DOCUMENT RESUME 02763 - [A1933004] U.S. Army Facilities in Europe: Management Improvement Needed. LCD-77-313; B-133102. Juj) 1, 1977. 22 pp. + 3 appendices (15 pp.) Report to the Congress: by Elmer B. Staats, Comptroller General. Issue area: Facilities and Material Management (700); Facilities and Material Management: Operation and Maintenance of Facilities (708). Contact: Logistics and Communications Div. Budget Function: National Defense: Department of Defense - Military (except procurement & contracts) (051). Organization Concerned: Department of the Army; Department of Defense. Congressional Relevance: House Committee on Armed Services; Senate Committee on Armed Services; Congress. The U.S. Army in Europe uses various German Government facilities under the Status of Forces Agreement and spent $504 mill.on in FY 1975 to operate and maintain these facilities. Findingc/Conclusions: The Army's management system in Europe produced inaccurate and incomplete facility inventory data, and efforts at improvement were not successful. Over $15 million could have been saved in 1975 if Army personnel had used available quarters rather than off-post quarters. Many facilities were underutilized. and little was done to consolidate activities and return facilities to Germany. The Army Audit Agency estimated that such action would save about $28 million annually. Recommendations: The Secretary of the Army should require the commander of the U.S. Army in Europe to: (1) retain only those facilities required for mission performance; and (2) return unneeded facilities to the German Government. Actions that should be included in efforts to make better use of facilities are: (1) obtaining accurate inventories of facilities; (2) stopping payment of quarters allowance for off-post quarters where adequate quarters are available; and (3) giving priority to families for whom the Department of Defense is required to provide quarters. (Author/HTW) ';~u REPORT TO THE' (CONGRESS ° ;.~ -. BY THE C(OMPTROLLER (hENERAL OF THE UNITED STA TE S U.S. Army Facilities In Europe-- Management Improvement Needed Department of the Army The U.S. Army Europe uses various German Government facilities under the Status of Forces Agreement. In fiscal year 1975 the Army spent $504 million to operate and maintair these fa.ilities. GAO estimates that over $16 million could have been saved in 1975 had Army personnel used available quar- ters rather than off-post quarters. Many facilities are underutilized. The Army Audit Agency has reported that an estimated $28 million in operation and maintenance costs could be saved annually if activities were consolida!,?d and unneeded facilities returned to the Geri, an Government. This report discusses these facilities problems, what the Army did to improve ;ts manage- ment, and recommends further improvements. ICD-77-313 JULY 1, 1977 COMPTROLLER GENERAL OF THE UNITED STATES WASHI-. 4TON, D.C. 20S48 B-1331n2 To the President of t':e Senate and the Speaker of the H'ouse of Representatives This report describes (1) the weakne.sses in the manage- ment of U.S. Army facilities in Europe and (2) the efforts to improve this management. While reviewing the Army management system we found that, had the Army followed its regulations, the facilities under their control would have been more fully utilized and extra costs could :have been avoided. We maai, our review pursuant to the Budget and Accounting Act, 1921 (31 U.S.C. 53), and the Accounting and Auditing Act of 1950 (31 U.S..- 67). We are sending c,:nies of this repurt to the Director, Office of Mana;ement andrBudget and the Secretar of Defense. Comptroller General of the United States COMPTROLLER GENERAL'S U.S. ARMY FACILITIES IN EUROPE-- REPORT TO THE CONGRESS MANAGEMENT IMPROVEMENT NEEDED Department of the Army D I G E ST The U.S. Army in Europe operates and main- tains over 250 million square feet of building space in Germany, where most Furopean Army facilities are located. the German Government makes these facilities available to U.S. for- ces under the Status of Forces Agreement. The agreement states that facilities no longer re- quiced by U.S. forces are to be returned to tLe German Government in as good condition as when they iere received. In fiscal year 1975 the U.S. Army spent $504 million to operate and maintain these facili- ties. The U.S. Army's management system in Europe produces inaccurate and incomplete facility inventory data. Efforts to improve t tis data have not been successful. (See pp. 4 to 6.) The Army agreed that central oversight is needed arid noted that corrective actions have been or are being taken to improve facilities management and use. The Army noted that re- curring utilization reports on certain facili- ties are not required and that the data's accuracy depends upon those filling out the forms. Utilization depends upo. onsite in- spections--however, the Army does not make on- site inspections. The Army has paid quarters allowance to bache- lors living offpost when adequate installation quarters were available. The Army recognized that $9 million could be saved annually if available quarters were used. GAO estimates that $16.7 million could have been saved in 1975 if adequate available bachelor quarters had been used. (See p. 9.) Although the Army did not agree with GAO's calculation method, it did not dispute the fact that personnel were living off base and LCD-77-313 cover d't. Upon removal, the rsport cover date should be noted hereon. i receiving quarters allowance when quarters were available for them on base. Regulations permit renting excess family housing to families who are ineligible for either housing or basic allowances for quar- ters. However, the rent the ALmy charges does not cover operation and maintenance costs as required by those regulations. We also found eligible families awaiting housing while ineligible families were renting housing from the Army. (See pp. 13 and 14.) In commenting on this report, the Army stated that it is revalidating its rates and total rent income for comparison with actual unit operating and maintenance costs. An Army Audit Agency report issued in 1974, circulated to Army cfficials in Europe, showed facilities t¢be un:derutilized. That report noted that about $28 million could be saved annually if activities were consolidated and unneeded facilities returned to the German Government. (See p. 15.) The facilities remain underutilized and very little has been done to consolidate activities and return facilities to Germany. In several military installations, activities are spread thin throughout the facilities to show space occupancy. (See pp. 16 and 17.) The Army noted that, with the requirements they have, some excess facilities will al- ways exist. However, if more attention were given to the reports prepared, the number of excess facilities could be reduced. The Secretary of the Army should require the commander of the U.S. Army in Europe to em- phasize more effective facilities management and ,.se by (1) retaining only those facilities required for mission performance, and (2) returning unneeded facilities to the German Government. The following actions should be included in added efforts to make better use of facilities: ii --Obtain a complete and accurate inventory of facilities and require periodic reporting from subordinate commands on the use of all of them. -- Stop paying quarters allowance to bachelors living off post where adequate quarters are available, and strengthen controls for issuing statements of nonavailability. -- Give priority to families for whom the Department of Defense is required to pro- vide quarters. TearSheet iii Contents DIGEST CHAPTER 1 INTRODUCTION 1 Scope of review 1 2 FACILITIES MANAGEMENT NEEDS MORE EMPHASIS 3 Utilization data inaccurate or not reported 4 Identification of unneeded facilities not emphasized 4 Facilities utilization not effectively monitored 5 Army efforts to improve 6 Conclusions 7 Recommendations 7 3 USAREUR NOT EFFECTIVELY UTILIZING QUARTERS 8 Bachelor quarters not fully utilized 8 Army efforts to more fully utilize bachelor quarters 12 Family housing not effectively used 13 Conclusions 14 Recommendations 14 4 POTENTIAL FOR CONSOLIDATING AND RELEASING UNDERUTILIZED FACILITIES 15 Bachelor quarters underutilized 15 Other facilities underutilized 15 Conclusions 21 Recommendations 22 APPENDIX I Eighty-one USAREUR installations showing utilization of available space 23 II Letter dated March 11, 1977, from the Acting Deputy for Installations and Housing, Office of the Assistant Secretary of the Army (I&L) 28 Page APPENDIX III Principle officials responsible for administering activities discussed in this report 37 ABBREVIATIONS BAQ Basic Allowance for Quarters DOD Department of Defense FRG Federal Republic of Germany GAO General Accounting Office USAREUR U.S. Army