United States Government Accountability Office

GAO Report to Congressional Requesters

LEGISLATIVE 

BRANCH 

Energy Audits Are Key 

to Strategy for 

Reducing Greenhouse 

Gas Emissions 

April 2007 

 

GAO-07-516 
What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

April 2007

LEGISLATIVE BRANCH

Energy Audits Are Key to Strategy for 

Highlights of GAO-07-516, a report to Reducing Greenhouse Gas Emissions 

congressional requesters 

Because of concerns about changes

in Earth’s climate due to 

greenhouse gas emissions and the 

potential economic and 

environmental consequences of

these changes, GAO (1) inventoried 

greenhouse gas emissions 

generated by legislative branch

operations in fiscal year 2006, as 

well as identified trends in 

emissions starting from a base year 

of the average annual amount

emitted in fiscal years 1998 through 

2001, and (2) identified a strategy

for reducing emissions. To perform

this work, GAO followed the 

Greenhouse Gas Protocol and

additional guidance from the 

Environmental Protection Agency, 

using data provided by officials 

responsible for legislative branch 

operations and the General 

Services Administration. 

What GAO Recommends

GAO recommends that the 

agencies that manage the 

operations of the legislative branch 

(1) establish a schedule for 

routinely conducting energy audits 

that provide sufficiently detailed 

information to justify investing in 

projects, and (2) implement 

selected projects as part of an 

overall plan to reduce emissions 

that considers cost-effectiveness, 

the extent to which the projects 

reduce emissions, and funding 

options. The affected agencies 

agreed with GAO’s findings and

recommendations and provided 

technical comments that GAO 

incorporated, as appropriate. 

Legislative branch operations generated about 316,000 metric tons of 

greenhouse gas emissions (expressed in carbon dioxide equivalents) in fiscal 

year 2006. The amount of greenhouse gas emissions generated by legislative 

branch operations is equal to the emissions produced by about 57,455 cars 

and represents an increase of about 4 percent from the average annual 

quantity emitted in fiscal years 1998 through 2001. The largest source of 

these emissions (63 percent) was the consumption of electricity purchased 

from an external provider that relies primarily on fossil fuel combustion to 

generate the electricity. The second-largest source of emissions (32 percent) 

was the combustion of fossil fuels in the Capitol Power Plant to produce 

steam for the majority of the legislative branch buildings. The remaining 

5 percent of emissions came from other sources that each generated 

1 percent or less of emissions, such as natural gas and chilled water 

purchased from outside sources and business travel in government-owned 

and -leased vehicles. While emissions in 2006 increased 4 percent over the 

base year levels, emissions in the intervening years varied depending on 

factors such as fluctuations in weather, the fuel mix used at the Capitol 

Power Plant, and the quantity of renewable energy used by legislative branch

operations. 

A strategy for reducing emissions includes conducting energy audits to 

identify and evaluate energy efficiency and renewable energy projects, as

well as evaluating other emissions-reduction projects that may fall outside 

the scope of energy audits. Such a strategy would also involve developing an 

implementation plan that considers cost-effectiveness, the extent to which 

the projects reduce emissions, and funding options. Energy audits are a key 

step because the projects identified through the audits would address the 

largest sources of emissions—purchased electricity and fossil fuel 

combustion in the Capitol Power Plant—and would include information on 

cost-effectiveness and the potential for reducing emissions. Agencies could 

finance these projects through direct appropriations or contracts with utility 

or energy service companies. Since fiscal year 1998, the Architect of the 

Capitol, GAO, and the Government Printing Office have commissioned 

11 energy audits of some of their facilities, but the audits have generally not 

been comprehensive and the agencies have varied in the extent to which 

they have implemented the projects identified through the audits. Another 

part of a strategy would involve evaluating the cost-effectiveness, emissions

reduction, and funding options of projects that may fall outside the scope of 

energy audits—such as acquiring fuel-efficient vehicles—on a case-by-case

basis. The energy audits and evaluations of other projects would provide 

information for legislative branch agencies to develop plans for 

implementing projects to reduce emissions. 

www.gao.gov/cgi-bin/getrpt?GAO-07-516.

To view the full product, including the scope 

and methodology, click on the link above. 

For more information, contact Terrell G. Dorn 

at (202) 512-6923 or dornt@gao.gov. 
Legislative Branch

Contents 

Letter 1

Results in Brief 4

Background 6

Legislative Branch Operations Generated 316,000 Metric Tons of 

Greenhouse Gas Emissions in 2006, a 4 Percent Increase from 

Base Year Levels 9 

A Strategy for Reducing Emissions Generated by Legislative

Branch Operations Includes Conducting Energy Audits and 

Evaluating Other Projects 12 

Conclusions 19

Recommendations for Executive Action 20 

Agency Comments and Our Evaluation 20 

Appendix I Objectives, Scope, and Methodology 22 

Appendix II Technical Information on Methodology, Calculations, 

and Assumptions Used in Conducting an Inventory of 

Greenhouse Gas Emissions 26 

Methodology 26

Calculations and Assumptions 28 

Appendix III Map of Legislative Branch Facilities 42 

Appendix IV Emissions Trends, by Agency 43 

Appendix V GAO Contact and Staff Acknowledgments 47 

Page i GAO-07-516
Legislative Branch

Tables 

Table 1: Number of Facilities, Vehicles, and Other Property 

Managed by the Legislative Branch in the Washington, 

D.C., Area in Fiscal Year 2006 7 

Table 2: Emissions Factors 23 

Table 3: Global Warming Potentials of Greenhouse Gases 24 

Table 4: Capitol Complex Greenhouse Gas Emissions from 

Operations under AOC’s Jurisdiction by Scope and Source 

for Base Year and Fiscal Year 2006 30 

Table 5: GPO’s Greenhouse Gas Emissions by Scope and Source 

for Base Year and Fiscal Year 2006 34 

Table 6: GAO’s Greenhouse Gas Emissions by Scope and Source 

for Base Year and Fiscal Year 2006 36 

Table 7: Senate Sergeant at Arms’ Greenhouse Gas Emissions by 

Scope and Source for Base Year and Fiscal Year 2006 38 

Table 8: CBO’s Greenhouse Gas Emissions by Scope and Source 

for Base Year and Fiscal Year 2006 39 

Table 9: LOC’s Greenhouse Gas Emissions by Scope and Source for 

Base Year and Fiscal Year 2006 40 

Figures 

Figure 1: Source of Legislative Branch Greenhouse Gas Emissions, 

Fiscal Year 2006 10 

Figure 2: Legislative Branch Greenhouse Gas Emissions, Fiscal 

Years 1998-2001 through 2006 11 

Figure 3: Greenhouse Gas Emissions by Agency, Fiscal Year 2006 43 

Figure 4: Capitol Complex Greenhouse Gas Emissions from

Operations under AOC’s Jurisdiction, Fiscal Years 

1998-2001 to 2006 44 

Figure 5: GPO’s Greenhouse Gas Emissions, Fiscal Years 1998-2001 

to 2006 45 

Figure 6: GAO’s Greenhouse Gas Emissions, Fiscal Years 1998-2001 

to 2006 46 

Page ii GAO-07-516
Legislative Branch

Abbreviations 

AOC Architect of the Capitol 

CBO Congressional Budget Office 

CNG compressed natural gas 

CRS Congressional Research Service 

DOE Department of Energy 

EPA Environmental Protection Agency 

ESPC energy savings performance contract

FEMP Federal Energy Management Program 

GPO Government Printing Office 

GSA General Services Administration 

LEED Leadership in Energy and Environmental Design

LOC Library of Congress 

NREL National Renewable Energy Laboratory 

REC renewable energy certificate 

UESC utility energy savings contract 

VOC volatile organic compounds 

WRI World Resources Institute 

This is a work of the U.S. government and is not subject to copyright protection in the 

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Page iii GAO-07-516
United States Government Accountability Office

Washington, DC 20548 

April 25, 2007

The Honorable Mary L. Landrieu 

Chairman 

The Honorable Wayne Allard 

Ranking Minority Member 

Subcommittee on Legislative Branch

Committee on Appropriations 

United States Senate 

The Honorable Richard J. Durbin 

United States Senate 

Greenhouse gas emissions—including carbon dioxide, methane, nitrous 

oxide, and certain synthetic chemicals—result from a variety of sources, 

such as the combustion of fossil fuels, industrial activities, and natural 

processes. According to the Intergovernmental Panel on Climate Change, 

greenhouse gas emissions, especially carbon dioxide, have contributed to 

increased global temperatures and related changes in Earth’s climate. 

Climatic changes resulting from greenhouse gas emissions could have 

significant economic and environmental consequences, including elevated 

sea levels, shifts in agricultural productivity, and damage to sensitive 

ecosystems. Because most U.S. carbon dioxide emissions result from the 

combustion of fossil fuels, efforts to cut emissions generally focus on 

increasing the efficiency of activities powered by fossil fuels or switching 

to renewable-energy sources. Besides decreasing emissions, these efforts 

often achieve financial savings through decreased energy expenditures. 

The U.S. government has taken some action to inventory and reduce 

greenhouse gas emissions. For example, the federal government published 

an inventory of the country’s greenhouse gas emissions in 2006 and has 

developed voluntary programs that encourage participants to conduct 

inventories and set targets to reduce their emissions. Furthermore, certain 

energy-efficiency and air-quality programs for the federal government, 

while not specifically designed to reduce greenhouse gas emissions, have 

had that effect. Agencies within the executive branch of government have 

also responded to an executive order that directed them to inventory their 

emissions and set an emissions reduction target.1

 However, legislative 

 1

Revoked by E.O. 13423 (Jan. 24, 2007). 

Page 1 GAO-07-516 Legislative Branch
branch agencies have not been required to inventory their emissions or 

implement an overall emissions reduction strategy, and they have not 

undertaken any comprehensive voluntary efforts. 

The legislative branch includes Congress and its supporting agencies— 

the Architect of the Capitol (AOC), GAO, Government Printing Office 

(GPO), Library of Congress (LOC), Congressional Budget Office (CBO), 

U.S. Botanic Garden, Medicare Payment Advisory Commission, and 

Stennis Center for Public Service. (See app. III for a map of legislative 

branch facilities in the Washington, D.C., metropolitan area.) AOC has 

jurisdiction over the day-to-day operations of the legislative branch 

facilities that are located in the Capitol complex, including the Senate

Office Buildings, House Office Buildings, U.S. Capitol Building and 

Grounds, LOC Buildings and Grounds, Capitol Power Plant, U.S. Capitol 

Police Buildings, and U.S. Botanic Garden. 

GAO was asked to (1) conduct an inventory (including the amount and 

sources) of greenhouse gas emissions generated by legislative branch 

operations in fiscal year 2006, as well as identify trends in emissions 

starting from a base year of the average annual amount emitted in fiscal 

years 1998 through 2001, and (2) identify a strategy for reducing emissions. 

To conduct an inventory of the greenhouse gas emissions generated by 

legislative branch operations, we followed the Greenhouse Gas Protocol2

and additional guidance from the Environmental Protection Agency’s 

(EPA) Climate Leaders program.3

 In accordance with the Greenhouse Gas 

Protocol, the scope of our work included direct emissions, such as the 

combustion of fossil fuels at the Capitol Power Plant, and indirect 

emissions from the consumption of purchased electricity, natural gas, 

steam, and chilled water. We excluded other indirect emissions that are 

optional under the Greenhouse Gas Protocol, such as those generated 

from business travel in private vehicles or commercial airplanes, employee 

 2

The Greenhouse Gas Protocol was developed by the World Resources Institute, a U.S.

nongovernmental organization, and the World Business Council for Sustainable 

Development, a Geneva-based coalition of 170 international companies, as internationally 

accepted accounting and reporting standards. It was designed to be program/policy neutral 

and is compatible with most greenhouse gas inventory programs. 

3

Climate Leaders is an EPA-sponsored industry-government partnership that works with 

companies to develop long-term comprehensive climate change strategies. Partners set a 

corporatewide greenhouse gas reduction goal and inventory their emissions to measure

progress. 

