July 2006, FOH identified asbestos in the material used to 

insulate pipe and pipe fittings in three of the four walkable tunnels.11 According to 

FOH, in two of the tunnels inspected, the condition of the insulation on both steam 

pipes and condensate lines was good overall. FOH has not completed its inspection 

of the third tunnel because the tunnel had been closed.12 FOH does not believe that 

dust in the tunnels contains asbestos except where the asbestos insulation has been 

damaged. According to OOC officials, OOC does not concur with this assessment 

because it found asbestos in dust samples taken off pipe coverings in areas where 

damage to the insulation material was not apparent. FOH recommends the complete 

abatement of all asbestos in the tunnels. However, if complete abatement is not 

practicable, then FOH recommends that damaged insulation be removed or repaired. 

Specifically, according to FOH, insulation on either side of the stanchions that hold 

utility pipes has been damaged by pipe movement and should be removed; other 

damaged insulation should be repaired; and periodic inspections should be done. 

FOH has provided limited data analysis indicating that for some activities in the 

tunnels, protective equipment may not be necessary. However, AOC has stated that it 

will continue to require protective equipment until further analysis is completed. 

 11According to the FOH study, in the fourth tunnel, asbestos was found in the insulation at one 

entrance area to the tunnel. FOH did not inspect the fifth tunnel because the asbestos was in the 

process of being abated. 12AOC closed access to one of the tunnels until supports could be installed to reduce the chance of 

concrete falling.

Page 5 GAO-07-227R Capitol Power Plant Utility Tunnels
AOC’s Utility Tunnel Improvement Plan Provides Some Required 

Information, but Does Not Address Options for Improvement 

AOC issued its Utility Tunnel Improvement Plan on August 31, 2006, as directed by 

the House Committee on Appropriations, but the plan includes only some of the 

required information and discusses future efforts to provide all of the requested 

information. House Report 109-485, dated June 1, 2006, directed the Architect of the 

Capitol to “provide a plan and budget to the committee that strategically address long 

term repairs to the steam tunnels over the next 5 years.” According to the report, the 

plan should include, at a minimum, “an assessment of the tunnel problems that need 

to be corrected, the priorities from safety and operational standpoints, options for 

addressing the problems along with the costs and benefits and advantages and 

disadvantages of each option, the recommended options and schedule for 

implementation, and the identification of officials who will be accountable.” 

As noted, because AOC’s contractor has not finished assessing two of the five 

tunnels, AOC’s plan does not fully identify the tunnel problems. The contractor 

expects to complete its assessment of the two tunnels in December 2006. Combining 

the information it currently has on the condition of the tunnels, AOC prioritized the 

tunnel projects into immediate, short-term, and longer-range initiatives and 

established accountability for these projects. AOC plans to initiate its immediate 

improvements—designed to mitigate health, life safety, structural, and heat stress 

concerns—by September 2007. AOC plans to initiate its short-term improvements—

designed to correct mechanical, electrical, and structural defects—in fiscal years 

2008 through 2012. AOC estimates the cost for the improvements in the plan to be 

$119 million over the next 6 years. AOC also reported $14.4 million in longer-range 

initiatives intended to mitigate the known problems in the tunnels through 2015. 

AOC’s longer-range initiatives include conducting quarterly structural inspections, 

making necessary annual repairs, and modifying procedures to reflect changing 

tunnel conditions. According to AOC, its plans were based on information known at 

the time the report was being developed and are preliminary. As the condition 

assessments and alternatives study are completed, AOC expects to adjust its work 

plans, cost estimates, and schedules as appropriate. 