Europe CHAPTER 1 INTRODUCTION We reviewed the management of facilities under control of the Air Force and the Army in Europe. We found no signifi- cant problems with the Air Force's facilities management; however, the Army's facilities management sistem had weak- nesses. Therefore this report addresses those weaknesses found in U.S. Army in Europe iUSAR£UR) management and concen- trates on the facilities located in the Federal Republic of Germany (FRG). USARCUR manages over 260 million square feet of building space, and roads, airfields and other property on over 800 installations. Over 250 million square feet of this building space is in Germany. These facilities for storage, adminis- tration, community activities, living quarters, medical serv- ices, and maintena ce are provided by the German Government under the Status of Forces Agreement. The Status of Forces Agreement stipulates that the German Covernment will supply the facil ities neeced to support U.S. forces, and the United States will be responsible for operation and maintenance costs while the facilities are in U.S. custody. In fiscal year 1975, the U.S. Army spent about $504 million for facilities operations and maintenance in Germany. Status of Forces Agreement states that facilities The no longer required by U.S. forces be returned to the German Government in as good condition as when they were receied. Responsibility for facilities management in Germany is organized along command channels. The organization of a command headquarters, three regional commands, consists tary communities in specified locations, and over 36 mili- 800 inst' lations composing these communities. SCOPE OF REVIEW Our review evaluated both Army and Air Force management systems. We concentrated our efforts facility on the Air Force and the Army because those services manage significant amounts of property in Europe than much more does the Navy. Our evaluation included the effectiveness of methods the Air Force and the Army to manage facilities used by in Europe. We visited sites at various Air Force and Army instal- lations and discussed facilities management with local com- 1 manders and other officials. We toured facilities at selected locations, reviewed records and documents, and analyzed re- ports. Our site visits included Air Force headquarters, Europe (Ramstein, Germany); Air Force bases at Hahn and Spangdahlem, Germany; and at Incirlik, Turkey. We visited USAREUR head- quarters (Heidelberg, Germany), the headquarters of VII Corps (Stuttgart, Germany), and the 1st Support Brigade (Kaisers- lautern, Germany). We also visited [UAREUR military communi- ties in Munich, Stuttgart, Mannheim, Nuernberg, and Bremer- haven; Germany. 2 CHAPTER 2 FACILITIES MANAGEMENT NEEDS MORE EMPHASIS In 1974, the U.S. Army Europe (USAREUR) most facilities management decentralized responsibility by delegating it to the regional commanders, who delegated the responsibility to the 36 community commanders. USAREUR's instructions to the community USAREUR's policy on facility use, however, commander, and are and do not establish utilization or disposal not explicit priorities. The Department of Defense (DOD) which the maximum allowable amount of publishes criteria by space for administration, maintenance, and various can be determined types of commu- nity activities. Although DOD regulations establish priorities for space utilization, do not specifically require that space diverted for use other Army regulations unit integrity space 1/ be used as quartersthan quarters and in communities where vacancies are not sufficient to meet ments. housing require Greater emphasis on facilities management because is needed -- utilization information is incomplete and not always accurate; -- the management systems are not geared arid releasing nonessential facilities; for identifying and -- lower level implementation of facility not effectively monitored. use policy is Because of a lack of emphasis and guidance on utilization policy, bachelors at several from USAREUR living off post and receiving quarter's communities were allowances while ade- quate space was available at their installation. cussed in more detail on pages 8 through This is dis- 12. Commenting on this report, the Army audit, USARFUR has placed greater emphasisnoted that, since our on facilities 1/Unit integrity allowance is the assignment unit of a block of barrack spaces based to a specified on assigned strength, plus 10 percent more spaces for future unit expansion. 3 management and that many corrective actions either have been taken or are underway to improve management and utilization of facilities. The Army noted that USAREUR has recently pub- lished a stationing program--real property inventory utiliza- t-nn system--which can identify facilities for disposal, and that USAREUR is revising its regulations on space allocation and use. According to the Army, the stationing program and revised regulations will provide more definitive guidance on facilities utilization and disposal. UTILIZATION DATA INACCURATE OR NOT REPORTED USAREUR prepares utilization reports for bachelor and family housing and some storage facilities. USAREUR officials at all command levels generally consider the reported data on utilization tn be inaccurate. Utilization of other facilities for administration, training, maintenance, community, and med- ical services is not reported. Lack of utilization data and the inaccuracy of reported data have caused problems in assigning space for incoming units. USAREUR personnel have had to perform special studies to deter- mine the availability of facilities before they can make sta- tioning decisions. In one instance, the Army decided to sta- tion two battalions in a community based on the reported utili- zation data. The community responded that it had insufficient quarters for the battalions, and a special survey was required to verify spaze availability. The Army noted that, except for housing and some storage facilities, recurring utilization reports are not required. According to the Army, USAREUR's real property inventory utilization system--under development at the time of our audit and now operational--will report utilization of most facility categories. The Army noted, however, that accuracy is depen- dent upon those filling out the forms, and determination of how well space is being utilized is still dependent upon onsite inspections. USAREUR, however, does not make onsite inspec- tions. IDENTIFICATION OF UNNEEDED FACILITIES NOT EMPHASIZED Identification of unneeded property is usually initiated by local commanders, who submit release requests to USAREUR headquarters for review and approval. From January 1973 through December 1975 USAREUR approved over 300 real estate release requests received from lower commands. While this 4 had caused some property releases, not perty is identified and released. all nonessential pro- According to Army comments, USAREUR size efficient facilities directives do empha- use and that those no longer required be identified. The Army noted that this is a responsibility of the major subordinate commands. The action taken by the subordinate ion, has not been effective. As siown commands, in our opin- in chapters 3 and 4, units are occupying several facilities and could be consolidated, thereby which are underutilized releasing facilities and re ducing maintenance costs. There are that could be returned to the German also vacant facilities Government, further re- ducing operation and maintenance costs. USAREUR officials are aware that many military communities do not use all their facilities effectively. however, that without reliable data They believe, insure that unneeded facilities are the only effective way to released is to periodically inspect facilities. FACILITIES UTILIZATION NOT EFFECTIVELYMONITORED Neither USAREUR nor its corps effectively ties utilization to assure compliance monitor facili- dures. Data is periodically r ported with policies and proce- Army on utilization of family housing, to the Department of the some storage space. These reports are bachelor housing, and not used by USAREUR to identify unneeded facilities or opportunities activities. For example, utilization to consolidate housing are prepared by each installationreports on bachelor the communities and regions to USAREUR. and submitted through checked at USAREUR headquarters for The reports are then completeness and mathe- matical errors and sent to the Department of the Army. Department of the Army and USAREUR visual inspection of facilities. regulations require USAREUR officials stated that they do not make onsite inspections consuming and the personnel responsible because they are time- nave higher priority assignments. for conducting them USAREUR officials also stated that sufficient staffing has not been allocated for the