Page 2 GAO-07-516 Legislative Branch
commuting, or paper use. Our work covered the legislative branch’s leased

and owned facilities and vehicles within the Washington, D.C., 

metropolitan area. We excluded indirect emissions from the U.S. Capitol 

Police for security reasons, as well as nonlegislative branch facilities 

under AOC’s jurisdiction, such as the U.S. Supreme Court. We also 

excluded emissions from the Medicare Payment Advisory Commission and 

the Stennis Center for Public Service because of their small size and 

location within buildings outside of the legislative branch. To calculate 

emissions and identify emissions trends, we collected and analyzed data

for fiscal years 1998 through 2006 from AOC, CBO, GAO, GPO, LOC, the 

Senate Sergeant at Arms, the House of Representatives Chief

Administrative Officer, and the General Services Administration (GSA). 

The House of Representatives Chief Administrative Officer was unable to 

provide fuel use data from the House of Representatives’ 23 vehicles or 

volatile organic compound (VOC) emissions data from its furniture shop 

that performs wood refinishing, painting, and upholstery. In addition, AOC 

was unable to provide data on leaks from their oil, diesel, and propane 

tanks. Therefore, greenhouse gas emissions from these sources were not 

included in our calculations. We used the average annual emissions in 

fiscal years 1998 through 2001 as the base year for our trend analysis 

because this is the time period set by the Chicago Climate Exchange, a 

voluntary greenhouse gas reduction program. We also used data from the 

National Oceanic and Atmospheric Administration to compare changes in

the local weather to changes in emissions to help explain emission trends. 

To identify a strategy for reducing emissions, we reviewed documents 

from the World Resources Institute (WRI), and Congressional Research 

Service (CRS); and we interviewed officials and reviewed documents from 

AOC, GPO, and GAO to learn about energy audits and emissions reduction 

projects that the legislative branch has already implemented. We also 

interviewed officials from DOE’s National Renewable Energy Laboratory 

(NREL) and Federal Energy Management Program (FEMP) about energy 

audits, and types of emissions reduction projects and their costeffectiveness; and officials from GSA about emissions reduction projects 

related to government-owned and -leased vehicles. In addition, we 

interviewed Pepco Energy Services about its renewable-energy contracts 

with the legislative branch agencies. (See app. I for a more detailed 

description of our scope and methodology and app. II for the steps we 

followed to conduct an inventory of legislative branch greenhouse gas 

emissions.) We conducted our work from August 2006 through April 2007. 

Page 3 GAO-07-516 Legislative Branch
Legislative branch operations generated about 316,000 metric tons of 

greenhouse gas emissions (expressed in carbon dioxide equivalents4

) in 

fiscal year 2006.5

 This amount is equal to the emissions produced by 

approximately 57,455 cars and represents an increase of about 

12,400 metric tons (4 percent) from the average annual quantity emitted in

fiscal years 1998 through 2001. The largest source of these emissions 

(63 percent) was the consumption of electricity purchased from an 

external provider that relies primarily on fossil fuel combustion to 

generate the electricity. The second-largest source of emissions 

(32 percent) was the combustion of fossil fuels in the Capitol Power Plant 

to produce steam for the majority of the legislative branch buildings.6

 The 

remaining 5 percent of emissions came from a variety of other sources that 

each generated 1 percent or less of emissions, including the consumption 

of natural gas and chilled water purchased from outside sources, business 

travel in government-owned and -leased vehicles, leaks in refrigeration 

equipment, the release of VOCs, and the combustion of fossil fuels in 

emergency generators. While emissions in 2006 increased 4 percent over 

the base year levels, emissions in the intervening years varied depending

on several factors, including fluctuations in weather, the fuel mix used at 

the Capitol Power Plant, and the quantity of renewable energy purchased 

by legislative branch agencies. 

Results in Brief 

A strategy for reducing emissions includes conducting energy audits to 

identify and evaluate energy-efficiency and renewable-energy projects, as 

well as evaluating other emissions reduction projects that may fall outside

the scope of energy audits. The strategy would also involve developing an

implementation plan that considers cost-effectiveness, the extent to which

the projects reduce emissions, and funding options. Focusing on energy 

audits to identify projects would assist the legislative branch agencies in 

 4

Carbon dioxide equivalents provide a universal standard of measurement against which 

the impacts of releasing different greenhouse gases can be evaluated. 

5

The House of Representatives Chief Administrative Officer was unable to provide fuel use 

data from the House of Representatives’ 23 vehicles or VOC emissions data from its 

furniture shop that does wood refinishing, painting, and upholstery. In addition, AOC was

unable to provide data on leaks from its oil, diesel, and propane tanks. Therefore,

greenhouse gas emissions from these sources were not included in our calculations. 

6

The Capitol Power Plant also provides steam for Union Station, Folger Shakespeare 

Library, and Postal Square, which are not legislative branch facilities, with the exception of

AOC’s leased space in Postal Square. Emissions from the combustion of fossil fuels in the 

Capitol Power Plant to produce steam for these buildings was included in our calculations,

as required by the Greenhouse Gas Protocol. 

Page 4 GAO-07-516 Legislative Branch
addressing the largest sources of emissions—the consumption of 

purchased electricity and fossil fuel combustion in the Capitol Power 

Plant. In addition to identifying specific projects, energy audits also 

include information on cost-effectiveness and the potential for reducing 

emissions. The agencies could finance these projects through direct 

appropriations or contracts with utility or energy service companies, 

under which the company initially pays for the work and the agency later 

repays the company with the resulting energy savings. Since fiscal year 

1998, AOC, GAO, and GPO have commissioned 11 energy audits of their 

facilities, but the audits have generally not been comprehensive and the 

agencies have varied in the extent to which they have implemented the 

projects identified through the audits. Another part of this strategy to 

reduce emissions would involve evaluating projects that may fall outside 

the scope of energy audits, such as (1) projects to reduce electricity 

emissions by curtailing energy use, purchasing high-efficiency appliances, 

using renewable electricity, and considering the energy efficiency of 

facilities when constructing new facilities and before entering into leases; 

(2) projects to reduce emissions from the combustion of fossil fuels in the 

Capitol Power Plant by adjusting the fuel mix; (3) projects to reduce 

vehicle emissions by acquiring fuel-efficient vehicles and vehicles that run 

on renewable fuel; and (4) projects to reduce overall emissions by 

purchasing credits for emissions reductions that take place outside an 

entity’s sphere of operations. The cost-effectiveness, emissions reduction, 

and funding options for each of these projects would have to be evaluated

on a case-by-case basis. The energy audits and project evaluations would 

provide information for the legislative branch to develop plans for 

implementing projects to reduce emissions. 

Since energy audits are a key step in identifying projects to reduce the 

largest sources of emissions and agencies that manage the operations of 

the legislative branch have varied in the extent to which they have used

such audits, we are recommending that these agencies establish a 

schedule for routinely conducting energy audits that provide sufficiently 

detailed information—such as targeted or comprehensive audits—to 

justify investing in projects. Furthermore, the agencies should implement 

selected projects as part of an overall plan to reduce emissions that 

considers cost-effectiveness, the extent to which the projects reduce 

emissions, and funding options. In commenting on a draft of this report, 

the agencies that manage the operations of the legislative branch agreed 

with the report’s overall findings and recommendations, and offered 

technical suggestions which we have incorporated, as appropriate. The 

Architect of the Capitol noted that, while AOC operates the facilities 

within the Capitol complex and would be responsible for energy audits of 

Page 5 GAO-07-516 Legislative Branch
the building systems and implementing the projects that result from the 

energy audits, the agency has little influence over the energy use activities 

of the occupants of the facilities. 

Carbon dioxide is by far the most prevalent of the greenhouse gases—

gases that trap heat in the atmosphere—emitted in the United States, 

accounting for about 85 percent of emissions. The other principal 

greenhouse gases are methane, nitrous oxide, and three types of synthetic 

gases—hydrofluorocarbons, perfluorocarbons, and sulfur hexafluoride. 

Like carbon dioxide, methane and nitrous oxide are released during the 

combustion of fossil fuels by stationary and mobile sources. 

Hydrofluorocarbons are emitted from refrigerants that leak from chillers 

and air-handling units. Perfluorocarbons and sulfur hexafluoride7

 are 

generally not emitted by legislative branch operations. 

Background 

Each greenhouse gas has a global warming potential—a measure of its 

heat-trapping ability relative to that of carbon dioxide. For example, 

methane is 21 times more potent than carbon dioxide, so its global 

warming potential is 21. Global warming potentials are used to convert 

emissions of non-carbon-dioxide gases into their carbon dioxide 

equivalents to allow comparisons of the total cumulative warming effects 

of different greenhouse gases. Carbon dioxide equivalents are calculated

by multiplying the emissions of the non-carbon-dioxide gas by its 

corresponding global warming potential (see app. I for a list of the global 

warming potentials of the principal greenhouse gases). The common unit 

of measure for reporting greenhouse gas emissions is metric tons of 

carbon dioxide equivalents.8

Legislative branch operations generate greenhouse gas emissions from the 

combustion of fossil fuels in the Capitol Power Plant; business travel in 

government-owned and -leased vehicles; the use of heavy machinery; the 

release of VOCs in furniture and print shops; fugitive emissions, such as 

leaks in refrigeration equipment and fuel tanks; the combustion of fossil 

fuels in emergency generators; and the consumption of purchased 

 7

Perfluorocarbons are emitted as byproducts of aluminum productions and semiconductor

manufacturing, and sulfur hexafluoride is emitted from certain semiconductor 

manufacturing processes. 

8

A metric ton equals 2,205 pounds, while a short ton, a measurement used in the United 

States, equals 2,000 pounds. 

Page 6 GAO-07-516 Legislative Branch
electricity, natural gas, steam, and chilled water. AOC, GAO, and GPO 

have jurisdiction over the majority of these sources through their 

management of legislative branch property. While AOC operates the 

facilities within the Capitol complex, LOC, CBO, the Senate, and the House 

of Representatives are responsible for their own energy consumption. 

These entities also procure their own office equipment, and own and lease 

vehicles independent of AOC. In addition, the Senate and House of 

Representatives run the operations of their own furniture shops that 

perform wood refinishing, painting, and upholstery, and the Senate 

operates its own print shops. LOC also leases facilities independent of 

those managed by AOC. Table 1 shows the number of facilities, vehicles, 

and other property managed by each entity. 

Table 1: Number of Facilities, Vehicles, and Other Property Managed by the 

Legislative Branch in the Washington, D.C., Area in Fiscal Year 2006

AOC GAO GPO Senate

House of 

Representatives CBO LOC

Governmentowned facilities 31a1 4b0 0 0 0

Leased facilities 5c0 1 0 0 0 2

Vehiclesd152 10 61 55 23 1 21

Streetlights 1,169 0 0 0 0 0 0

Parking lots 5 0 0 0 0 0 0

Source: GAO analysis of AOC, GAO, GPO, Senate Sergeant at Arms, House Chief Administrative Officer, CBO, LOC, and GSA data. 

a

The furniture shops managed by the Senate and House of Representatives are located within 

government-owned facilities under AOC’s jurisdiction. 

b

GPO headquarters consists of three contiguous buildings and one building directly across the street.

c

The print shop managed by the Senate is located within a leased facility under AOC’s jurisdiction. 

d

Government-owned and -leased vehicles and heavy machinery. 

The Capitol Power Plant produces steam and chilled water for the 

majority of the Capitol complex, as well as steam for GPO.9

 Steam is used 

for heating buildings and hot water, as well as for cooking and

humidification. Chilled water is used for cooling buildings and equipment, 

as well as for dehumidification. Two of the Capitol Power Plant’s seven 

 9

The Capitol Power Plant also produces steam and chilled water for Union Station, Folger 

Shakespeare Library, and Postal Square, which are not legislative branch facilities, with the 

exception of AOC’s leased space in Postal Square. 