Without information on the condition of the two tunnels that remain to be assessed, 

AOC’s plan lacks a full picture of tunnel conditions, the work that needs to be done, 

and the cost and time it will take to complete the necessary work. In addition, the 

plan does not include a discussion of options for addressing the immediate and shortterm needs of the tunnels. From the plan, it is not clear whether AOC considered 

various options for addressing the tunnel problems or explored the cost, benefits, 

advantages, and disadvantages of different options before determining what work to 

include in the plan. AOC does indicate in the plan that it will conduct an alternatives 

study to evaluate the long-term use of the existing tunnels and options for meeting 

the Capitol Hill Complex’s future utility distribution needs. AOC officials said they 

wanted to addressed the total utility distribution system’s needs in their alternative 

studies to ensure that Congress has a complete understanding of the system’s 

requirements and associated costs. While the immediate improvements might need to 

be done before an alternatives study can be completed, AOC has reported needing 

more than $100 million to address problems in the tunnels before it identifies and 

Page 6 GAO-07-227R Capitol Power Plant Utility Tunnels
considers the different options for resolving the problems.13 Thus, Congress does not 

have assurance that the proposed improvements and costs provide the best solutions 

for solving the problems in the tunnels. In addition, the plan focuses only on needs in 

the walkable tunnels and, as AOC points out, does not address the buried steam lines 

or utility vaults, where, according to AOC officials, other problems are known to 

exist. 

AOC recognizes that the current plan does not fully respond to the questions raised in 

the committee’s report. According to AOC officials, they are continuing to develop 

the requested information and will provide it to the committee when available. They 

stated that the plan does not include all of the requested information because they 

could not complete the work in the time allotted. AOC officials said they wanted to 

be sure they addressed the total utility distribution system’s needs in their 

alternatives study to ensure that Congress has a complete understanding of the 

systems requirements and associated costs.

Efforts to Address OOC and Workers’ Concerns Are Moving Forward, but 

Progress on Worker Safety Issues Has Been Limited 

AOC and OOC are moving toward resolving OOC’s February 28, 2006, complaint on 

the deteriorating condition of the tunnels, the tunnel communication system, and 

emergency exits and the two January 2006 citations for asbestos and heat stress 

problems. Both AOC and OOC are discussing proposals to satisfy the applicable legal 

requirements and enable AOC to resolve the issues in the complaint and the two 

citations. However, according to OOC officials, some essential provisions that are 

critical to reaching any settlement, including what hazards will be covered under the 

agreement, have not to date been accepted by AOC. Furthermore, OOC officials said 

they have not been fully successful in obtaining necessary tunnel-related information 

from AOC on a timely basis. Part of this effort is to understand the extent to which 

OOC’s Office of General Counsel will be involved in implementing activities to 

resolve the issues. AOC regularly keeps the General Counsel’s office up to date on 

the status of tunnel operations and planned repair activities. OOC also says that it 

has been working amicably with AOC to resolve the complaint and citations. AOC 

and OOC are also continuing to meet to discuss and resolve new health and safety 

issues in the tunnels as they arise. 

The tunnel workers have expressed concern about the safety of the tunnels due to 

the presence of asbestos, falling concrete, excessive heat, inadequate emergency 

exits, and a poor communication system. AOC’s Utility Tunnel Improvement Plan 

covers these issues for the walkable tunnels, but, as noted, progress in resolving 

these issues has been limited. The tunnel workers told us they are discouraged and 

have no clear idea of when the problems will be solved. To improve communication, 

AOC began holding weekly meetings with the tunnel shop workers in April 2006 to 

discuss tunnel issues and the actions being taken. However, the tunnel workers have 

expressed frustration about the lack of progress in addressing their safety and health 

concerns. 

 13Since the plan was issued, an AOC contractor has estimated that it will cost between $61.5 million 

and $102.2 million to repair the structure of four of the five tunnels. These costs were not available 

when the Utility Tunnel Improvement Plan was issued. 

Page 7 GAO-07-227R Capitol Power Plant Utility Tunnels
AOC officials noted it has taken several actions to address the safety concerns cited 

by OOC and the tunnel workers. These actions include the establishment of safety 

and access control procedures for the tunnels, the requirement that protective 

equipment and clothing be worn, the upgrade of 15 tunnel entry and exit points, the 

shoring of delaminated concrete, and improvements to the reliability of the 

communication system in the tunnels. OOC officials noted that additional concerns in 

the tunnels, such as mold in one of the steam stations, continue to be identified. 