task. The Army noted that USAREUR's new real utilization system will assist in improving property inventory monitoring. facilities use ARMY EFFORTS TO IMPROVE USAREUR is attempting to obtain more accurate and complete Inventory and utilization data. Recent efforts include comput- erizing facility utilization and inventory data, developing master plans for each community, and preparing a long-range stationing plan for USAREUR. USAREUR's computerized information system is expected to include data on facilities (location, type, and condition) and their intended use. As noted earlier, however, the Army stated that the determination of how well space is used will still depend upon onsite inspections. USAREUR is having problems obtaining an accurate and com- plete data base. In a recent attempt to identify transient quarters, it requested all installations to report the transient quarters and beds they had available. Many installations, in- cluding Heidelberg, the location of USAREUR headquarters, re- ported no transient quarters when in fact some were available. The inaccurate and incomplete information being submitted to USAREUR by the installations and communities is delaying USAREUR's efforts to compile inventory and utilization data on all facilities. Once obtained, the data will still be incom- plete because it will not include information about the manner and extent facilities are actually being used. Development of master plan USAREUR is also developing a master plan for each commu- nity, to provide information on the community composition and Army plans for its development over a 20-year period. The master plans are being prepared in th-ee phases: an accounting of existing facilities, a comparison of present facilities with future mission requirements, and plans for future commu- nity development. We were told that the future development phase will include a section identifying unneeded facilities. Development of the master plans began about 3 years ago, and completion is a long-range goal. As of March 31, 1976, USAREUR had approved the phase I stage for only one community master plan. We reviewed the master plans for Augsburg, Munich, Stuttgart, and Bremerhaven, none of which have been approved. They provide little more than general information, and it is questionable whether unneeded facilities will be identified when the plans are complete. After the Army commented on this report, we obtained tte following data on the master plans as of December 30, 6 1976. When complete, 42 plans will European areas outside Getmany. be submitted, 6 from Number of plans subittedtoe USAREUR Phase I - 40 Phase II - 38 Phase III - 38 The Army stated that all phases of communities have been approved. Other the plans for three community plans are either partially approved and/or undergoing The Army did not comment on whether USAREUR review. the approved plans will identify unneeded facilities. Stationing plans USAREUR is also developing its first staciuninc plan, which is a long-range forecast of and within USAREUR communities. Theunit r-ves into, out of, all communities for use in developing plan will be provided to plans and for developing their own phase II of their master stationing plans. With such data, communities can anticipate facility construction and request necessary needs and program funding 5 years in advance. The Army stated that Lhe plan has is being used as a long-range planning since been published and document. CONCLUSIONS At the time of our review USAREUR emphasis on facilities manag ment. was rat placing enough The Army agreed, and stated that USAREUR has since placed greater However, according to the Army, how emphasis in this area. w11ll used depends upon onsite inspections, facilities are being which USAREUR officials have stated they do not make. RECOMMENDATIONS The Secretary of the Army should require USAREUR to: -- Establish procedures for periodic onsite inspections to provide for more effective utilization of facilities. -- Obtain a complete and accurate inventory under its control, and to report annually of facilities facilities' utilization. on those 7 CHAPTER 3 USAREUR NOT EFFECTIVELY UTILIZING QUARTERS U.S. Army Europe (USAREUR) officials estima.e that about $9 million in basic allowa.ice for quarters (BAQ) could be saved by using readily available vacant facilities. We believe the savings for BAQ could amount to $16.7 million if bachelor quarters were more fully utilized. Also, USAREUR does not fully utilize family housing and other facilities which, if properly utilized or returned to the host country, could pro- duce additional savings. BACHELOR QUARTERS NOT FULLY UTILIZED Di;Jring 1975, more than $19.5 million in quarters allowance was paid to about 6,100 bachelors living off post. As of July 31, 1975, an annual utilization report showed that only about 56 percent of the bacielor enlisted quarters and about 77 per- cent ?f bachelor officer quarters were being utilized for housin.g. Although its standards for family housing is 98 per- cent occupancy, USAREUR has not established a utilizationl standard for bachelor quarters. The Army did not agree with these utilization percentages, noting that the computations were basea on gross capacity, which includes authorized diversions and substandard space, and believes that net usable space is a more reasonable basis. We discuss this point in more detail later. The Army also stated that two additional facility reports, January 1976 and July 1976, were submitted since the date of the one we used. The Army stated that the January 1976 report shows a higher utilization rate (63 percent) for bachelor enlisted quarters. It should be noted that as late as September 23, 1976, we met with the USAREUR Chief of Staff and other USAREUR officials to obtain more recent data. The Chief of Staff advised us that updated information was not available at that time because USAREUR had not completed its 1976 analysis. Ir our opinion, the Army comments about the calculation methcd and the data in later reports do not address the issue of personnel living off post and receiving quarters allow- ance while quarters are available for them. A special USAREUR study showed that, as of July 31, 1975, vacant quarters were sufficient in 24 of the 36 communities 8 to accommodate all enlisted bachelors paid quarters allowance to live off base. Further, if space diverted for use other than quarters and unit integrity allowance were used for quar- ters, seven more communities could house all enlisted bache- lors living off post and receiving quarters allowance. In most communities, however, there are not enough quar- ters for all bachelor officers. In military communities lacking enough housing, Army re- gulations require that (1) bachelor housing diverted to ad- ministrative and other uses be changed back to housing and (2) empty spaces reserved for unit integrity be made available to bachelors from other units. By comparing available space, including vacant, diverted, and unit integrity allowance space, on each installation with the number of personnel receiving allowances at those instal- lations, we determined that only 681 of the 6,119 receiving allowances could not be accommodated by their installations. Because Army policy allows personnel from the rank of major and above to live on or off base as they choose, an additional 188 persons would be eligible to live off base regardless of availability cf quarters. Therefore, about 5,250 personnel living off base could be required to move into vacant Govern- ment quarters. We estimated that up to $16.7 million could be saved in quarters allowance. As noted earlier, the Army disagreed with our method of calculating available rpace; however, USAREUR officials did not disagree with our method of calculating the savings. Also, a special program to modernize tJS. facilities was in process to renovate about 10,000 bachelor quarters. When the program is complete, additional quarters will be available. Commenting on this report, the Army stated that its policy is to reduce the number of bachelors drawing BAQ to a minimum, and that proaress is being made. The Army agreed that housing is not fully utilized, but noted that the right USAREUR is not always available where needed. housing According to the Army, some places have excess housing while others have a shortage. The Army agreed, however, that improvements are needed and that steps are being taken to that end. Undoubtedly, there are instances where available housing is not located at needed bases. But there are also instances where housing is available at the right places, yet remains 9 unused. Following are some communities with available quar- ters where enlisted bachelors were receiving quarters allow- ances: Number of enlisted bachelors Available Community receiving allowance vacancies Wuerzburg 