Legislative Branch: Energy Audits are Key to Strategy for	 
Reducing Greenhouse Gas Emissions (25-APR-07, GAO-07-516).	 
                                                                 
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.				 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-07-516 					        
    ACCNO:   A68804						        
  TITLE:     Legislative Branch: Energy Audits are Key to Strategy for
Reducing Greenhouse Gas Emissions				 
     DATE:   04/25/2007 
  SUBJECT:   Emissions inspection				 
	     Energy						 
	     Energy auditing					 
	     Environment evaluation				 
	     Environmental assessment				 
	     Environmental protection				 
	     Evaluation 					 
	     Greenhouse gases					 
	     Strategic planning 				 
	     Capitol Power Plant (DC)				 

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GAO-07-516

   

     * [1]Results in Brief
     * [2]Background
     * [3]Legislative Branch Operations Generated 316,000 Metric Tons
     * [4]A Strategy for Reducing Emissions Generated by Legislative B

          * [5]Energy Audits Are Key to Addressing Largest Sources of Emiss
          * [6]Evaluating Other Projects Could Identify Additional Ways to

               * [7]Projects to Further Reduce Electricity Emissions
               * [8]Projects to Further Reduce Emissions from the Combustion
                 of
               * [9]Projects to Further Reduce Vehicle Emissions
               * [10]Projects to Reduce Overall Emissions

     * [11]Conclusions
     * [12]Recommendations for Executive Action
     * [13]Agency Comments and Our Evaluation
     * [14]Methodology

          * [15]Organizational boundary
          * [16]Operational boundary
          * [17]Base year

     * [18]Calculations and Assumptions

          * [19]General
          * [20]Entity specific

               * [21]AOC
               * [22]GPO
               * [23]GAO
               * [24]Senate Sergeant at Arms
               * [25]CBO
               * [26]LOC

          * [27]AOC
          * [28]GPO
          * [29]GAO

     * [30]GAO Contact
     * [31]Staff Acknowledgments
     * [32]GAO's Mission
     * [33]Obtaining Copies of GAO Reports and Testimony

          * [34]Order by Mail or Phone

     * [35]To Report Fraud, Waste, and Abuse in Federal Programs
     * [36]Congressional Relations
     * [37]Public Affairs

Report to Congressional Requesters

United States Government Accountability Office

GAO

April 2007

LEGISLATIVE BRANCH

Energy Audits Are Key to Strategy for Reducing Greenhouse Gas Emissions

GAO-07-516

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

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

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 United States. It may be reproduced and distributed in
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separately.

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 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.

^1Revoked by E.O. 13423 (Jan. 24, 2007).

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 Protocol^2
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 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.

^2The 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.

^3Climate 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.

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 cost-effectiveness; 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.

Results in Brief

Legislative branch operations generated about 316,000 metric tons of
greenhouse gas emissions (expressed in carbon dioxide equivalents^4) 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.

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 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.

^4Carbon dioxide equivalents provide a universal standard of measurement
against which the impacts of releasing different greenhouse gases can be
evaluated.

^5The 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.

^6The 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.

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 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.

Background

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 hexafluoride^7 are
generally not emitted by legislative branch operations.

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
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.

^7Perfluorocarbons are emitted as byproducts of aluminum productions and
semiconductor manufacturing, and sulfur hexafluoride is emitted from
certain semiconductor manufacturing processes.

^8A metric ton equals 2,205 pounds, while a short ton, a measurement used
in the United States, equals 2,000 pounds.

Table 1: Number of Facilities, Vehicles, and Other Property Managed by the
Legislative Branch in the Washington, D.C., Area in Fiscal Year 2006

                                                             House of         
                             AOC GAO GPO Senate       Representatives CBO LOC 
Government-owned         31^a   1 4^b      0                     0   0   0 
facilities                                                                 
Leased facilities         5^c   0   1      0                     0   0   2 
Vehicles^d                152  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.

aThe furniture shops managed by the Senate and House of Representatives
are located within government-owned facilities under AOC's jurisdiction.

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

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

dGovernment-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
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.

^9The 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.

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 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.

^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.

Legislative Branch Operations Generated 316,000 Metric Tons of Greenhouse Gas
Emissions in 2006, a 4 Percent Increase from Base Year Levels

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 government-owned 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.

^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.