Agency Comments 

We provided a draft of this report to the Architect of the Capitol and the General 

Counsel of the Office of Compliance for their review and comment. The Architect of 

the Capitol provided us with written comments that are reproduced in enclosure II. 

AOC generally agreed with the information as presented in the report and provided 

technical comments that were incorporated, as appropriate. We received oral 

comments from the General Counsel at the Office of Compliance. He generally 

agreed with the information as presented in the report and provided technical 

comments that were incorporated, as appropriate. 

We are sending copies of this report to the Architect of the Capitol, the General 

Counsel of the Office of Compliance, and others interested parties. We will also 

make copies available to others on request. In addition, the report will be available at 

no charge on GAO’s Web site at http://www.gao.gov. 

If you or your staff have any questions about this report, please contact me at (202) 

512-6923 or dornt@gao.gov. Contact points for our Offices of Congressional 

Relations and Public Affairs may be found on the last page of this report. GAO staff 

who made major contributions to this report are Maria Edelstein and Tom Keightley. 

Terrell G. Dorn 

Director, Physical Infrastructure Issues 

Enclosures

Page 8 GAO-07-227R Capitol Power Plant Utility Tunnels
Enclosure I: Tunnel Projects 

Company 

Award 

date Work to be performed

Entech 

Engineering, Inc. 9/29/2005 Prepare scoping and inspection plan for the utility tunnel system 

Lord & Co., Inc. 11/2/2005 Maintain radio 

GRA, Inc. 1/9/2006 Provide management consulting services 

The Safety

Company, Inc. 1/13/2006 Develop heat stress programs and policies 

The Safety

Company, Inc. 3/3/2006 Provide tunnel evaluation for one tunnel 

WACO, Inc. 4/14/2006 

Perform minor insulation and minor abatement throughout 

one tunnel 

B&W Fabricating 4/20/2006 Capitol Power Plant (CPP) emergency egress 

Lord & Co., Inc. 5/4/2006 Provide radios for tunnels 

US Public Health / 

FOH 5/5/2006 

Provide exposure and hazard assessment, air sampling, asbestos 

condition inspection, and lead paint inspection 

James Posey 

Assoc. 5/12/2006

Provide engineering services for tunnel design documents for one 

tunnel 

Jacobs 

Engineering 6/12/2006 Provide construction manager services for CPP tunnel program 

Entech 

Engineering, Inc. 7/21/2006 Perform facility conditions assessment of the utility tunnels 

Topp Portable Air 7/21/2006 Rental of portable air units 

URS Greiner 

Woodard Clyde 7/25/2006 

Provide structural, environmental, safety, and health consulting 

services 

Ameri-can 

Engineering 7/25/2006 Purchase decontamination trailer 

US Public Health / 

FOH 7/28/2006 Tunnel entry procedures 

IDS Blast Finishing 8/1/2006 Rental of Decontamination trailer 

CESI 8/2/2006 Provide miscellaneous general housekeeping 

The Safety

Company, Inc. 8/15/2006 

Develop emergency evacuation plan for CPP utility distribution 

system 

A. Morton Thomas 

& Assoc. 8/16/2006 Provide surveying services for one tunnel, lot 12

Centennial 

Contractors 9/8/2006 Excavation and asbestos abatement for the egress point, lot 12

Topp Portable Air 9/30/2006 Purchase portable air units 

Construction 

Management 

Division, AOC 11/2006a

Begin removing delamination in one tunnel 

To be determined 11/2006 a Clean debris and dust from one tunnel 

To be determined 12/2006 a Clean mold and abate asbestos from one tunnel 

To be determined 12/2006 a Study alternative communication system 

To be determined 12/2006 a Design and initial construction of two new egress points for one 

tunnel 

Source: AOC.

a

These contracts have not yet been awarded. The date provided is when AOC expects to award the contract.

Page 9 GAO-07-227R Capitol Power Plant Utility Tunnels
Enclosure II: Comments from the Architect of the Capitol 

Page 10 GAO-07-227R Capitol Power Plant Utility Tunnels
(543175) 

Page 11 GAO-07-227R Capitol Power Plant Utility Tunnels