169 152 Fulda 176 82 Giessen 428 104 Hanau 883 443 Mainz 225 53 Worms 58 51 Each of these listed communities had also enough space, diverted to other uses, to house all bachelors receiving allowances. Policies and procedures not fully implemented To be authorized quarters allowance tc reside off base, military personnel must obtain a statement of nonavailability of adequate quarters, which must be certified by the community commander. Such statements should not be issued if adequate space is available at a member's assigned post. Certificates have been issued when space was available. USAREUR regulation 405-15 defines diversion of bachelor housing to other uses as a temporary change, returnable to its original use within 72 hours, without extensive labor or addi- tional funds. These spaces at any time should not exceed more than 10 percent of total base housing, or 1,200 spaces, which- ever is less. This criteria has been exceeded. Quarters allowances granted when adequate quarters are available The Deputy Chief of Staft Engineering is aware that state- ments of nonavailability were being granted when adequate quar- ters were available. In 1974 the Army Audit Agency reported that at one installation over 100 enlisted personnel were granted quarters allowances while 300 vacant quarters were available. According to USXREUR officials statements of nonavail- ability of quarters were granted in certain cases to boost morale even though quarters were available. This practice can also be detrimental because what improves the morale of a few may lower the morale of many. For example, a January 10 1975 memorandum to the Commander in Chief, USAREUR, stated that one installation in the Heidelberg community had a significant morale problem because bachelors from one unit were allowed to live off post while bachelors from another unit, who wanted to live off post, were denied the privilege. Diversions not returned to housing Department of the Army and USAREUR approval must be ob- tained before quarters can be diverted c, other uses. Our analysis of the July 31, 1975, Bachelor Housing Capacities and Utilization Report showed that the total diversion rate for all ItSAREUR bachelor quarters was 16 percent, or 28,812 spaces. VII Corps reported 13 percent; V Corps, 20 percent; and the 1st Support Brigade, 17 percent. Some of the communi- ties reported diversion rates of over 30 percent. The Army stated that the majority of diverted bachelor housing in Europe is located at installations with excess housing and a shortage of administrative and storage space. As shown below, our discussions with community commanders dis- closed other reasons for not converting the space back to qu r- ters use. USAREUR officials stated that the overall diversion rate was probably closer to 25 percent, because many diversions are unreported. A survey of communities made by the VII Corps In- ternal Control Division showed that of 1,861 spaces actually diverted at 11 installations, only 127 had been properly ap- proved. A similar survey showed unauthorized diversions at the Heidelberg community. Bachelor officer quarters space had been diverted to administrative space while officers and ci- vilians were living off post and receiving quarters allowance. We asked commanders and administrative personnel at three communities why diverted quarters spaces were not being con- verted back when needed for bachelor housing. The responses were: -- Consideration has not been given to returning space to quarters. -- It would take too long to do so. -- If this were done, some space would have to be found for the activities moved out. 11 --Cost advantages and other considerations would have to be weighed before converting the space back to quarters. ARMY EFFORTS TO MORE FULLY UTILIZE BACHELOR QUARTERS During the latter part of 197T, USAREUR issued a supple- ment to Army regulations requiring new.procedures for the is- suance and control of statements of nonavailability of quarters, as well as requiring a letter requestirg the regional com- manders' assistance in getting bachelor Personnel back on post where vacancies exist. USAREUR's new procedures provided cuat the authority co issue statements of nonavailability was to be centralized under the community commander and a control copy was to be maintained at his headquarters. It also required revalidation of state- ments in effect as of November 1, 1975. Some communities did not fully centralize the authority to issue and control the statements at community headquarters. For example, the greater Stuttgart military community still allows the installation coordinators authority to approve state- ments of nonavailability for enlisted personnel in grade E-1 through E-6. These are not reviewed by the community headquar- ters, nor is a control copy maintained there. In the Mannheim military community the family housing of- ficer is responsible for issuing and controlling statements of nonavailability of quarters for only senior enlisted bachelors quarters and bachelors officer quarters. Proof of nonavail- ability for junior enlisted personnel is still provided by the unit commanders and installation coordinators. A copy is not kept by the community headquarters. The Army's analysis of the July 1975 Bachelor Housing Capacities and Utilization Report showed that 3,697 of those receiving allowances might be accommodated in on post vacancies, saving up to $9 million. As a result, USAREUR sent a letter to the Regional Commanders requesting their assistance in re- turning bachelors, livina off post and drawing allowances, to post quarters wnere adequate quarters were available. Most communities contacted by us or the USAREUR Head- quarters staff had sent letters to their subcommunities or installations asking for their assistance in returning bache- lor enlisted personnel to post, where vacancies exist. The communities had little success. For example, the Nuernberg family housing officer stated that once a person is allowed 12 FAMILY HOUSING NOT EFFECTIVELY USED DOD policy permits assigniLn, milit;ary persons not eligible for either lousing housing to certain or basic allowance for quarters. As of December 31, 1975, there were 610 inelig- ible families occupying Government quarters reimbursable basis. The rent charged in USAREUR on a for the units is computed by USAREUR and, according to regulation, to recover the Government's operating should be sufficient costs. The costs in- clude related administration service charges such as refuse collection and disposal; utilities; furnishings replacement; and maintenance and repair repair and common areas, and other related real of dwelling units, property. We found that the rental rates are actually based on proration of the fam- ily housing funds budgeted for all family throughout USAREUR and do not include housing quarters all curred by USAREUR in managing the family overhead costs in- housing management account for the units. Thus, the ccsfts to operate the units are not being recovered by USAREUR. USAREUR officials stated that 227 employees and Air Force Exchange Services occupy of the Army Munich for a total rent of $627,120 per Government qdarters in average maintenance and repair costs year. If [;SAREUR as well as the manage- ment costs were included in the rental computations, the rent necessary to cover all costs could be ficials stated that the primary reason $900,000. USAREUR of- they do not include all related costs (such as the administrative red in managing overhead incur- the family housing funds) is that it is possible to determine how much of the im- costs are applicable to each housing type. We believe that if to retain these facilities, USAREUR decides the full cost should be recovered and that, when specificto the Government cost data is not available, reasonable estimates should be made. The Army stated that USAREUP is revalidating and total renter income for comparison its rates with actual costs in- curred for operation and mai'1tenance of the unit. We noted that contractor and foreign national and college students are also occupying employees Government on a reimbursable basis. No report is made quarters of the full extent of such uses or whether the full cost to the Government is being recovered. 