Page 7 GAO-07-516 Legislative Branch
boilers are coal-fired units with auxiliary gas burners, and the other five 

run on natural gas or oil. AOC uses a mix of fossil fuels—coal, oil, and 

natural gas—in the Capitol Power Plant to help ensure continuity of 

operations in case of a supply shortage or an increase in the price of one 

of the fuels. Ten chillers in the Capitol Power Plant’s refrigeration plants 

run on electricity to generate chilled water.10 In addition to the steam and 

chilled water produced by the Capitol Power Plant, AOC purchases steam 

and chilled water from GSA for one building under its jurisdiction (the 

Ford House Office Building), and GAO also purchases its steam from GSA. 

GAO has six electric-powered chillers and GPO has three electric-powered 

chillers that produce chilled water for these agencies. The legislative 

branch agencies purchase their electricity primarily from Pepco Energy 

Services and natural gas from Washington Gas. 

Options to reduce emissions include projects that can be divided into five

categories—energy efficiency, renewable energy, adjustment of power 

plant fuel mix to include less carbon-intensive fuel, energy curtailment, 

and offsets. Energy efficiency means using less energy to produce a given

level of service or an increase in output for the same amount of energy.

Energy-efficiency projects include enhancing the energy efficiency of 

equipment, installing a cogeneration (combined heat and power) system, 

and upgrading vehicles to more fuel-efficient models. Renewable energy is

derived from resources that are generally not depleted by human use, such 

as the sun, wind, and water movement. In most cases, renewable energy

releases less carbon dioxide than fossil fuels.11 Renewable-energy projects 

include purchasing renewable energy, generating renewable energy on

site, procuring alternative-fuel vehicles, and adjusting power plant fuel mix 

to include renewable fuels. In addition to adjusting the fuel mix to include 

renewable fuels, adjustments could be made to the fuel mix to use less 

carbon-intensive fuel, such as natural gas. Energy curtailment means a 

decrease in activity to reduce energy consumption, such as turning off 

 10Our analysis did not include the new chillers being installed under AOC’s project to 

expand the Capitol Power Plant’s West Refrigeration Plant because it is outside the time 

period covered by our study. 

11As reported by CRS, wind and solar energy have zero carbon dioxide emissions in 

operation but may need an energy storage backup system (such as batteries or fuel cells) 

that does require fossil fuel use. When biomass is developed as an energy crop, the carbon

dioxide emissions are near zero because each new crop absorbs the same amount of 

emissions as are released by combusting the previous crop. However, while the burning of

biomass results in near zero emissions, there are emissions when the full life cycle is taken

into account, such as harvesting and transporting the biomass. 

Page 8 GAO-07-516 Legislative Branch
lights when not in use. Finally, offsets refer to projects that would reduce 

or remove emissions outside an entity’s sphere of operations and are 

generally used to supplement other projects that directly reduce 

emissions. 

Legislative branch operations generated about 316,000 metric tons of 

greenhouse gas emissions (expressed in carbon dioxide equivalents) in 

fiscal year 2006.12 Electricity use was the largest source of emissions, 

accounting for 198,989 metric tons, or approximately two-thirds 

(63 percent) of total emissions (see fig. 1). Electricity purchased by 

legislative branch agencies is generated primarily from the combustion of

fossil fuels, such as coal, oil, and natural gas. The second-largest source of 

emissions was the combustion of fossil fuels—primarily coal and natural 

gas—in the Capitol Power Plant to produce steam for the majority of the 

legislative branch buildings.13 The Capitol Power Plant produced 

102,659 metric tons of greenhouse gas emissions in fiscal year 2006, or 

approximately one-third (32 percent) of total emissions.14 In addition, the 

consumption of purchased natural gas, steam, and chilled water each 

accounted for approximately 1 percent of the greenhouse gas emissions 

from legislative branch operations. The natural gas was used to heat 

buildings within the Capitol complex that do not receive steam from the 

Capitol Power Plant, to operate appliances in GAO’s cafeteria, and as part 

of the printing process at GPO. Finally, business travel in governmentowned and -leased vehicles and the use of heavy machinery, the release of

VOCs in furniture and print shops, the combustion of fossil fuels in 

emergency generators, and leaks in refrigeration equipment at the Capitol

Power Plant each accounted for less than 1 percent of emissions. 

Legislative Branch 

Operations Generated 

316,000 Metric Tons of 

Greenhouse Gas 

Emissions in 2006, a 

4 Percent Increase 

from Base Year Levels 

 12The House of Representatives Chief Administrative Officer was unable to provide fuel use 

data from the House of Representatives’ 23 vehicles or VOC emissions data from its 

furniture shop that performs wood refinishing, painting, and upholstery. In addition, AOC 

was unable to provide data on leaks from their oil, diesel and propane tanks. Therefore, 

greenhouse gas emissions from these sources were not included in our calculations. 

13The Capitol Power Plant also provides steam for Union Station, Folger Shakespeare 

Library, and Postal Square, which are not legislative branch facilities, with the exception of

AOC’s leased space in Postal Square. Emissions from the combustion of fossil fuels in the 

Capitol Power Plant to produce steam for these buildings was included in our calculations, 

as required by the Greenhouse Gas Protocol. 

14Coal used to fuel boilers generated 57 percent of the Capitol Power Plant’s emissions

from the combustion of fossil fuels, while natural gas generated 38 percent, and oil 

5 percent of the plant’s emissions from the combustion of fossil fuels.

Page 9 GAO-07-516 Legislative Branch
Figure 1: Source of Legislative Branch Greenhouse Gas Emissions, Fiscal Year 

2006 

1%

Other

1%

Consumption of purchased chilled water

1%

Consumption of purchased natural gas

1%

Consumption of purchased steam

Consumption of purchased electricity

Combustion of fossil fuels in the Capitol

Power Plant 32%

63%

Source: GAO analysis of AOC, GAO, GPO, Senate Sergeant at Arms, House of Representatives Chief Administrative Officer, CBO,

LOC, and GSA data.

Note: Sources do not equal 100 percent due to rounding. 

Our analysis of emissions by type of greenhouse gas showed that carbon 

dioxide represented 99 percent of total emissions from legislative branch

operations in fiscal year 2006. Hydrofluorocarbons, nitrous oxide, and 

methane made up the remaining 1 percent of emissions. Although nitrous 

oxide and methane emissions were generated from multiple sources and 

hydrofluorocarbons were generated from a sole source—R-134a 

refrigerant that escaped from two chillers at the Capitol Power Plant 

through a gasket leak between June and August 2006—

hydrofluorocarbons represented the majority of the non-carbon-dioxide 

emissions, in part because of R-134a’s high global warming potential. 

Overall, greenhouse gas emissions generated by legislative branch 

operations in fiscal year 2006 increased 4 percent from the annual average 

quantity emitted in fiscal years 1998 through 2001 (see fig. 2). Factors that 

could have influenced emissions trends—and may continue to influence 

trends in the future—include emissions reduction projects and changes in

Page 10 GAO-07-516 Legislative Branch
square footage of buildings, weather, numbers of employees, operating 

hours, security measures, sources of production, energy prices, and 

numbers of vehicles. Despite the overall increase in emissions, there was 

one notable decrease in emissions during this time period—a 6 percent 

decrease from fiscal year 2003 to fiscal year 2004. The 6 percent decrease 

can likely be attributed to AOC’s purchase of renewable energy from 

Pepco Energy Services during an 8-month period beginning in September 

2003. The most recent decrease in emissions (1 percent), from fiscal year

2005 to fiscal year 2006, was likely influenced by two factors: a change in 

the fuel mix at the Capitol Power Plant that was due to a malfunction in 

the coal-fired boilers, which required AOC to replace some coal with more 

expensive—but less emissions-intensive—natural gas; and lower fuel 

consumption that was due to more moderate temperatures. Emissions 

trends varied by agency (see app. IV for emissions trends by agency). 

For example, GPO emissions decreased 28 percent primarily due to a 

reduction in staff levels. 

Figure 2: Legislative Branch Greenhouse Gas Emissions, Fiscal Years 1998-2001 

through 2006 

0

295,000

300,000

305,000

310,000

315,000

320,000

325,000

1998-2001 2002 2003 2004 2005 2006

Metric tons of carbon dioxide equivalents

Source: GAO analysis of AOC, GAO, GPO, Senate Sergeant at Arms, House of Representatives Chief Administrative Officer, CBO,

LOC, and GSA data.

Year

Page 11 GAO-07-516 Legislative Branch
A strategy for reducing emissions includes conducting energy audits to 

identify and evaluate energy-efficiency and renewable-energy projects, as 

well as evaluating other emissions reduction projects that may fall outside

the scope of energy audits. The strategy would also involve developing an

implementation plan that considers cost-effectiveness, the extent to which

the projects reduce emissions, and funding options.

15

A Strategy for 

Reducing Emissions 

Generated by 

Legislative Branch 

Operations Includes 

Conducting Energy 

Audits and Evaluating 

Other Projects 

Energy Audits Are Key to 

Addressing Largest 

Sources of Emissions 

Conducting energy audits would assist the legislative branch in addressing 

the largest sources of emissions—the consumption of purchased 

electricity and fossil fuel combustion in the Capitol Power Plant—because

these audits identify cost-effective systemwide energy-efficiency and 

renewable-energy projects.16 Energy audits typically include information 

on projects that could address these emissions sources, as well as projects 

that could reduce emissions from other sources, such as the consumption 

of purchased natural gas and leaks in refrigeration equipment. Energy 

audits also include information on the cost-effectiveness of projects and 

on the extent to which the projects could reduce emissions, which assist 

agencies in evaluating and selecting projects. In general, projects 

identified by energy audits as generating savings sufficient to pay for the 

capital costs of the projects are deemed cost-effective. Other projects 

identified through the energy audits may partially pay for themselves and 

could be considered cost-effective relative to other projects. Energyefficiency projects are generally more cost-effective than renewableenergy projects because many renewable-energy projects are not cost 

competitive when compared with more traditional sources of power. 

There are three main types of energy audits—preliminary, targeted, and 

comprehensive. Each type is distinguished by the level of detail and 

analysis required to complete the audit. Less detailed audits include less 

accurate estimates of project costs and energy savings. Preliminary energy

 15An implementation plan would also consider continuity of operations, security, and 

neighborhood concerns. 

16Generally, on-site renewable generation projects are included in an energy audit upon 

request. 

Page 12 GAO-07-516 Legislative Branch
audits are the least detailed and provide quick evaluations to determine a 

project’s potential. These energy audits do not provide sufficiently detailed 

information to justify investing in the identified projects. Instead, 

preliminary audits are primarily used to decide if a more detailed 

evaluation is necessary. Targeted audits are detailed analyses of specific 

systems, such as lighting or boiler replacement. Comprehensive audits are

detailed evaluations of all major energy-using systems. Targeted and 

comprehensive audits provide sufficiently detailed information to justify 

investing in projects. AOC, GAO, and GPO commissioned six preliminary, 

four targeted, and one comprehensive energy audit of some of their 

facilities from fiscal years 1998 through 2006.17

AOC commissioned preliminary audits of the Capitol in June 2000, the 

Rayburn House Office Building in April 2003 and December 2003, the Hart

Senate Office Building in December 2003, and the LOC Madison Building 

in May 2005. These audits identified cost-effective projects, meeting the 

definition of cost-effectiveness found at 10 CFR §§ 436.18-436.22. For 

example, the energy audit of the LOC Madison Building identified 12 costeffective projects with savings-to-investment ratios18 ranging from 1.02 to 

3.87. It was estimated that these projects would reduce emissions from 

electricity by approximately 4,760 metric tons per year. However, 

according to agency officials, AOC has not followed up with energy audits

that provide sufficiently detailed information to justify investing in 

projects at these facilities because of fiscal constraints.19 There are also 

approximately 27 buildings under AOC’s jurisdiction that have not had any 

type of energy audit. In the fiscal year 2008 budget, AOC requested 

$1.1 million to fund the first two years of a five-year plan to perform 

energy surveys of all its facilities. 

In addition to the energy audits, AOC has conducted Facility Condition 

Assessments and other studies of facilities in need of upgrades and 

 17According to a FEMP official, several of AOC’s audits (the SAVEnergy audits) were more 

detailed than a preliminary audit, but did not provide sufficiently detailed information to 

justify investing in projects. Therefore, we are including these audits within the preliminary 

energy audit category. 