Figure 1: Source of Legislative Branch Greenhouse Gas Emissions, Fiscal
Year 2006

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
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

A Strategy for Reducing Emissions Generated by Legislative Branch Operations
Includes Conducting Energy Audits and Evaluating Other Projects

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

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. Energy-efficiency projects are generally more cost-effective
than renewable-energy 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
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

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.

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 SS 436.18-436.22. For
example, the energy audit of the LOC Madison Building identified 12
cost-effective projects with savings-to-investment ratios^18 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
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.

^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-to-investment 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.

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 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.

^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, S 168. In a provision attached to
the Legislative Branch Appropriations Act, 1999, Pub. L. 105-275, S 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, S 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.

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
energy-efficiency 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,
high-efficiency motors, building temperature controls, heating hot water
improvements, domestic hot water improvements, roof insulation, and window
film.

Evaluating Other Projects Could Identify Additional Ways to Reduce Emissions

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.

  Projects to Further Reduce Electricity Emissions

           o 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.
           o 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 currently have all Energy Star-qualified information
           technology equipment.
           o 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.
           o 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 energy-efficiency 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.
		   
		     Projects to Further Reduce Emissions from the Combustion of
			 Fossil Fuels in the Capitol Power Plant
			 
           o 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 Vehicle Emissions
			 
           o 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.
           o 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 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.
		   
^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.

^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.
		   
		     Projects to Reduce Overall Emissions

           o 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 nationally-sourced
           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.
		   
		   Conclusions

           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.

           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.
		   
		   Recommendations for Executive Action

           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.
		   
		   Agency Comments and Our Evaluation

           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 .

           If you or your staffs have any questions about this report, please
           contact me at (202) 512-6923 or [email protected]. 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
		   
		   Appendix I: Objectives, Scope, and Methodology

           To conduct an inventory of the greenhouse gas emissions generated
           by legislative branch operations, we followed the Greenhouse Gas
           Protocol^1 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 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.
		   
^1The 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.

^2Climate 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.

Table 2: Emissions Factors

                                                               Methane        
                             Carbon dioxide   Nitrous oxide    emissions      
Fuel type                 emissions factor emissions factor factor         
Bituminous coal from West 207.1 lbs/mmBTU  1.4 g/mmBTU      10 g/mmBTU     
Virginia                                                                   
Oil                       161.386          0.601 g/mmBTU    10 g/mmBTU     
                             lbs/mmBTU                                        
Natural gas               117.08 lbs/mmBTU 0.095 g/mmBTU    4.75 g/mmBTU   
Electricity (Mid-Atlantic 1.098 lbs/kwh    0.0000162        0.0000241 lbs/ 
Area Council power pool)  (2000+)          lbs/kwh          kwh            
                                                                              
                             1.153 lbs/kwh                                    
                             (1999)                                           
                                                                              
                             1.199 lbs/kwh                                    
                             (1998)                                           
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   0.113 g/mile     0.914 g/mile   
                             feet                                             
Propane                   139.178          0.22 g/gallon    0.50 g/gallon  
                             lbs/mmBTU                                        

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

aThe 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.

Table 3: Global Warming Potentials of Greenhouse Gases

Greenhouse gas        Global warming potential 
Carbon dioxide                               1 
Methane                                     21 
Nitrous oxide                              310 
Hydrofluorocarbons                             
      o R-23                               11,700 
      o R-125                               2,800 
      o R-134a                              1,300 
      o R-143a                              3,800 
      o R-152a                                140 
      o R-227ea                             2,900 
      o R-236fa                             6,300 
Perfluorocarbons                               
      o Perfluoromethane                    6,500 
      o 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 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.

Appendix II: Technical Information on Methodology, Calculations, and
Assumptions Used in Conducting an Inventory of Greenhouse Gas Emissions

Methodology

To develop a greenhouse gas inventory in accordance with the Greenhouse
Gas Protocol, we set an organizational boundary, operational boundary, and
base year.

Organizational boundary

This boundary defines the legislative branch and the criteria for
reporting emissions.

           o 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.

           o 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.

           o 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.

Operational boundary

This boundary identifies and categorizes the sources of emissions from
legislative branch operations.

           o 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.
           o 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):

                        o combustion of fossil fuel at the Capitol Power
                        Plant;
                        o combustion of fossil fuels in emergency generators;
                        o business travel in government-owned and leased
                        vehicles, as well as heavy machinery;
                        o leaks in refrigeration equipment;
                        o leaks from oil, diesel and propane tanks;^2 and
                        o 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):

                        o use of electricity,
                        o use of natural gas,
                        o use of steam, and
                        o 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):

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

^1No data were available from this source.