13 The Army agreed that USAREUR does have ineligible per- sonnel occupying excess housing. The Army stated that such assignments are in accordance with appropriate regulations ,ad are closely controlled. According to USAREUR regulation 210-50, ineligible per- sonnel can only be assigned excess housing. However, an anal- ysis of the December 31, 1975, report cn utilization showed that in 14 family housing areas in Germany report:'.ng below 98-percent utilization, three had ineligible families occupy- ing quarters while eligible families were awaiting assignment to quarters. These families awaiting quarters were receiving station housing allowance while living on the economy, and at the same time USAREUR was not recovering full costs for housing occupied by-those ineligible families. CONCLUSIONS USAREUR is not enforcing its pblicy that facilities re- quirements be met at the least possible cost to the Govern- ment. It is paying quarters allowances to bachelors living off post when adequate quarters are available at their instal- lations. Even though USAREUR issued a supplement to the reg- ulations to establish better control over the issuance of statements of nonavailability, the results have. been less than satisfactory. Also, USAREUR is not collecting the total oper- ating costs of housing occupied by ineligible families in Germany. RECOMMENDATIONS The Secretary of the Army should require that USAREUR: -- Cease payment of quarters allowances to bachelors living off post when adequate quarters are available at their installations. -- Comply with regulations to control the issuance of statements of nonavailability of quarters. -- Give priority to those families awaiting assignment of Government quarters which are occupied by in- eligible families. In view of tile Army's comment that USAREUR is revalidating its rental rates for comparison with costs for operating and maintaining the units (see app. II), we are not making a re- commendation concerning the rental for housing occupied by in- eligible families. 14 CHAPTER 4 POTENTIAL FOR CONSOLIDATING AND RELEASING UNDERUTILIZED FACILITIES In a 1974 report on USAREUR's facilities management, the Army Audit Agency n3ted that many facilities were not fully and effectively utilized. Most units and activities had space than authorized or needed. more The report recommended that USAREUR review and analyze facilities utilization theater- wide, to (1) identify underutilized date Army activities at fewer facilities, (2) consoli- installations, and (3) close and release unneeded facilities. Facilities are swill underutilized. USAREUR headquarters officials, as well as Corps- and community-level officials, are aware of underutilized Stuttgart, and Bremerhaven facilities at the Augsburg, Mun'ch, communities, but are doing to correct the situation. little The Army Audit Agency estimated that about $28 million could be saved in operation and maintenance utilized facilities were consolidated costs if under- released and unneeded facilities to the German Government. BACHELOR QUARTERS UNDERUTILIZED Army reports on utilization of bachelor enlisted quarters showed as of July 31, 1975, a utilization rate of only 56 per- cent througnout USAREUR. If all 6,100 bachelor personnel off post were to move Lack living on, about 20,000 vacant spaces still exist. This will be increased to would special renovation program about 30,000 when the is complete. Army commanders have access to these reports which, in our opinion, can be useful in identifying opportunities for consolidating and releasing facilities. Bachelor enlisted quarters for other essential purposes being unused or unneeded should be released. The Army stated that USAREUR has more than 800 installa- tions, and the excess space is scattered throughout them small packets The Army noted that, due to in activities space requirements imbalance between and the available space at given location, there will a always be some excess. We nize that this imbalance can recog- cause some excess space at locations. We believe, however, that some ilities management would help closer attention to fac- reduce the utilization problem-- and the maintenance of excess facilities--ili following data. strated by the 15 As of July 31, 1975, 11 of the 36 communities reported utilization rates for bachelor enlisted quarters of 70 percent or less. Six of these repcrted less than 50 percent. By in- stallations, the reports show 81 installations with a utili- zation rate for bachelor enlisted quarters of less than 70 percent. (See app. I.) Nino of these installations--mainly abandoned missile or communications sites--showed zero percent utilizaticn However, some other installations showing low utilization are large troop housing areas. OTHER FACILITIES UNDERUTILIZED We visited the military communities at Munich, Bremer- haven, and Augsburg, and examined floor plans, toured some facilities, and spoke with local officials. Several facili- ties in these communities are underutilized and offer poten- tial for consolidation and release to the German Government. Munich military community The U.S. Government is paying nearly $8,000 annually for renting buildings to house a military unit when adequate free facilities are available at nearby McGraw Kaserne. It appears that the unit should be moved to McGraw Kaserne and the rented buildings released. A postal facility at the train station in Munich is being retained, although sufficient space has been identified as available in McGraw Kaserne. This postal facility was recommended closed and moved to McGraw Kaserne in February 1975. The estimated cost of the move ($10,000) produced an annual savings estimated at $20,000. USAREUR requested the release be deferred pending relocation of postal activities. As of April 1976 release action has no- -carted on this faci- lity. Five transient billeting facilities close to one another are less than 50-percent occupied. If the personnel were con- solidatel in two or three barracks, the other barracks could be returned to the German Government, reducing operating and maintenance costs. We observed many examples of vacant and underutilized administrative space in several other buildings. For exam- ple, USAREUR retains a mess hall that has been closed for lack of utilization since D.-cember 1, 1974. About half of two floors are vacant and some of the installed equipment is still in place, but we understand there are no present plans to reopen it. 16 Activities at Munich are dispersed throughout the mili- tary community to occupy available space. For example, employees authorized only 90 square feet of office space were occupying 300 square feet. Also, 10 enlisted military personnel, who are authorized only 90 square feet each for living quarters. were each occupying 180 square feet. Bremerhaven military community The Bremerhaven military community also showed low faci- lities utilization for several years; Army activities were spread thir. throughout the military community to occupy all available space. Support Group officials agreed with our observation that only about 30 percent of the Bremerhaven hospital is being used for hospital functions. The remaining 70 percent is used by other activities, such as Girl Scout and Boy Scout meeting places, a retail store, a barber shop, a community drug and alcohol counseling center, a snack bar, a Stars and Stripes bookstore, and other unrelated hospital activities. Other examples of low utilization in the Bremerhaven com- munity are shown i. the following photographs: 17 Community officials stated that this administrative building above was only about 25-per- cent utilized. The building above was also used for administrative functions. An official estimated that less than 50 percent of its space was used. 18 The auministrstive building shown above, with at least 56,000 square feet of net usable space, has been vacant for nearly 3 years. Community officials stated that the Navy vacated the building directly above in 1973 and that, since that time, at least $22,000 has been expended on repair and maintenance. We ob- served that the building's interior was in relatively poor condition and would require major construction improvements to become usable. Those officials stated that the building had been left vacant for 3 years because of the costs to up- grade it, bu't it has been retained for contingencies. USAREUR officials stated that the iremerhaven facilities would be used fully within 2 years because Brigade '76 is to be stationed there. Augsburg Most buildings at Gai;lingen Kaserne have been unoccupied for over 8 years. Because a special Army agency field station was installed at that kaserne, these buildings remain unoccu- pied. According to agency officials, any use of the vacant buildings would seriously impair their mission. In October 1975 the Augsburg military community commander stated that tne buildings were almost impossible to maintain due to their age and the prohibitive cost to restore them to a usable con- dition. He further stated that no foreseeable need existed for the structures, either by German or U.S. forces, and re- quested assistance from USAREUR in getting several structures at Gablingen demolished. The agency concurred with demolition of the buildings, which is estimated to cost about $400,000. In March 1976 USAREUR requested that the agency provide funds to either maintain or demolish the vacant buildings. USAREUR