18One criterion for determining the cost-effectiveness of projects is the savings-toinvestment ratio—that is, the ratio of the present value savings to the present value costs of 

an energy conservation measure. A ratio of 1.0 or greater is considered cost-effective. 

19AOC had a comprehensive energy audit prior to 1998 that identified a project to replace 

160,000 lights with energy saving lights throughout the Capitol Complex. AOC implemented 

this project in 1998. 

Page 13 GAO-07-516 Legislative Branch
repairs, which identified projects that would yield potential energy 

efficiency improvements. However, most of these projects have not been

implemented. Since 2004, AOC has evaluated the viability of changing the 

Capitol Power Plant to cogeneration, which could provide steam, 

supplementary electricity, and backup power to the Capitol complex and 

reduce emissions by more efficiently capturing the energy output. AOC 

also began a project in 2001 to evaluate the clean coal technology 

alternatives to supplement or replace the existing Capitol Power Plant 

steam generating facilities to reduce emissions from burning coal. In 

addition, AOC took initial steps in response to legislation that required the 

agency to develop and implement a cost-effective energy conservation 

strategy.20 For example, AOC purchased a building automation system that 

will be used to operate mechanical and electrical systems more efficiently 

throughout the Capitol complex, purchased energy-efficient chillers to 

supplement production of chilled water at the Capitol Power Plant, and is

evaluating proposals from contractors for installing energy conservation 

measures, including on-site renewable energy, on the rooftop of the 

Dirksen Senate Office Building. 

In 1999, GPO had a preliminary energy audit and chose to implement two 

of the projects identified as cost-effective—the replacement of its chillers 

and 15,000 light fixtures–after a targeted energy audit of the chillers in 

2000. According to officials, GPO pursued only those projects with the 

shortest payback periods because of its limited budget and plans to 

relocate. GPO does not have a regular schedule for conducting energy 

audits. 

GAO had a comprehensive energy audit in 2002 and plans to have another 

comprehensive energy audit by fiscal year 2009. GAO also conducts a 

targeted energy audit of its facility every 2 years as part of its building 

 20In the Energy Policy Act of 1992, Congress included language requiring that AOC 

(1) implement a lighting retrofit program to replace incandescent lighting and, subject to

available funding, to upgrade florescent lighting in the Capitol, House and Senate Office 

buildings, and the Capitol grounds, and (2) to evaluate and report on other potential energy

conservation measures. Pub. L. 102-486, § 168. In a provision attached to the Legislative 

Branch Appropriations Act, 1999, Pub. L. 105-275, § 310 (1998), AOC was tasked with 

developing and implementing a cost-effective energy conservation strategy for all facilities 

administered by Congress. This language was repealed by the Energy Policy Act of 2005,

Pub. L. 109-58, § 101, amending Part 3 of title V of the National Energy Conservation Policy

Act, 42 U.S.C. 8251 et seq., which additionally expanded energy and water conservation 

planning by AOC in order to achieve a cost-effective energy conservation and management 

plan. 

Page 14 GAO-07-516 Legislative Branch
assessment report. GAO has implemented the majority of the projects 

identified through its audits, such as installing optimization controls for 

the air-handling system and installing specialized software to decrease 

electricity use during periods of peak demand.21 In addition, GAO routinely 

considers other opportunities taking into account technology, price, and 

available funding. 

Legislative branch agencies have three methods for financing energy 

audits and implementing projects: energy savings performance contracts 

(ESPC), utility energy savings contracts (UESC), or direct appropriations. 

Congress authorized agencies to use ESPCs to privately finance energyefficiency and renewable-energy projects in 1986. Under an ESPC, 

agencies enter into a long-term contract (up to 25 years) with a private 

energy services company under which the company conducts a 

comprehensive energy audit of the agency, then finances and implements 

projects approved by the agency. The agency then repays the company 

with the resulting energy savings. The energy audits of the Rayburn and 

Hart buildings were done through an initial proposal for an ESPC. UESCs 

are similar to ESPCs, but are offered by electric and gas utilities and can

cover smaller projects. The third financing mechanism is direct

appropriations. While GPO’s preliminary audit was conducted by Pepco 

Energy Services under an initial proposal for an UESC, GPO opted to fund

the projects with direct appropriations. According to GPO officials, the 

projects cost $6 million and reduced the agency’s energy bills by $1 million 

a year. GAO funds its energy audits through direct appropriations and 

seeks funding for implementing projects in its annual budget requests. 

In 1995, DOE’s FEMP initiated the SAVEnergy Program, which provided 

funding for energy audits of federal facilities but not for project 

implementation. FEMP funding for SAVEnergy audits was eliminated in 

fiscal year 2006. Three energy audits—for the Capitol and the Rayburn and 

Madison buildings—were conducted under the SAVEnergy Program. 

 21GAO implemented numerous additional energy-efficiency projects identified through 

energy audits during the height of GAO’s building modernization program in the early to

mid-1990s—a time period that is outside the scope of our study. The projects included: 

high-efficiency chillers, variable-speed pumping, variable air volume air handlers, highefficiency motors, building temperature controls, heating hot water improvements, 

domestic hot water improvements, roof insulation, and window film. 

Page 15 GAO-07-516 Legislative Branch
In addition to projects identified through energy audits, a strategy would 

include evaluating other projects to reduce emissions that may fall outside

the scope of energy audits, such as (1) projects to reduce electricity 

emissions by curtailing energy use, purchasing high-efficiency appliances, 

using renewable electricity, and considering the energy efficiency of 

facilities when constructing new facilities and before entering into leases; 

(2) projects to reduce emissions from the combustion of fossil fuels in the 

Capitol Power Plant by adjusting the fuel mix; (3) projects to reduce 

vehicle emissions by acquiring fuel-efficient vehicles and vehicles that run 

on renewable fuel; and (4) projects to reduce overall emissions by 

purchasing offsets. The cost-effectiveness, emissions reductions, and 

funding options for each of these projects would have to be evaluated on a 

case-by-case basis. Compared with projects identified through energy

audits, several of these projects cost more to implement but could reduce 

emissions faster. 

• Curtailing energy use: These projects would include enhancing outreach

and education efforts to encourage building occupants to curtail their 

energy use. Examples of energy curtailment outreach efforts include a

June 2006 memo from GAO management requesting all employees to help

conserve electricity, AOC’s “how-to guides” distributed to Members of 

Congress and their staff detailing cost-effective methods to save energy in 

the workplace, and GPO’s goal-sharing program, which is an incentive

award program that encourages employees to reduce energy consumption 

and splits the cost savings realized from these efforts equally between the 

agency and its employees. According to GPO, fiscal year 2006 energy 

savings totaled $558,604, for an estimated award of $126.27 per employee. 

Energy curtailment activities generally involve a trade-off between 

convenience and productivity, and energy use. 

Evaluating Other Projects 

Could Identify Additional 

Ways to Reduce Emissions 

Projects to Further Reduce 

Electricity Emissions 

• Purchasing energy-efficient computer equipment and appliances: 

Energy-efficient products have been identified through two federal 

programs—the Energy Star Program and FEMP. Energy Star-qualified and 

FEMP-designated products meet energy-efficiency guidelines set by EPA 

and DOE and, in general, represent the top 30 percent most energy 

efficient-products in their class of products. These products cover a wide 

range of categories, including appliances and office equipment. According 

to the Energy Star program, office products that have earned the Energy 

Star rating use about half as much electricity as standard equipment and 

generally cost the same as equipment that is not Energy Star-qualified.

Under section 104 of the Energy Policy Act of 2005, agencies are required 

to purchase Energy Star-qualified and FEMP-designated products. Some of 

the agencies have reported adopting such practices to further reduce 

emissions. For example, officials from AOC and GAO reported that they 

Page 16 GAO-07-516 Legislative Branch
currently have all Energy Star-qualified information technology equipment. 

• Purchasing renewable electricity: Renewable-energy certificates (REC) 

represent the environmental, social, and other positive attributes of 

electricity generated by renewable resources. RECs can be purchased 

independent of the associated electricity from a wholesale supplier or 

bundled with the electricity from a utility company. It is usually less 

expensive to buy RECs from a wholesale supplier because a supplier 

generally has access to a wider array of resources than a utility company. 

In both cases, purchasing RECs helps the electricity generator invest more 

money in renewable energy, increasing the amount of renewable 

electricity and decreasing the amount of fossil fuel electricity entering the 

country’s power supply. For 8 months beginning in September 2003, AOC 

purchased RECs from its utility, Pepco Energy Services—equal to 

51,296,000 kilowatt hours, or approximately 15 percent of its annual 

electricity use. In November 2006, AOC, GPO, and GAO participated in a 

GSA areawide electricity contract with Pepco Energy Services to purchase 

RECs equal to 3 percent of their energy consumption in order to meet the 

Energy Policy Act of 2005 federal purchase requirement.22 Other federal 

agencies, such as the Environmental Protection Agency, have chosen to 

purchase RECs equal to 100 percent of their energy use. 

• Leasing and constructing energy-efficient facilities: Another way to 

reduce emissions is to consider the efficiency of potential building space

when renewing or entering into a new lease as well as applying energyefficiency measures in the design and construction of new federal 

facilities. Under the Energy Policy Act of 1992, executive branch agencies 

are required to fully consider energy efficiency when leasing and 

constructing facilities. AOC was also required to apply federal building 

energy standards adopted under the act to new buildings within its 

jurisdiction. AOC adopted a standard equivalent to a Silver rating of the 

Leadership in Energy and Environmental Design (LEED) Green Building 

Rating System in 2006 as a minimum standard for all new construction.23

The LEED Rating System, created and maintained by the U.S. Green 

Building Council, provides a benchmark for the design, construction, and

operation of high-performance green buildings.

 22Section 203 of the Energy Policy Act of 2005 establishes a goal of ensuring that the federal

government consumes not less than 3 percent renewable energy in fiscal years 2007 

through 2009, not less than 5 percent in fiscal years 2010 through 2012, and not less than 

7.5 percent in fiscal year 2013 and in each fiscal year thereafter. 

23The construction of the Capitol Visitor Center predates this requirement.

Page 17 GAO-07-516 Legislative Branch
• Adjusting the fuel mix: The fuel mixture at the Capitol Power Plant could 

be adjusted to include renewable fuels, such as biomass. However, using 

renewable fuels would require extensive boiler retrofits and changes to 

emissions control technology. The agency could also adjust the fuel 

mixture to increase the use of natural gas since natural gas produces less 

carbon dioxide than any other fossil fuel. As discussed earlier, when AOC 

substituted natural gas for some coal in 2006 because of problems with its 

coal boilers, emissions from the power plant decreased. However, in 2006,

the price of natural gas was more than five times higher than coal. 

Projects to Further Reduce 

Emissions from the 

Combustion of Fossil Fuels in 

the Capitol Power Plant 

• Acquiring fuel-efficient vehicles: Approximately 296—92 percent—of 

legislative branch vehicles in fiscal year 2006 were trucks (approximately 

73 percent of which are light duty trucks). Heavy duty trucks have an 

actual average fuel economy of 8.8 miles per gallon, light duty trucks have

an actual average fuel economy of 16.2 miles per gallon, and cars have an

actual average fuel economy of 22.4 miles per gallon. Hybrid-electric 

vehicles have even higher fuel economies because they combine an 

electric motor and battery pack with an internal combustion engine to

improve efficiency. For example, the hybrid Toyota Camry is rated at 

39 miles per gallon, while the rating for the gasoline-fueled standard model 

is 27 miles per gallon. There are currently no hybrid-electric vehicles in the 

legislative branch vehicle fleets. Hybrid electric vehicles are, on average, 

about $8,200 more expensive than the lowest-priced gasoline vehicle in 

fiscal year 2007. 