^2No data were available from this source.

Base year

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.

Calculations and Assumptions

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.

General

           o 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 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.

           o 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.

           o 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.

           o 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.

           o 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.

           o 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.

^3See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm .

^4See
http://www.energystar.gov/ia/business/tools_resources/target_finder/help/
Energy_Units_Conversion_Table.htm .

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                                  
                                                Fiscal years                  
Scope and source of emissions                   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      43,770.56        38,993.21 
Plant                                                                      
Refrigeration equipment leakage                                   2,322.31 
Business travel in government-owned and            402.70           377.78 
-leased vehicles; heavy machinery                                          
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.

           o 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.

           o 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.

           o 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.

           o 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 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.

           o 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.

           o Emissions from leaks in refrigeration equipment: Two of AOC's
           chillers leaked R-134a in fiscal year 2006 and have since been
           repaired.

           o 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.

           o 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.

           o 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.

           o 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 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.

           o 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.

           o 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.

           o 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.

  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                                  
                                                Fiscal years                  
Scope and source of emissions                   1998-2001 Fiscal year 2006 
Scope 1                                                                    
Business travel in government-owned and            210.11           166.51 
-leased vehicles                                                           
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.

           o 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.

           o 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.
           o 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

           o 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.

           o 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.

           o 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.

           o 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 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.

^5See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm.

  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                                  
                                                Fiscal years                  
Scope and source of emissions                   1998-2001 Fiscal year 2006 
Scope 1                                                                    
Business travel in government-owned and             16.16            23.64 
-leased vehicles                                                           
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.

           o 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 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.

           o 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.

           o 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

           o 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.

           o 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.

^6See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm .

^7See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm.

  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                                  
                                                     Fiscal years Fiscal year 
Scope and source of emissions                        1998-2001        2006 
Scope 1                                                                    
Business travel in government-owned and -leased         168.91      337.06 
vehicles                                                                   
Release of VOCs in furniture shop                         2.87        2.93 
Total                                                   171.77      339.99 

Source: GAO analysis of Senate Sergeant at Arms data.

           o 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 gasoline-fuel 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.

           o 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.

           o 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                                  
                                                     Fiscal years Fiscal year 
Scope and source of emissions                        1998-2001        2006 
Scope 1                                                                    
Business travel in government-owned and -leased              -        0.43 
vehicles                                                                   
Total                                                        -        0.43 

Source: GAO analysis of CBO data.

           o 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.

^8See http://www.fhwa.dot.gov/policy/ohim/hs04/htm/vm1.htm .

  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                                  
                                                Fiscal years                  
Scope and source of emissions                   1998-2001 Fiscal year 2006 
Scope 1                                                                    
Business travel in government-owned and             89.61           107.15 
-leased vehicles                                                           
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.

           o 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.

           o 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 .

           o 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 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

^9See http://www.energyshop.com/es/toolbox/gj_to_m3.cfm.

Appendix III: Map of Legislative Branch Facilities

aThe Army Corps of Engineers leases space within GAO's building.

bThe Architect of the Capitol leases space within the Government Printing
Office's building.

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

AOC

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).

Figure 4: Capitol Complex Greenhouse Gas Emissions from Operations under
AOC's Jurisdiction, Fiscal Years 1998-2001 to 2006

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.

GPO

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

Figure 5: GPO's Greenhouse Gas Emissions, Fiscal Years 1998-2001 to 2006

Note: GPO officials attribute the decrease in emissions primarily to a
reduction in staff levels.

^1Includes emissions from AOC's leased space within the GPO building.

GAO

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).

Figure 6: GAO's Greenhouse Gas Emissions, Fiscal Years 1998-2001 to 2006

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.

Appendix V: GAO Contact and Staff Acknowledgments

GAO Contact

Terrell G. Dorn, (202) 512-6923 or [email protected]

Staff Acknowledgments

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.

(545047)

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www.gao.gov/cgi-bin/getrpt? [53]GAO-07-516 .

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Highlights of [54]GAO-07-516 , a report to congressional requesters

April 2007

LEGISLATIVE BRANCH

Energy Audits Are Key to Strategy for Reducing Greenhouse Gas Emissions

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.

[55]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.

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