stated that, because the Security Agency operation 19 prohibits USAREUR occupancy of vacant buildings, Gablingen Kaserne must be considered a single-function facility to meet unique tenant requirements, and the agency must provide the funds. The agency replied in March that they did not believe their command should be programing, budgeting, and funding for that purpose. As of April 1976 USAREUR and the Security Agency had not resolved the issue. The generally poor condition of some of the buildings is illustrated by the following picture. The German news media and Augsburg city officials have occasionally complained about the appearance and condition of the unoccupied buildings at the Gablingen Kaserne. The original annoyance expressed by the German press was over six buildings adjacent to a heavily traveled highway. Retention for long- range contingencies Retaining facilities for unforeseen future contingencies seems to be a major factor in commanders' decisions to retain nonessential facilities. The USAREUR Deputy Chief of Staff other USAREUR officials stated that the for Engineering and Army does not release some unneeded facilities to Germany because, by retaining them until the German Government wants them, the Army improves its bargaining position for alternate facilities needed in the future. Since the Status of Forces Agreement requires that Germany provide needed facilities to U.S. forces, this reserv- ation appears questionable. Those officials also stated that USAREUR does not keep records or make reports on facilities 20 specifically retained for this reason or for futu: e contin- gencies. Space is needed for contingencies such as adding new forces and moving active forces from one location to another. USAREUR officials stated that new forces will be moved into Augsburg, Wiesbaden, and Bremerhaven because of the under- utilized space in those communities. Moves presently being considered are (1) the European Command headquarters from Stuttgart to Mons, Belgi an, (2) the University of Maryland from Munich to Stuttgart, and (3) two Army schools from Bremerhaven to Munich. The Army noted that three USAREUR schools have been moved to Munich from Bremerhaven to make room for expansion there. The personnel spaces for these schools are shown in the following table: Positions Race Drug and Resource affected relations alcohol abuse management Total Officers 5 1 0 6 Enlisted 7 3 ( 10 Civilians 0 2 4 6 12 6 4 22 The Army stated that as of April 1°77 the Augsburg area is no longer underutilized. Two artillery battalions are now stationed there. USAREUR has also taken the initiative to resolve the Gablingen Kaserne (Augsburg community) problem. Activities there will be consolidated and unused facilities returned to the FRG. The Army agency was instructed to plan accordiigly. According to the Army, the recent decision to locate units in Northern Germany will eliminate underutilization of the Bremerhaven facilities, which will be expanded to meet identified needs of both the Army and Air Force. USAREUR also plans to move selected units into the Stuttgart area following the relocation of certain units currently in place. Projected time frame is July/August 1978. CONCLUSIONS The actions taken or planned may produce more effective facilities management at Augsburg and Bremerhaven. We be- 21 lieve, however, that the actions planned 'or Munich will not produce better facilities utilization. RECOMMENDATIONS With regard to the Munich facilities, we recommend that the Secretary of the Army require USAREUR to --relocate activities now in rented space into available free space where possible, -- prepare a plan for consolidating activities and identify those facilities which are not needed and available for rel'ease to the Federal Republic of Germany, and -- prepare a justification for retaining those facilities showing a low utilization rate. 22 APPENDIX I APPENDIX I EIGHTY-ONE USAREUR INSTALLATIONS SHOWING UTILIZATION OF AVAILABLE SPACE Percent of spaces Usable Spaces used for space used quarters Community/Installation Gross Net for qtrs. Gross Net VII Corps Ansbach Bleidorn Kaserne 617 555 342 55 62 Aschaffenburg Brettsell Corn. Facility 33 30 8 24 27 Augsburg Gablinger Arfld. 1,305 1,175 0 0 0 Flak Kaserne 1,153 851 510 44 60 Sheridan Kaserne 3,256 2,553 1,429 44 56 Bamberg Harris Barracks 136 140 79 58 56 Garmisch Sheridan Barracks 418 355 97 23 27 Strib Barracks 164 121 60 3/ 50 Goeppengen Hohenstadt 34 31 11 32 35 Heilbronn Reisenbach Com. 40 36 12 30 33 Munich Family Housing Chiemgau 1,200 904 225 19 25 New Ulm Wiley Barracks 2,125 1,484 882 42 59 Nuernberg 923 794 550 60 69 Johnson Barracks Monteith Barracks 1,596 1,336 894 56 67 23 APPENDIX I APPENDIX I Percent of spaces Usable Spaces used for spaces used quarters Community/Installation Gross Net for qtrs. Gross Net VII Corps 7th Army Training Area Camp Wildflecken 3,178 2,619 1,210 38 46 South Camp Vilseck 1,988 1,732 817 41 47 Radio Station Schneebe 45 45 0 0 0 Hohenfels Training Area 6,096 5,424 1,255 21 23 Stuttgart Boeblingen Maintenance Plant 184 166 0 0 0 Flak Kase :ne 1,043 621 407 39 66 Funker Kaserne 592 382 229 39 60 Hospital Bad Cannstadt 377 339 105 28 31 Coffey Barracks 947 717 463 49 65 Karls Kaserne 130 124 0 j 0 Ludendorf Kaserne 841 634 396 47 62 Murphy Barracks 195 175 0 0 0 Robinson Barracks 405 354 166 41 47 Valdez Barracks 91 82 47 52 57 Wuerzberg Hindenburg Kaserne 517 465 116 22 25 Nike Site Mainbullau 117 105 2 2 2 Leighton Barracks 912 741 481 53 65 V Corps Bad Kreuznach Anderson Barracks 648 542 184 28 34 Baumholder WC Welzel Kaserne 320 203 129 40 64 Nabollenbach 270 192 130 48 67 Hospital Neubruecke 534 432 225 42 52 Reitscheid Nike Site 105 94 0 0 0 Comsite Erbeskopf 6 5 0 0 0 Darmstadt Ammunition depot Muenster 324 265 145 45 55 24 APPENDIX I APPENDIX Percent of spaces Usable Spaces used for spaces used quarters Community/Installation Gross Net for qtrs. Gross Net V Corps Cambrai 1,823 1,061 697 Frankfurt 38 66 Hansa Allee Family Housing 459 276 189 Gibbs Kaserne 41 69 1,000 769 526 53 68 Gutleut 1,061 688 299 Michael 28 43 137 111 20 15 18 Frankfurt QM Mortuary 16 14 9 FKT Troop Housing 56 64 402 284 122 30 43 Frankfurt AFN Station 89 24 15 17 63 CS-essen Friedburg Training and Storage Area 41 7 9 Pendleton Barracks 22 24 580 419 179 31 43 Com. Site Linderhofe 79 48 17 Bocksberg 22 35 10 9 6 60 6? Hanau Hutier Kaserne 915 549 343 37 62 Ma inz Camp Pieri 837 730 279 33 38 1st Support Brigade Bremerhaven Hospital Bremerhaven 120 108 46 Com. Facility 38 43 Garlstedt 21 19 0 Carl Schurz Kaserne 1,149 0 0 1,149 268 23 23 Heidelbtrg Hospital Heidelberg 294 235 94 Tompkins Barracks 32 40 1,116 879 493 44 56 Koenigstuhl Radio Relay Station 29 26 18 62 69 Kaiserslautern Kriegsfeld Ammunition Dep)t 461 371 161 35 43 25 APPENDIX I APPENDIX I Percent of spaces Usable Spaces used for spaces used quarters Community/Installation Gross Net for qtrs. Gross Net Einsiedlerhof Medical Depot 450 252 0 0 0 1st Support Brigade Miesau Army Depot 858 711 305 36 43 Bann Commo. Station 10 9 6 60 67 Kleber Kaserne 2,170 1,730 1,129 52 65 Landstuhl Hospital 1,581 1,283 707 45 55 Panzer Kaserne 779 268 130 17 49 Kapaun Barracks 1,962 1,106 575 29 52 Daenner Barracks 1,050 945. 487 46 65 Karlsruhe Neureut Kaserne 1,244 1,030 674 54 65 Pforzheim Missile Site 88 79 0 0 0 Rheinland Kaserne 1,203 894 573 48 64 Smiley Barracks 326 290 189 58 65 Mannheim Funari Barracks 536 425 247 46 58 Hammonds 422 299 193 46 66 Spinelli 1,116 840 538 48 64 Taylor 1,030 776 346 34 45 Pr imasens Dahn Ammunition Depot 202 182 15 7 8 Hustephohe Kaserne 3,023 1,948 1,343 44 69 Primasens Primasens Storage 268 241 42 16 17 Worms De La Police 73 41 27 37 66 Taukkunen Barracks 616 510 101 16 20 Zweibruecken Kreuzberg Kaserne 1,116 652 301 27 46 Total 63,627 49,110 23,324 37 47 All other BEQ spaces in Germany 116,188 77,076 76,990 66 99 26 APPENDIX I APPENDIX I Grand total 179,815 126,186 100,314 56 79 1/ Gross capacity is the total number of individual rooms planned for sleeping purposes. 2/ Net capacity equals gross capacity minus diverted spaces and unit integrity allowance. 