Projects to Further Reduce 

Vehicle Emissions 

• Acquiring alternative-fuel vehicles: Alternative-fuel vehicles include 

dedicated, flexible-fuel, or dual-fuel vehicles designed to operate on at 

least one alternative fuel, such as ethanol or biodiesel. The legislative 

branch vehicle fleets include 35 alternative-fuel vehicles and, in September 

2006, AOC adopted a policy specifying that all newly acquired vehicles, 

with a few exceptions, are to be alternative-fuel vehicles. Although 

legislative branch entities are purchasing these vehicles, they generally

fuel them with gasoline because the infrastructure for supplying 

alternative fuel in the Washington, D.C., metropolitan area is not 

conveniently located for legislative branch employees.24 LOC was the only 

entity that reported using ethanol to fuel its alternative-fuel vehicles to 

date, using 18 gallons in fiscal year 2006. LOC also reported using 8 cubic 

feet of compressed natural gas in fiscal years 2005 through 2006 to fuel its 

two gasoline/compressed natural gas light-duty vehicles. Alternative-fuel

 24The closest ethanol fuel pumps are located at a service station that is approximately 

2 miles from the legislative branch buildings, and the service station only fuels legislative

branch vehicles that are leased by GSA. 

Page 18 GAO-07-516 Legislative Branch
vehicles that run on ethanol or gasoline are, on average, $1,500 more 

expensive than the lowest-priced gasoline vehicle in fiscal year 2007 and 

get 20 percent to 30 percent fewer miles per gallon, but Congress is 

encouraging the use of these vehicles because burning ethanol in vehicles 

instead of gasoline reduces emissions by 18 percent to 29 percent per 

gallon. In response, AOC’s alternative fuel-vehicle policy states that the 

initial cost shall not be considered as a factor unless it exceeds the initial

cost of a comparable conventionally fueled vehicle by at least 5 percent. 

However, despite the emissions reductions associated with burning 

ethanol in vehicles instead of gasoline, the net energy benefit of using 

ethanol is less clear cut when full life-cycle emissions are taken into 

account. If the emissions from the production of ethanol are included, 

ethanol can have higher emissions per gallon. It can also have higher 

emissions of VOCs per mile traveled, compared with gasoline.

• Purchasing offsets: Offsets are credits for emissions reductions outside an 

entity’s sphere of operations and can be purchased in the retail

marketplace. Offset projects range from buying credits for carbon 

sequestration resulting from planting trees to funding energy-efficiency 

upgrades at a power plant in another city. The price of offsets ranges from 

$5 to $25 per ton, averaging about $10 per ton. While not specifically 

considered offsets, RECs also reduce emissions outside an entity’s sphere 

of operations. The renewable electricity associated with nationallysourced RECs—those generated by sources in another part of the 

country—do not enter the customer’s electricity supply. In general, these 

RECs are less expensive than RECs generated from local sources. 

However, RECs generated from local sources support local projects, and 

the renewable energy enters the local electricity supply which increases 

the amount of renewable electricity received by the customer. The 

legislative branch agencies’ RECs contract did not exclude national RECs, 

but Pepco Energy Services won the contract with a proposal that included

only RECs generated from local sources. 

Although the legislative branch is not required to inventory greenhouse 

gas emissions or develop an overall strategy to reduce emissions, 

individual legislative branch agencies have been taking some steps to 

minimize or reduce emissions. However, the legislative branch as a whole

has not focused on reducing emissions. The base year, inventory, and 

trends presented in this report could serve as a starting point for a 

legislative branch initiative to follow the efforts of other U.S. government 

and private-sector entities to reduce emissions. 

Projects to Reduce Overall 

Emissions 

Conclusions 

Page 19 GAO-07-516 Legislative Branch
Energy audits are a key step in identifying projects to reduce the largest 

sources of emissions from legislative branch operations. While all 

legislative branch agencies recognize the benefits of energy audits to 

reduce emissions, the agencies have varied in the extent to which they

have used such audits. Consequently, each agency would benefit from a 

schedule to conduct audits regularly and a plan for implementing and 

financing the most cost-effective projects identified through the audits. 

The legislative branch could also evaluate other projects to reduce 

emissions, including curtailing energy use, acquiring fuel-efficient and 

alternative-fuel vehicles, and purchasing offsets, and combine these 

evaluations with information acquired from energy audits to develop an 

implementation plan for reducing emissions. 

Agencies that manage the operations of the legislative branch should 

establish a schedule for routinely conducting energy audits that provide 

sufficiently detailed information-—such as targeted or comprehensive 

audits-—to justify investing in projects. Furthermore, the agencies should 

implement selected projects as part of an overall plan to reduce emissions 

that considers cost-effectiveness, the extent to which the projects reduce 

emissions, and funding options. 

We provided a draft of this report to the Architect of the Capitol, the 

Government Printing Office, and GAO for review and comment. We 

received comments orally and via e-mail from officials designated to speak 

for their agencies. All of the agencies agreed with the report’s overall 

findings and recommendations and offered technical suggestions that we 

have incorporated, as appropriate. The Architect of the Capitol noted that, 

while AOC operates the facilities within the Capitol complex and would be 

responsible for energy audits of the building systems and implementing 

the projects that result from the energy audits, the agency has little 

influence over the energy use activities of the occupants of the facilities. 

We are sending copies of this report to the appropriate congressional 

committees, the Acting Architect of the Capitol, and the Acting Public 

Printer. We will also make copies available to others upon request. In 

addition, this report will be available at no cost on GAO’s Web site at 

http://www.gao.gov. 

Recommendations for 

Executive Action 

Agency Comments 

and Our Evaluation 

Page 20 GAO-07-516 Legislative Branch
If you or your staffs 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. Major contributors to this report are listed in appendix V. 

Terrell G. Dorn 

Director, Physical Infrastructure Issues 

Page 21 GAO-07-516 Legislative Branch
Appendix I: Objectives, Scope, and Appendix I: Objectives, Scope, and Methodology 

Methodology 

To conduct an inventory of the greenhouse gas emissions generated by 

legislative branch operations, we followed the Greenhouse Gas Protocol1

and additional guidance from the Environmental Protection Agency’s 

(EPA) Climate Leaders program.2

 In accordance with the Greenhouse Gas 

Protocol, the scope of our work included direct emissions, such as the 

combustion of fossil fuels at the Capitol Power Plant, and indirect 

emissions from the consumption of purchased electricity, natural gas, 

steam, and chilled water. We excluded other indirect emissions that are 

optional under the Greenhouse Gas Protocol, such as those generated 

from business travel in private vehicles or commercial airplanes, employee 

commuting, or paper use. Our work covered the legislative branch’s leased

and owned facilities and vehicles within the Washington, D.C., 

metropolitan area. We excluded indirect emissions from the U.S. Capitol 

Police for security reasons, as well as non-legislative branch facilities 

under AOC’s jurisdiction, such as the U.S. Supreme Court. We also 

excluded emissions from the Medicare Payment Advisory Commission and 

the Stennis Center for Public Service because of their small size and 

location within buildings outside of the legislative branch. 

To calculate emissions for the inventory of greenhouse gas emissions and 

identify emissions trends, we selected a base year, which is a reference 

year against which changes in emissions are measured over time. We 

selected the average annual emissions in fiscal years 1998 through 2001 as

the base year because this is the time period set by the Chicago Climate 

Exchange, a voluntary greenhouse gas reduction program. We collected 

activity data from the Architect of the Capitol (AOC), GAO, Government 

Printing Office (GPO), Library of Congress, Congressional Budget Office, 

Senate Sergeant at Arms, House of Representatives Chief Administrative 

Officer, and General Services Administration (GSA) for each source of 

emissions, such as kilowatt hours of electricity, from fiscal years 1998 

through 2006. In general, we multiplied the data by a corresponding 

emissions factor to determine emissions for each year. An emissions 

 1

The Greenhouse Gas Protocol was developed by the World Resources Institute, a U.S.

nongovernmental organization, and the World Business Council for Sustainable 

Development, a Geneva-based coalition of 170 international companies, as internationally 

accepted accounting and reporting standards. It was designed to be program/policy neutral 

and is compatible with most greenhouse gas inventory programs. 

2

Climate Leaders is an EPA-sponsored industry-government partnership that works with 

companies to develop long-term comprehensive climate change strategies. Partners set a 

corporatewide greenhouse gas reduction goal and inventory their emissions to measure

progress. 

Page 22 GAO-07-516 Legislative Branch
Appendix I: Objectives, Scope, and 

Methodology 

factor is a representative value that relates the quantity of a pollutant 

released to the atmosphere with an activity associated with the release of

that pollutant. See table 2 for a list of emissions factors. We converted all

greenhouse gas emissions to carbon dioxide equivalents by multiplying 

emissions for each greenhouse gas by its corresponding global warming 

potential. See table 3 for a list of the global warming potential of each

greenhouse gas. The House of Representatives Chief Administrative 

Officer was unable to provide fuel use data from the House of 

Representatives’ 23 vehicles or volatile organic compounds (VOC) 

emissions data from its furniture shop that performs wood refinishing, 

painting, and upholstery. In addition, AOC was unable to provide data on

leaks from their oil, diesel and propane tanks. Therefore, greenhouse gas 

emissions from these sources were not included in our calculations. In 

analyzing emissions trends from the base year to fiscal year 2006, we used

data from the National Oceanic and Atmospheric Administration to 

compare changes in the local weather to changes in emissions to help 

explain emission trends. 

Table 2: Emissions Factors 

Fuel type

Carbon dioxide

emissions factor

Nitrous oxide

emissions factor

Methane 

emissions factor

Bituminous coal from West Virginia 207.1 lbs/mmBTU 1.4 g/mmBTU 10 g/mmBTU

Oil 161.386 lbs/mmBTU 0.601 g/mmBTU 10 g/mmBTU

Natural gas 117.08 lbs/mmBTU 0.095 g/mmBTU 4.75 g/mmBTU

Electricity (Mid-Atlantic Area Council 

power pool) 

1.098 lbs/kwh (2000+) 

1.153 lbs/kwh (1999) 

1.199 lbs/kwh (1998) 

0.0000162 lbs/kwh 0.0000241 lbs/ kwh 

Gasoline 8.87 kg/gallon a a

Diesel 9.95 kg/gallon a a

Ethanol 5.5 kg/gallon 0.076 g/mile 0.043 g/mile 

Compressed natural gas 0.054 kg/cubic feet 0.113 g/mile 0.914 g/mile 

Propane 139.178 lbs/mmBTU 0.22 g/gallon 0.50 g/gallon 

Sources: Energy Information Administration, Environmental Protection Agency, and World Resources Institute. 

a

The emissions factor varies by vehicles type and model year. For specific values see U.S. EPA 

Climate Leaders GHG Inventory Protocol, Mobile Combustion Sources-Guidance, Table 3. 

Page 23 GAO-07-516 Legislative Branch
Appendix I: Objectives, Scope, and 

Methodology 

Table 3: Global Warming Potentials of Greenhouse Gases 

Greenhouse gas Global warming potential

Carbon dioxide 1

Methane 21 

Nitrous oxide 310 

Hydrofluorocarbons 

• R-23 11,700

• R-125 2,800

• R-134a 1,300

• R-143a 3,800

• R-152a 140

• R-227ea 2,900

• R-236fa 6,300

Perfluorocarbons 

• Perfluoromethane 6,500

• Perfluoroethane 9,200

Sulfur hexafluoride 23,900

Source: Intergovernental Panel on Climate Change, 1996. 

Note: While the Intergovernmental Panel on Climate Change has published updated figures since its 

1996 report, nations use the 1996 figures to maintain consistency for reporting purposes. 

Some legislative branch entities verified the accuracy of their activity data

and made corrections as they deemed appropriate. Some entities also 

made assumptions about their data. For example, AOC’s data were 

incomplete because there were periods of time for which AOC was not 

billed for energy use. AOC officials made the assumption that these 

facilities were under the control of a contractor/vendor during this period 

and bills were being paid for by these outside entities. We did not 

independently verify the accuracy of the data. In calculating the 

greenhouse gas emissions, we also had to make several assumptions in the 

absence of data. (See app. II for additional details on the calculations and

assumptions.) Unless otherwise noted, we determined the data were 

sufficiently reliable for the purposes of this report. 