27 APPENDIX II APPENDIX II DEPARTMENT OF THE ARMY OFFICE OF THE ASSISTANT SECRETARY WASHINGlON, D.C. 20310 Mr. Fred J.Shafer Director, Logistics and Communications Divisicn General Accounting Office Washington, D. C. 20548 Dear Mr. Shafer: This is in reply to your letter of 16 December 1976 to the Secretary of Defense regarding your draft report, "Improvements Needed in Managing U. S. Army Facilities in E :ope," OSD Case #4491. With the exception of a few areas discussed more fully in the attached comments, the Army concurs with most of the recommendations and agrees that various aspects of the management and utilization of facilities in Europe require improvement over those existing at the time of the GAD audit. Corrective actions are underway by US Army Europe (USAREUR) to improve the management and utilization and significant improvement has been made in tl,at direction. It is recognized that more work needs to be done and that many of the corrective actions will take additional time to achieve the desired de- gree of improvement. The Department of the Army intends to insure that USAREUR continues its efforts to manage and to utilize properly its fa- cilities. These areas will be looked into during the Army Inspector General and Auditor General's FY 1977 general inspection of USAREUR/ Seventh .rmy scheduled to commence o/a 25 April 1977. Specific comme,.ts to your report are inclosed. Sincerely, I Incl Jon Perkias III Comments Acting Deputy for Installations and Housing OASA(I&L) 28 APPENDIX II APPENDIX II Department of the Army Comments on GAO Draft Report of 16 December 1976 "Improvement Needed in Managing U.S. Army Facilities in Europe" Code 945267 D Case No. 4491) I. Finding: US Army Europe (USAREUR) has not placed sufficient emphasis on facilities management resulting in inaccurate and incomplete inventory data. Efforts to improve this data have not produced the desired effect of more accurate inventory data. Specific Findings: 1. Tn 1974, USAREUR decentralized most facilities management responsi- bility by delegating it to the regional commanders, who in turn delegated it to the 36 (report indicates 32, which is in error) community commanders. However, central oversight is needed. Comment: The Army agrees that central oversight is needed. Since the GAO audit, USAREUR has placed greater emphasis on facilities management and many corrective actions have been taken, or are underwav, to improve man- agement and utilization of facilities. 2. USAREUR's instructions and its policy on facility use are not explicit and do not establish utilization or disposal priorities. Comments: Existing policies require that all properties found excess to US needs be reported to HQ USAREUR for determination of disposition. Once a property is determined for release, explicit instructions are issued to the US Army Real Estete Agency, Europe for disposal of the property. If.priorities for dispoal are involved, these are contained in the instructions issued by USAREUR. USAREUR recently published the Stationing Program (STATPRO) which contains a Facilities Disposition Plan, a means to identify facilities for disposal. Additionally, USAREUR Regulation 405-15, Space Allocation and Use of Facilities is under revision. This regulation and the STATPRO will pro- vide more definitive guidance on facilities utilization and disposal. 3. The management systems are not geared for emphasizing the identi- fication and release of nonessential facilities. 29 APPENDIX II APPENDIX II Comments: The identificat4 n of nonessential facilities is a responsibility of the major subordinate commands who manage resources, including real property, as igned to thee. ;SAE;i'P has neriodicallv issued instructions for the survey of holdings, such as hieh-rental facilities, placing emphasis on continuing action by the subordinate cormandq to assess the need, if any, to retain real pronertv accommodations. USAREUR directives, such as USAREUR Regulation 4C5-15 and the STATPRO, emphasize th? efficient use of facilities and identifying facilities for release when no longer required. Periodically, command letters are sent to reemphasize this policy. Such a command letter, nersonally signed by tl'- C1NCUSAREUR, that emphasized release of rental properties, was sent on 10 Feb 75. 4. Lower level implementation of facility use policy is not effec- tivelv monitored. Comment: USAREUR is emphasizing management improvements for facilities use within available resources. It is anticipated that USAREUR Real Prop.rtv Inventory Utilization system, now operational, will assist in improvin, monitoring of facility use. II. Finding: Utilization data is not reported for several types of facilities and, in chose instances where it is reported, the data is in- accurate and unreliable. Specific Finding: USAREUR prepares utilization rfports for bachelor and 'amilv housing and some storage facilities. USARi'JR officials at all command levels generally consider reported data on utilization to be in- accurate. Utilization of other facilities for administration, training, maintenance, community, and medical services is not reported. Comment: Recurring utilization reports, except for housing and some stor- age facilities, are not reouired by higher authority. These reports are expensive in terms or m-npower and maintenance time. However, USAREUR's Real Property Inventors _nd Facility Utilization System, undeC development at the time of the nCAO review, is now operational. Initial input data for this report was received 30 September 1976. As with any new system, error rates were high but are being reduced as people become familiar with the system. Like the Bachelor Housing Utilization report, accuracy is dependent upon those filling out the forms. It is intended that actual utilization for most facility categories will be reflected in reports for this system. Determination of how well space is being utilized is still dependent upon on-site inspections. Frequency of facility utilization inspection will be specified in the revised USAREUR Regulation 405-15. 30 APPENDIX II APPENDIX II III. Finding: Efforts to improve facility management, through computer- i,~ing data and long-range planning, have moved slowly and when completed may still not provide the information needed for effective management. Specific Findings: 1,. USAREUR's planned computerized information system will orovide data including location, type, condition and dedicated use. Inaccuracies in data received are a problem. Actual utilization may not be reflected on the report. (Comment: See comment on Finding II. 2. Development of USAREUR Master Plans began about three years ago. As of 31 March 1976, only one Phase I stage Dlan has been approved by USAREUR. Comment: USAREUR master planning began in CY 74. As of March 1976, one Phase I document had been apnroved by U;APEITr. The community involved, Bamberg, was the one used as a test master-rlan community, and began docu- mentation earlier than other communities. As of 29 November 1976, USAREUR communities had coimpleted 18 Phase I documents, 13 Thase II documents and four Phase IV documents. At that time, some of the documents had been approved and the remainder were being reviewed. Scheduled submission date of initial master plans by all USAREUR commnunuties was 31 December 1976. These plans have to be technically and administratively reviewed prior to USAREUR approval. 3. A Stationing plan is being developed. It is geared toward future facilities requirements. Comment: The Durpose of t: e stat in.iag ilan is to support the USAREUR mission. This document was published ..d distributed 30 June 1976 and is being used as a long-range planning document. IV. Finding: The Army has Daid auprters allowance to bachelors living off post when adequate quarters we:e available at their installation. The Army recognized that abouL $9 million annually could be saved if available quarters were used. C,AO estimated, however, that about $16.7'million could have been saved in 1975 if adequate bachelor ouarters, which were available, had been used. Specific Findings: 1. As of 31 July 1975, an annual utilization report showed that only about 56 percent of the bachelor enlisted quarters and about 77 percent of bachelor officer quarters were being utilized for housing. 31 APPENDIX II APPENDIX II Comment: Percentages computed by the GAO from the Bachelor Housing capa- bilities and Utilization Report were based on gross capacity, which includes authorized diversions and substandard space. This is not an objective basis for computing percentage utilization. Net usable space is the more reasonable base figure. Since 31 July 1975, two additional reports have been submitted, those of 31 January 1976 and 31 July 1976. The 31 January 1976 report shows a utilization of 63 percent if calculated in the same manner as the GAO report. (Calculated on the worst case, actual utiliza- tion vs gross capacity, which is contrary to existing regulation which permits diversion of spaces to include those building spaces undergoing MDUSF renovation). Usine normal lv nccented methods, the utilization per- centage from the same two reports would be 74 percent and 82 percent, respectively. The reports show significant improvements over that six- month period and efforts are being made to achieve further improvement. 2. GAO estimated that by fully and uniformly implementing policy and procedures regarding utilization of bachelor quarters and payment of BAQ, around $16.7 million could be saved in quarters allowance. Comments: DA policy is to reduce to a minimum the numbec of bachelors drawing Basic Allowance for Quarters. Progress is being made. For example, the number of bachelor enlisted drawing BAQ in USAREUR was reduced from 4,941 to 4,00O during the period 31 July 1975 to 1 January 1976, as reflected by the Bachelor Housing Capacities and Utilization Report. Although USAREUR housing is not fully utilized, the right housing is not always available at the place needed for the mission. In some places there is housing excess to the number of personnel needed for the mission. On other loca- tions the reverse is true. Thus, mission requirements preclude attaining a perfect balance which would permit eliminating all BAQ payments to bach- elor personnel. Nonetheless, additional improvements are needed and steps are being taken to that end. Command letters were sent out on 3 October 1975 to each USAREUR major command to emphasize the policy of reducing authorizations for living off post. HQ USAREUR included a check of this policy in visits to communities concerning facilities utilization. 3. Department of the Army and USAREUR approval must be obtained before quarters can be diverted. Our analysis of the July 31, 1975, Bachelor Housing Capacities and Utilization Report summaries showed that the total diversion rate for all USAREUR bachelor quarters was 16 percent, or 28,812 spaces. Comments: Under existing DA regulations, major Army commanders (MACOM's) are dele- gated authority to approve divcriion of adequate, or substandard may be made adequate (S?4BMA), bachf'or housing using the following guidelines: 32 APPENDIX II APPENDIX II a. The duration of the diversion should be no longer than 36 months from the date of crproval. b. The diversion should not result in the dislocation of assigned personnel to other than better or equal facilities. c. Total spaces in a diverted status at any one time should not exceed more than ten percent of the installation's adequate or SMBMA assets or 1,200 barracks/100 BOO spaces, whichever is the lesser. An information copy of each diversion approval by MACOM's is required to be provided to HQ DA. DA approval to divert substandard bachelor housing is not required. Based on information copies of diversion approvals by USAREUR and DA 1709 reports, majority of diverted bachelor housing in Europe is located at those installations having excess housing but are short of other types of facilities required to support their mission, such as administrative and storage space. V. Finding: Family housing is being occupied by some families on a reim- bursement basis. Regulations permit this, but the rent being charged by the Army does not cover operation and maintenance costs as required by these regulations. Specific Findings 1. As of 31 December 1975, there were 610 ineligible families occupying government quarters in USAREUR on a reimbursable basis. Comment: USAREUR does have ineligible military and civilian personnel oc- cupying government housing that is generally excess to Army needs. Assign- ment of these ineligibles is accomplished in accordance with appropriate DA and USAREUR regulations and is closely controlled. The subject of appropriate reimbursement is covered in the next two Specific Findings. 2. We found that the rental rates are actually based on proration of the family housing funds budgeted for all family housing quarters through- out USAREUR and do not include all overhead costs incurred by USAREUR in managing the Family Housing Management Account for the units. Comment: USAREUR is revalidating Fair Market Rental rates and total income derived from subject renters for comparison with actual costs incurred for operation and management of the units. (See GAO Note p. 49) 33 APPENDIX II APPENDIX II (See GAO note p. ) VI. Finding: As the result of an Army Audit Agency report, issued in 1974, Army officials in Europe are aware that facilities are under utilized. That report noted that an estimated $28 million in operation and maintenance costs could be saved annually if activities were consolidated and unneeded facilities returned to the German Government. GAO's review disclosed that the facilities are still underutilized and that very little effort has been made to consolidate activities and to return facilities to Germany. To the contrary, GAO's review disclosed that in several military installations, activities are spread thin throughout the facilities to show occupancy of space. Specific Findings: 1. Facilities are still being underutilized and USAREUR officials are doing little to correct the situation. Comment: The AAA report cited some valid observations concerning excess facilities. Since that time (Feb 7!'), more than 50 installations have been released. The report did recognize the difficulty in consolidating 34 APPENDIX II APPENDIX II activities to use up vacant space; however, USAREUR has more than 800 installations, and the excess space is scattered throughout them in small packets. Due to the imbalance between space requirements of activities and the available space at a given location, there will always be some excess. 2. Augsburg, Bremerhaven, Munich and Stuttgart showed low utilization for long periods. Munich has been underutilized for about eight years. Comments: .,ugsburg is not underutilized now. Two artillery battalions that were allocated from CONUS in June 1976 are now stationed in Augsburg. Additional units are planned to be relocated to the Bremerhaven area in Jul-Aug 1978. Additional support personnel, inclueing US Air Force Europe units, will more fully utilize Bremerhaven facilities. Three USAREUR schools moved to Muni'n from Bremerhavei.. This was a result of the space requirements for incoming units at Bremerhaven exceeding the space available in the area. Additionally, it provided for fuller utili- zation of Munich's housing and transient billeting assets. USAPEUR's current plans include the relocation of several units/activities to the Stuttgart area upon completion of the planned relocation of selected activities from Stuttgart. These planned moves should result in more effi- cient utilization of facilities in the Stuttgart area. 3. Gablingen Kaserne (Augsburg community) has been vacant for over eight years. It has been the cause of local adverse publicity. The prob- lem of whether USAREUR or the Army Security Agency (ASA) is responsible for the deteriorating buildings should be resolved. Comment, USAREUR has taken the initiative to resolve the problem at Gablingen. The activities there will be consolidated and USAREUR plans for the unused facilities to be returned to the FRG. ASA has been advised of this intention and instructed to plan accordingly. 4. Retention of facilities for contingencies seem to be a factor in the commanders' decision to retain nonessential facilities. We were told that new forces will be moved into Augsburg, Wiesbaden, and Bremerhaven because of the underutilized space in these communities. Comments: Augsburg was identified as the best location for deploying and stationing two rotational field artillery battalions from the operational standpoint. Secondarily, it would better utilize facilities which were at that time underutilized. 35 APPENDIX II APPENDIX II Wiesbaden was identified as the best location for stationing a rotational Bde. The Weisbaden/Kaiserslautern exchange and reactivation of Sembach AB were necessitated by this stationing action. Wiesbaden facilities were not underutilized; in fact, major reloca-ions of Air Force units to Kaiserslautern had to occur in order to staticn the brigade in Wiesbaden. Bremerhaven facilities were drawn down to the minimum requirement to sup- port the port operation and the USAREUR schools that were located there. The decision to locate additional units in NORTHAG necessitated expansion of Bremerhaven facilities to accommodate the units. With the addition of an Air Force beddown requirement in Bremerhaven and the accommodation of the Bde at Garlstedt, Bremerhaven facilities will NOT be underutilized; rather, they will be expanded in order to accommodate the new units. GAO note: The deleted comments relate to matters which were discussed in the draft report but were deleted from this final report. 36 APPENDIX III APPENDIX III PRINCIPAL-OFFICIALS -RESPONSIBLE FOR-ADMINISTERING ACTIVITIES DISCUSSED'IN'THIS'REPORT Tenure-of-office Prom To SECRETARY OF DEFENSE: Harold Brown Jan. 1977 Present Donald H. Rumsfeld Nov. 1975 Jan. 1977 James R. Schlesinger July 1973 Nov. 1975 SECRETARY OF THE ARMY: Clifford L. Alexander Feb. 1977 Present Martin R. Hoffmann Aug. 1975 Feb. 1977 Norman R. Augustine (acting) July 1975 Aug. 1975 Howard H. Callaway May 1973 July 1975 37
U.S. Army Facilities in Europe: Management Improvement Needed
Published by the Government Accountability Office on 1977-07-01.
Below is a raw (and likely hideous) rendition of the original report. (PDF)