To identify a strategy for reducing emissions, we reviewed documents 

from the World Resources Institute, and Congressional Research Service; 

and we interviewed officials and reviewed documents from AOC, GPO, 

and GAO to learn about energy audits and emissions reduction projects 

that the legislative branch has already implemented. We also interviewed 

officials from the National Renewable Energy Laboratory and DOE’s 

Page 24 GAO-07-516 Legislative Branch
Appendix I: Objectives, Scope, and 

Methodology 

Federal Energy Management Program about energy audits, and types of 

emissions reduction projects and their cost-effectiveness; and officials 

from GSA about emissions reduction projects related to vehicles. In 

addition, we also interviewed Pepco Energy Services about its renewable 

energy contracts with the legislative branch agencies. We conducted our 

work from August 2006 through April 2007. 

Page 25 GAO-07-516 Legislative Branch
A

Methodology, C

Used i

Greenho

ppendix II: Technical Information on

alculations, and Assumptions

n Conducting an Inventory of 

use Gas Emissions 

Page 26 GAO-07-516

Appendix II: Technical Information on 

Methodology, Calculations, and Assumptions 

Used in Conducting an Inventory of 

Greenhouse Gas Emissions

To develop a greenhouse gas inventory in accordance with the 

Greenhouse Gas Protocol, we set an organizational boundary, operational 

boundary, and base year. 

This boundary defines the legislative branch and the criteria for reporting 

emissions. 

• For the purpose of this report, the legislative branch includes the 

Architect of the Capitol (AOC), GAO, Government Printing Office 

(GPO), Library of Congress (LOC), Congressional Budget Office (CBO), 

and U.S. Botanic Garden. AOC has jurisdiction over the day-to-day 

operations of the Senate Office Buildings, House Office Buildings, U.S. 

Capitol and Grounds, LOC Buildings and Grounds, Capitol Power 

Plant, and U.S. Botanic Garden. 

• We applied the Greenhouse Gas Protocol’s control approach based on 

the operational control criterion. Under this criteria, the legislative 

branch accounts for 100 percent of emissions from operations over 

which it has operational control—the full authority to introduce and 

implement operating policies. 

• While the Greenhouse Gas Protocol states that geographic location is 

not relevant to establishing an organizational boundary, the scope of 

this study was limited to the Washington, D.C., metropolitan area 

because the majority of the legislative branch activity is located in this 

geographic area and data for activities outside this area were not 

readily available. 

Methodology 

Organizational boundary 

Operational boundary This boundary identifies and categorizes the sources of emissions from 

legislative branch operations. 

• The inventory includes emissions from the combustion of fossil fuels in 

the Capitol Power Plant and emergency generators, business travel in 

government-owned and leased vehicles, and heavy machinery; leaks in 

refrigeration equipment; the release of volatile organic compounds 

(VOC) in furniture and print shops; leaks from oil, diesel and propane 

tanks;1

 and the consumption of purchased electricity, natural gas, 

steam, and chilled water. 

 1

No data were available from this source. 

Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

• These emissions are placed in categories, or “scopes,” defined by the 

Greenhouse Gas Protocol: 

Scope 1 (direct emissions from sources that are controlled by the 

legislative branch): 

• combustion of fossil fuel at the Capitol Power Plant; 

• combustion of fossil fuels in emergency generators; 

• business travel in government-owned and leased vehicles, as 

well as heavy machinery;

• leaks in refrigeration equipment; 

• leaks from oil, diesel and propane tanks;2 and 

• release of VOCs in furniture and print shops. 

Total Scope 1 emissions in fiscal year 2006: 106,045 metric tons of 

carbon dioxide equivalents. 

Scope 2 (indirect emissions from the consumption of purchased 

electricity, natural gas, steam, and chilled water by the legislative 

branch): 

• use of electricity, 

• use of natural gas, 

• use of steam, and 

• use of chilled water. 

Total Scope 2 emissions in fiscal year 2006: 209,946 metric tons of 

carbon dioxide equivalents. 

Scope 3—optional (all other indirect emissions such as paper use, 

contracted work, shipping/courier services, Member or employee 

travel and commuting, resource extraction, production and waste 

disposal, and transmission and distribution losses associated with the 

consumption of purchased electricity): 

• none of these optional sources were included in the inventory. 

 2

No data were available from this source. 

Page 27 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

A base year is a reference year against which changes in emissions are 

measured over time. We selected the average annual amount emitted in 

fiscal years 1998 through 2001 for the base year because this is the time 

period set by the Chicago Climate Exchange, a voluntary greenhouse gas

reduction program. 

The following section explains calculations and assumptions needed to

prepare the data for the standard emissions equation (activity data x

emissions factor = emissions) as well as additional information on specific 

sources. It is organized by relevant emissions sources and greenhouse 

gases. The first part includes those calculations and assumptions that 

apply to all legislative branch operations; the second part includes those 

that are specific to individual entities. The second part also contains tables 

that show the results of the emissions calculations by entity, source, and 

scope. 

Base year 

Calculations and 

Assumptions 

General • Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: We substituted the 

appropriate carbon dioxide emission factors for the methane and 

nitrous oxide emission factors. However, unlike carbon dioxide 

emission factors for vehicles, which are expressed in kilograms per 

gallon, these emission factors are expressed in grams per mile. 

Therefore, we used the formula: mileage = fuel use x fuel economy 

when the mileage was not provided. Except where noted, we obtained 

the average fuel economy figures from the Federal Highway 

Administration’s 2004 Highway Statistics.3

 For vehicles fueled with 

ethanol, we reduced the fuel economy by 30 percent because ethanol 

has approximately 30 percent less energy per gallon than gasoline. 

For vehicles fueled with compressed natural gas (CNG), we used an 

average fuel economy of 13 miles per gallon of gasoline equivalent as 

found at www.fueleconomy.gov. Since methane and nitrous oxide 

vehicle emission factors vary by model year and vehicle type, we 

categorized each entity’s vehicles by type (car, light truck, or heavy

truck) and model year to the best of our ability. Since emission factors 

are available only through fiscal year 2002, we used the fiscal year 2002 

figure for all vehicles from fiscal years 2002 through 2007. Similarly, if 

vehicles were older than the earliest available emissions factors, we 

used the earliest available factors. To estimate the mileage for each 

 3

See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm. 

Page 28 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

type of vehicle, we calculated the percentage of the vehicle type out of 

the total number of vehicles and then used that percentage of the total 

mileage. By equating the percentage of vehicle type with the 

percentage of mileage, we are assuming that all vehicles are driven 

equally. 

• Emissions from the release of VOCs: We first calculated the carbon 

emissions using the formula: carbon emissions = VOC release x carbon 

content. We used the standard carbon content of VOCs, which is 

56 percent of the VOC release, according to the U.S. Environmental 

Protection Agency (EPA). To convert carbon emissions to carbon 

dioxide emissions, we used the conversion factor 44/12 as laid out in 

EPA’s Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-

2004. 

• Emissions from the consumption of purchased steam: To convert 

steam consumption at the Ford House Office Building and GAO from 

pounds to BTUs, we used the heat content 1,003.342 BTUs/pound.4

 To 

determine emissions, we calculated the activity data—that is, the fuel 

used by the General Services Administration (GSA) to generate every 

mmBTU of steam consumed. We used the formula: activity data [fuel 

input] = steam produced/boiler efficiency. We took boiler efficiency 

into account because some fuel input is lost in flue gases when fuel 

enters the boiler. Since we were unable to obtain the boiler efficiency

for GSA’s boilers, we used the default efficiency value of 80 percent 

recommended by the EPA Climate Leaders program. Next, we divided

the activity data into fuel type because the fuel input included both 

natural gas and oil. We calculated the emissions for each type of fuel 

and then added them to determine total emissions. 

• Emissions from the consumption of purchased electricity and 

natural gas at leased facilities: Under the operational control 

approach set forth by the Greenhouse Gas Protocol, we defined 

operational control based on the agency occupying the space and, 

therefore, included the emissions from legislative branch capital leases 

and operating leases as Scope 2 emissions, even if this required 

estimating energy use based on an entity’s occupied square footage. 

 4

See http://www.energystar.gov/ia/business/tools_resources/target_finder/help/ 

Energy_Units_Conversion_Table.htm. 

Page 29 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

• Emissions from leased vehicles: Under operational controls set forth 

by the Greenhouse Gas Protocol, all leased vehicles are Scope 1 

emissions. Therefore, there was no need to differentiate between 

government-owned and -leased vehicles. 

• Adjustment for purchased renewable energy certificates (REC): We 

used the following formula to calculate emissions from renewable 

electricity: emissions = activity data for green electricity x emissions 

factor for power pool where renewable power is generated. We 

determined the power pool where the renewable power was generated 

using data provided to us by Pepco Energy Services. These emissions 

were subtracted from Scope 2 emissions to determine total net 

emissions. 

Entity specific 

AOC 

Table 4: Capitol Complex Greenhouse Gas Emissions from Operations under AOC’s Jurisdiction by Scope and Source for 

Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Combustion of coal in Capitol Power Plant 34,733.26 58,297.95

Combustion of oil in Capitol Power Plant 17,316.47 5,367.95

Combustion of natural gas in Capitol Power Plant 43,770.56 38,993.21

Refrigeration equipment leakage 2,322.31

Business travel in government-owned and -leased vehicles; heavy machinery 402.70 377.78

Release of VOCs in paint shop 7.45 7.45

Scope 1 total 96,230.44 105,366.66

Scope 2

Consumption of purchased electricity 153,691.41 165,660.45

Consumption of purchased natural gas 1,169.57 1,738.49

Consumption of purchased chilled water 5,754.24 4,153.32

Consumption of purchased steam 1,075.92 1,627.71

Scope 2 total 161,691.14 173,179.97

Total 257,921.59 278,546.63

Source: GAO analysis of AOC and GSA data.

Page 30 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

• Emissions from the combustion of fossil fuels in the Capitol Power 

Plant: AOC officials provided us with test certifications of the coal’s 

heat content from fiscal years 2003 through 2006. To convert pounds of 

coal to BTUs for each of these fiscal years, we used an average of that 

year’s test certifications. For fiscal years 1998 through 2002, we took an 

average of the BTU/pound ratings we used for fiscal years 2003 through 

2006. To convert gallons of oil to BTUs, AOC officials reported using 

the heat content of 140,000 BTUs/gallon provided by DOE. It is also 

important to note that the Capitol Power Plant’s emissions include 

emissions from the steam that is sold to Union Station, Folger

Shakespeare Library, and Postal Square, which are not legislative 

branch facilities, with the exception of AOC’s leased space in Postal 

Square. 

• Emissions from the consumption of purchased electricity: Electricity 

service to the Capitol Power Plant coal yard stopped in 2004 because of 

construction. When Pepco Energy Services restarted the service, it did

so without reinstalling a meter (an internal account coordination 

oversight at the utility). Upon discovery of the problem, Pepco Energy 

Services installed a new meter at the beginning of fiscal year 2007 and 

negotiated an estimated usage/cost with AOC for the months the 

account was not metered. However, according to AOC officials, the 

settlement does not accurately reflect usage. Therefore, we assumed 

that the coal-yard electricity usage remained constant for fiscal years 

2003 through 2006. 

• Emissions from business travel in government-owned and -leased 

vehicles: Gasoline fuel use data were available for fiscal years 2003 

through 2006, and diesel fuel use data were available for fiscal years 

2004 through 2006. Therefore, we assumed the vehicle activity data 

remained constant for the earlier years. In addition, if employees fueled 

vehicles using a GSA-issued fleet services card, AOC officials said this 

fuel would not be accounted for in the data they provided to us. AOC 

also reported a shuttle bus in its inventory, but it is fueled and

maintained by a contractor; therefore, its fuel use was not included in 

the inventory. AOC has seven alternative-fuel vehicles. However, from 

our discussions with AOC officials, we assumed that these vehicles 

were fueled with gasoline. 

• Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: According to AOC, the 

number of vehicles remained relatively constant during fiscal years 

1998 through 2006. Vehicle type and model year data were available for 

fiscal year 2006. Therefore, we assumed that the vehicle type data 

Page 31 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

remained constant from fiscal years 1998 through 2006. We also 

assumed that the model year was 1 year earlier than the year we were 

calculating, unless the model year provided in the fiscal year 2006 data 

was earlier. In such cases, we kept the earlier year. In addition, AOC 

provided diesel-fuel use data that were aggregated for vehicles and 

heavy machinery. Therefore, we used the diesel vehicle fuel emission 

factor to calculate aggregate emissions from the diesel fuel used by 

vehicles and heavy machinery. 

• Emissions from propane powered heavy machinery: AOC provided 

activity data for 1 month. We used the monthly activity data to

calculate annual fuel use and then assumed that fuel use remained 

constant during fiscal years 1998 through 2006. To convert pounds of 

propane to BTUs, we used the heat content 20,293 BTUs/pound and to 

convert pounds of propane to gallons, we used the density 4.53 

pounds/gallon as laid out in the EPA’s Inventory of U.S. Greenhouse 

Gas Emissions and Sinks: 1990-2004.

• Emissions from leaks in refrigeration equipment: Two of AOC’s 

chillers leaked R-134a in fiscal year 2006 and have since been repaired. 

• Emissions from the combustion of fossil fuels in emergency

generators: AOC’s emergency generators run on oil from the Capitol 

Power Plant. Therefore, emissions from the generators are included in 

the Capitol Power Plant calculations. 

• Emissions from the consumption of purchased steam: AOC’s data on 

the Ford House Office Building’s steam consumption differed from 

GSA’s data. We used GSA’s data because GSA supplies the steam to the 

Ford House Office Building. 

• Emissions from the consumption of purchased chilled water: GSA 

supplies chilled water to the Ford House Office Building from chillers 

in the nearby building formerly occupied by the Food and Drug 

Administration. GSA officials estimated the percentage of the chillers’ 

electricity use that was used to produce chilled water for the Ford 

House Office Building because there is no meter. In addition, since data 

was not available for years prior to fiscal year 2002, we assumed that 

the annual consumption remained constant. 

• Emissions from the consumption of purchased electricity and 

natural gas at leased facilities: AOC has one capital lease—Senate 

Warehouse—and four operating leases—P Street Warehouse, Plaza 

500, Postal Square, and GPO—within the scope of our study. AOC 

Page 32 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

provided activity data for its capital lease and its operating lease at 

P Street Warehouse, but not for its other operating leases because 

these leased facilities are not billed separately for energy use. However, 

GPO’s activity data includes AOC’s leased space in its facility. We 

estimated the energy use of the other two leased facilities by allocating 

the facilities’ total energy use, provided by GSA, on a per-square-foot 

basis. We used the gross square footage of the entire facility that was 

found in the GSA energy usage building summary report. GSA also 

provided the square footage of AOC’s leased spaces. 

• Emissions from the release of VOCs: AOC provided activity data on its 

spray paint booths using aggregate estimates based on Washington, 

D.C., air permit applications. According to AOC officials, data remained 

constant for each year. 

• Emissions from leaks in fuel tanks: According to AOC officials, the 

agency does not track data on leaks from oil or diesel tanks because 

their vapor pressures are low at ambient temperatures. It also does not 

track data on leaks from propane tanks. 

• Adjustment for purchased renewable energy certificates (REC): 

We determined the power pool where the renewable power was 

generated using data provided to us by Pepco Energy Services and 

made assumptions about the amount of renewable energy generated 

from each location. After calculating the emissions, we then allocated 

one-eighth of these emissions to fiscal year 2003 and seven-eighths to 

fiscal year 2004 since AOC purchased renewable energy for 8 months 

beginning in September 2003. These emissions are subtracted from 

AOC’s Scope 2 emissions to determine net emissions. 

Page 33 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

GPO 

Table 5: GPO’s Greenhouse Gas Emissions by Scope and Source for Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Business travel in government-owned and -leased vehicles 210.11 166.51

Release of VOCs in print shop 28.48 28.48

Combustion of diesel in emergency generator 2.04 2.04

Scope 1 total 240.63 197.03

Scope 2

Consumption of purchased electricity 28,130.68 20,030.13

Consumption of purchased natural gas 1,618.66 1,449.51

Scope 2 total 29,749.34 21,479.64

Total 29,989.97 21,676.67

Source: GAO analysis of GPO data. 

• Emissions from business travel in government-owned and -leased 

vehicles: GPO provided gasoline activity data for fiscal years 2003

through 2006. For fiscal years 1998 through 2002, we used calendar 

year data. The average diesel vehicle activity data were available for 

fiscal year 2006, and the data are an extrapolation based on a 2-month 

survey of credit card receipts. Therefore, we assumed diesel-fuel use 

remained constant for fiscal years 1998 through 2006. 

• Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: We obtained fiscal year 2005 

model year and type data from GPO’s Office of Comptroller, Property 

Management Program, and fiscal year 2006 data from the Customer 

Services department and the Office of the Inspector General, which 

operate their own vehicles. Agency officials reported that the number 

of vehicles remained relatively constant for fiscal years 1998 through 

2006. We assumed the vehicle type data remained constant for fiscal 

years 1998 through 2006 and, therefore, added the 2005 and 2006 data 

from the three divisions for total vehicle data. We also assumed that 

the model year was 1 year earlier than the year for which we were 

calculating emissions, unless the model year provided in the fiscal year 

2005/2006 data was earlier. In such cases, we kept the earlier year. 

Page 34 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

• Emissions from the consumption of purchased natural gas: To 

convert cubic feet of natural gas to BTUs, we used the heat content 

1,011.5691 BTUs/cubic feet.5

• Emissions from leaks in refrigeration equipment: GPO reported that 

it used R-134a in a closed system and has not purchased any additional 

refrigerant. Therefore, we assumed there were no leaks. 

• Emissions from combustion of fossil fuels in emergency generator: 

To convert gallons of diesel to BTUs, we used the heat content 

138,691 BTUs/gallon. 

• Emissions from the release of VOCs: Activity data were available for 

fiscal year 2005 from GPO’s print shop. Therefore, we assumed the 

activity data remained constant for fiscal years 1998 through 2006. 

• Emissions from the consumption of purchased electricity and 

natural gas at leased facilities: Emissions generated by AOC’s leased 

space within GPO’s facility was not separated from GPO’s emissions. 

GPO also had operating leases for two warehouses in Laurel, Maryland 

(Laurel 1 and Laurel 2) for fiscal years 1998 through 2004 and retained 

Laurel 2 through fiscal year 2006. GPO provided electricity and natural 

gas use data for Laurel 1 and Laurel 2 for fiscal years 2002 through 2006 

using the adjusted annual usage figures from Baltimore Gas and 

Electricity bills for the period from mid-September to mid-October of 

each year, with three exceptions. The fiscal year 2004 natural gas and 

electricity use data for Laurel 1 was taken from the BGE bills for the 

period of March 16 to April 17, 2004, and July 16 to August 17, 2004, 

respectively, because bills were not available for the later months. In 

addition, the fiscal year 2006 natural gas use data for Laurel 2 are the 

sum of usage indicated on a duplicate bill provided by Baltimore Gas 

and Electricity showing monthly usage from October 2005 to October 

2006. Since no data were available for fiscal years 1998 through 2001, 

we had to make several assumptions. For fiscal years 1998 to 1999 for 

Laurel 1 electricity use, we assumed the electricity use was 113 percent 

of the known electricity use in fiscal year 2002 because the square 

footage occupied by GPO in those 2 years was 113 percent of the 

square footage in fiscal year 2002. Similarly, we assumed that the 

electricity use in fiscal years 2000 to 2001 was the same as in fiscal year 

2002 because the square footage occupied by GPO was the same. For 

 5

See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm. 

Page 35 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

natural gas use at Laurel 1 for fiscal years 1998 through 2001, we used 

the average natural gas use for fiscal years 2002 through 2004 because 

there was significant variation in the years that data were available. In 

addition, for fiscal years 1998 through 1999, we assumed that natural 

gas usage was 113 percent of this average as we did with electricity 

usage. For Laurel 2 electricity use for fiscal years 1998 through 2001, 

we assumed the same electricity use as fiscal year 2002 since square 

footage remained constant; and for natural gas for fiscal years 1998 

through 2002, we used the average natural gas use for fiscal years 2003

through 2006 because there was significant variation in the years that 

data were available. It is important to note that while data were

available for fiscal year 2002, GPO officials were unable to explain the 

low usage figure. 

GAO 

Table 6: GAO’s Greenhouse Gas Emissions by Scope and Source for Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Business travel in government-owned and -leased vehicles 16.16 23.64

Combustion of oil in emergency generators 10.21 10.21

Scope 1 total 26.37 33.85

Scope 2

Consumption of purchased electricity 10,713.40 11,659.28

Consumption of purchased natural gas 26.50 26.50

Consumption of purchased steam 2,418.82 1,498.25

Scope 2 total 13,158.71 13,184.03

Total 13,185.08 13,217.88

Source: GAO.

• Emissions from business travel in government-owned and -leased 

vehicles: We needed to calculate activity data because GAO does not 

maintain fuel use data. The formula we used was: activity data

[estimated fuel use] = mileage/fuel economy. We used the fuel 

economy figures provided at www.fueleconomy.gov for those vehicles 

whose make and model we knew. Otherwise, we used the average fuel 

economy figures provided by the Federal Highway Administration’s 

Page 36 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

2004 Highway Statistics.6 Vehicle mileage data were available for fiscal 

years 2001 through 2006. Therefore, we assumed the data remained 

constant for fiscal years 1998 through 2001. 

• Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: If vehicle type data were 

provided, we used the fuel economy figures from 

www.fueleconomy.gov. We did not have model year data, so we 

assumed that the model year was 1 year earlier than the year for which 

we were calculating emissions. 

• Emissions from the consumption of purchased natural gas: To 

convert hundreds of cubic feet of natural gas to BTUs, we used the heat 

content 101,156.9138 BTUs/hundreds of cubic feet.7

• Emissions from combustion of fossil fuels in emergency generators: 

To convert gallons of fuel oil to BTUs, we used the heat content 

138,691 BTUs/gallon. 

• Emissions from the consumption of purchased electricity and 

natural gas at leased facilities: GAO leases space to the Army Corps 

of Engineers, which is in the executive branch. We estimated the Army 

Corps of Engineers energy use by allocating the facilities’ energy use 

on a per-square-foot basis. We then subtracted the Army Corps’ energy 

use from the building’s total energy use to calculate GAO’s emissions. 

The Corps began leasing 200,000 square feet of the GAO building in 

fiscal year 2000 and then added 20,000 square feet in fiscal year 2001. 

 6

See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm. 

7

See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm. 

Page 37 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

Senate Sergeant at Arms 

Table 7: Senate Sergeant at Arms’ Greenhouse Gas Emissions by Scope and Source for Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Business travel in government-owned and -leased vehicles 168.91 337.06

Release of VOCs in furniture shop 2.87 2.93

Total 171.77 339.99

Source: GAO analysis of Senate Sergeant at Arms data.

• Emissions from business travel in government-owned and -leased 

vehicles: The Senate Sergeant at Arms did not maintain activity data for 

its vehicles. Therefore, to calculate the activity data, it used the 

formula: activity data [fuel use] = amount expended / average price per 

gallon. The average price per gallon was obtained from the Energy 

Information Administration, Motor Gasoline Retail Prices, U.S. City 

Average table. The Senate Sergeant at Arms provided us with gasolinefuel use data and was unable to provide diesel-fuel use data. Therefore, 

we performed our calculations as if all vehicles used gasoline, although 

the Senate Sergeant at Arms has five diesel vehicles. Consequently, 

actual emissions are likely to be higher then our calculations. The 

Senate has 19 alternative-fuel vehicles. However, on the basis of our 

discussions with a Senate Sergeant at Arms official, we assumed that 

these vehicles were fueled with gasoline. The Senate Sergeant at Arms 

provided vehicle activity data for fiscal years 1999 through 2006. 

Therefore, we assumed that the vehicle activity data were constant for 

fiscal years 1998 through 1999. 

• Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: The Senate Sergeant at Arms 

provided us with the number of vehicles for each year for fiscal years 

1998 through 2006. Since the vehicle type data were available only for 

fiscal year 2006, we assumed that the vehicle type data remained 

constant for fiscal years 1998 through 2006. We also assumed that the 

model year was 1 year earlier than the year for which we were 

calculating emissions, unless the model year provided in the fiscal year 

2006 data was earlier. In such cases, we kept the earlier year.

Page 38 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

• Emissions from the release of VOCs: The Senate Sergeant at Arms 

provided activity data from its furniture and print shops. For the 

furniture shop, VOC emissions were not available for some chemicals. 

Therefore, we used the average VOC emissions from the chemicals that 

were available. For the print shop, activity data were available for fiscal 

years 2000 through 2006. Therefore, we assumed the activity data 

remained constant for fiscal years 1998 and 1999. However, in 2000, the 

print shop transitioned to soy-based ink. We also assumed equal use of 

each ink type; therefore, we used the average VOC content. In addition, 

the VOC content of one ink type was provided to us in pounds per 

gallon. To convert pounds of ink to gallons, we assumed the density is 

equal to water—8.33 pounds per gallon, according to EPA. 

CBO 

Table 8: CBO’s Greenhouse Gas Emissions by Scope and Source for Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Business travel in government-owned and -leased vehicles - 0.43

Total - 0.43

Source: GAO analysis of CBO data. 

• Emissions from business travel in government-owned and -leased 

vehicles: We needed to calculate activity data because CBO does not 

maintain fuel use data. The formula we used was: activity data

[estimated fuel use] = mileage/fuel economy. We used the average fuel 

economy figures provided by the Federal Highway Administration’s 

2004 Highway Statistics.8

 CBO first obtained a vehicle in the last 

2 months of fiscal year 2004. Therefore, the activity data for that year 

are prorated. 

 8

See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm. 

Page 39 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

LOC 

Table 9: LOC’s Greenhouse Gas Emissions by Scope and Source for Base Year and Fiscal Year 2006 

Metric tons of carbon dioxide equivalents 

Scope and source of emissions

Fiscal years 

 1998-2001 

Fiscal year

 2006

Scope 1

Business travel in government-owned and -leased vehicles 89.61 107.15

Scope 1 total 89.61 107.15

Scope 2

Consumption of purchased electricity 1,664.85 1,638.68

Consumption of purchased natural gas 564.70 464.05

Scope 2 total 2,229.55 2,102.73

Total 2,319.16 2,209.88

Source: GAO analysis of LOC and GSA data.

• Emissions from business travel in government-owned and -leased 

vehicles: The vehicle activity data were available for fiscal years 2004 

through 2006. Therefore, we assumed fuel use remained constant for 

fiscal years 1998 through 2004. 

• Methane and nitrous oxide emissions from business travel in 

government-owned and -leased vehicles: We obtained 2006 model year 

and type data. We assumed the vehicle type data remained constant 

from fiscal years 1998 through 2006. We also assumed that the model 

year was 1 year earlier than the year for which we were calculating 

emissions, unless the model year provided in the fiscal year 2006 data 

was earlier. In such cases, we kept the earlier year. To convert cubic 

feet of compressed natural gas to gallons of gasoline equivalent, we 

used the conversion factor 121.5 cubic feet/gallon of gasoline

equivalent found at www.fueleconomy.gov. 

• Emissions from the consumption of purchased electricity and 

natural gas at leased facilities: LOC has operating leases for two 

facilities—Landover warehouse and National Library for the Blind and 

Page 40 GAO-07-516 Legislative Branch
Appendix II: Technical Information on

Methodology, Calculations, and Assumptions

Used in Conducting an Inventory of 

Greenhouse Gas Emissions 

Physically Handicapped. GSA provided us with activity data for both 

leases. To convert cubic feet of natural gas to BTUs, we used the heat 

content 1,011.5691 BTUs/cubic feet.9

 9

See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm. 

Page 41 GAO-07-516 Legislative Branch
Appendix III: 

Faci

Map of Legislative Branch

lities 

Page 42 GAO-07-516

Appendix III: Map of Legislative Branch 

Facilities 

3rd STREET

1st STREET

CONSTITUTION AVENUE

INDEPENDENCE AVENUE

EAST CAPITOL STREET

MASSACHUSETTS AVENUE

PENNSYLVANIA AVENUE

MARYLAND AVENUE

NEW JERSEY AVENUE

LOUISIANA AVENUE

DELAWARE AVENUE

F STREET

E STREET

D STREET

D STREET

D STREET

C STREET

E STREET

E STREET

G STREET

C STREET

G STREET

G STREET

G STREET

H STREET H STREET

MADISON DRIVE

JEFFERSON DRIVE

G STREET

D STREET

2nd STREET

1st STREET

2nd STREET NE

3rd STREET NE

4th STREET NE

5th STREET NE

6th STREET NE

2nd STREET

4th STREET 4th STREET

3rd STREET 395

SOUTH CAPITOL STREET

WASHINGTON AVENUE

1

2

4 5 6 7 8

9

11 12

13

14

15

16

17 18 19

21

22

23

24

25

495

95

32

DC

Maryland 295

50

Area

of detail

2829

33

34 35

36 37

20

395

0

0

0.1 0.4 0.2 0.5 Kilometer 0.3

0.1 0.2 0.3 0.4 0.5 Mile

North

4 Taft Memorial

Senate underground

garage

5

Russell Senate

Office Building 6

Dirksen Senate

Office Building 7

Hart Senate

Office Building 8

9 Senate child care center

11 U.S. Capitol

Thomas Jefferson Building, Library of Congress

14

John Adams Building, Library of Congress

15

Capitol Visitors Center 12

13 U.S. Botanic

Garden

Conservatory

Special

Facilities Center, Library of Congress

16

Rayburn House Office Building 17

Longworth

House Office

Building

18

Cannon House Office Building 19

James Madison Memorial

Building, Library of Congress

20

Ford House Office Building 21

Maintenance Garage/14E 22

U.S.Capitol Power Plant 23

38

40

41

# Leased facility

# Governmentowned facility

Sources: U.S. Park Service and GAO.

National Audiovisual Conser- vation Center

(Culpeper, VA)

Street lights

Facilities

Not shown

# Parking lot

10 Webster Hall

Plaza 500

(Alexandria, VA)

38 Parking Lot 12

39 Parking Lot 10

40 Parking Lot 7

41 Parking Lot 5

42 Parking Lot 1

10

a

b

1 Government

Accountability Office a

Government

Printing Office 2 b

Operations under

GAO’s jurisdiction Operations under Library of Congress’ jurisdiction

Operations under

GPO’s jurisdiction Operations underAOC’s jurisdiction

27

31

30

32

U.S. Capitol Power Plant coal yard

25

Library of Congress book storage

29

Construction management building

35

Senate storage facility 37

U.S. Botanic

Garden

Administration

26

28 Ft. Meade water tank and pumphouse

Construction

division facility 34

36 U.S. Botanic

Garden

Greenhouse

Library of Congress Landover warehouse

31

National Library Service for the Blind

and Physically Handicapped, Library of Congress

30

Senate Sergeant

Warehouse E 32

24 House page dorm

Parking lots

Government

Printing Office’s

Laurel warehouses

27

3 Postal Square

3

42

P Street

Warehouse 33

39

26

a

The Army Corps of Engineers leases space within GAO’s building. 

b

The Architect of the Capitol leases space within the Government Printing Office’s building. 

Legislative Branch
Appendix IV: Emissions Trends, by Agency 

Page 43 GAO-07-516

Appendix IV: Emissions Trends, by Agency 

Capitol complex operations under the Architect of the Capitol’s (AOC) 

jurisdiction accounted for 88 percent of legislative branch greenhouse gas 

emissions in fiscal year 2006 (see fig. 3). The Government Printing Office 

(GPO) and GAO accounted for 7 percent and 4 percent of emissions, 

respectively. Capitol complex operations not under AOC’s jurisdiction, 

such as Senate Sergeant at Arms’ vehicles and release of volatile organic

compounds and the Library of Congress’ two leased facilities, made up the 

remaining 1 percent of emissions. 

Figure 3: Greenhouse Gas Emissions by Agency, Fiscal Year 2006 

GPO

GAO

1%

Capitol complex operations not under

AOC’s jurisdiction

Capitol complex operations under AOC’s 88% jurisdiction

Source: GAO analysis of data from AOC, GPO, GAO, LOC, CBO, the Senate Sergeant at Arms, the House of Representatives Chief

Administrative Officer, and the General Services Administration.

4%

7%

Legislative Branch
Appendix IV: Emissions Trends, by Agency 

Overall, emissions from Capitol complex operations under AOC’s 

jurisdiction increased by 8 percent from the base year to fiscal year 2006. 

There were two decreases in emissions during this time period— 

a 7 percent decrease from fiscal year 2003 to fiscal year 2004 and a 

1 percent decrease from fiscal year 2005 to fiscal year 2006 (see fig. 4). 

AOC 

Figure 4: Capitol Complex Greenhouse Gas Emissions from Operations under 

AOC’s Jurisdiction, Fiscal Years 1998-2001 to 2006 

0

250,000

255,000

260,000

265,000

270,000

275,000

280,000

285,000

1998-2001 2002 2003 2004 2005 2006

Metric tons of carbon dioxide equivalents

Source: GAO analysis of AOC and GSA data.

Year

Note: AOC officials attribute the fiscal year 2004 decrease in emissions primarily to the purchase of 

renewable energy and the fiscal year 2006 decrease in emissions primarily to burning less coal, due 

to a malfunction in the coal-fired boilers, and lower fuel consumption.

Page 44 GAO-07-516 Legislative Branch
Appendix IV: Emissions Trends, by Agency 

The emissions generated by GPO decreased by 18 percent from the base 

year (the average of fiscal years 1998 through 2001) through fiscal year 

2003 and then continued to decrease through fiscal year 2006, for an 

overall decrease of 28 percent (see fig. 5).1

GPO 

Figure 5: GPO’s Greenhouse Gas Emissions, Fiscal Years 1998-2001 to 2006 

0

21,000

22,000

23,000

24,000

25,000

26,000

27,000

28,000

29,000

30,000

1998-2001 2002 2003 2004 2005 2006

Metric tons of carbon dioxide equivalents

Source: GAO analysis of GPO data.

Year

Note: GPO officials attribute the decrease in emissions primarily to a reduction in staff levels. 

 1

Includes emissions from AOC’s leased space within the GPO building.

Page 45 GAO-07-516 Legislative Branch
Appendix IV: Emissions Trends, by Agency 

The emissions generated by GAO increased 9 percent through 2004 and 

then decreased 8 percent through fiscal year 2006, for an overall increase

of 0.2 percent (see fig. 6). 

GAO 

Figure 6: GAO’s Greenhouse Gas Emissions, Fiscal Years 1998-2001 to 2006 

0

12,400

12,600

12,800

13,000

13,200

13,400

13,600

13,800

14,000

14,200

14,400

14,600

14,800

1998-2001 2002 2003 2004 2005 2006

Metric tons of carbon dioxide equivalents

Source: GAO analysis of GSA and GAO data.

Year

Note: GAO officials attribute the decrease in emissions from fiscal years 2004 through 2006 to energy

efficiency measures identified through targeted energy audits, primarily the installation of optimization 

controls for air handlers and specialized software to decrease electricity use during periods of peak 

demand. 

Page 46 GAO-07-516 Legislative Branch
Appendix V: 

A

GAO Contact and Staff 

cknowledgments 

Page 47 GAO-07-516

Appendix V: GAO Contact and Staff 

Acknowledgments 

Terrell G. Dorn, (202) 512-6923 or dornt@gao.gov

In addition to the contact named above, key contributors to this report 

were Sara Vermillion (Assistant Director), Elizabeth R. Eisenstadt, 

Michael Hix, Bert Japikse, Heather Krause, Sara Ann Moessbauer, 

Joshua Ormond, Frank Rusco, and Stephanie Sand. 

GAO Contact 

Staff 

Acknowledgments 

(545047) Legislative Branch
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