Additionally, property declared excess to the federal  government’s need may be sold. Also, we found that GSA, NPS, and VA were implementing projects in  some historic buildings to improve their sustainable performance. Portfolio-Wide Management Efforts

All three agencies have undertaken efforts in recent years to identify the  historic buildings across their real property portfolios, nominate those  buildings to the National Register, and are working to manage those  buildings in an effort to comply with the requirements of NHPA and the  executive orders. When historic buildings were either excess or  unsuited for mission needs, we found several instances in which agencies  leased part or all of a building to a non-federal entity that could use the  building while preserving its historic character. Sustainable Performance of Historic Buildings

In addition to efforts to preserve and use historic buildings, we found that  GSA, NPS, and VA were implementing projects in some of the historic  buildings we reviewed to improve the sustainable performance of the  buildings and begin meeting the Guiding Principles, as required by  Executive Order 13514. Sustainable projects we observed at some of the buildings we visited  included improved energy-efficient heating and cooling systems, “green”  vegetated and “white” reflective roofs, and window retrofits or  replacements, among others. GSA, NPS, and VA Face Challenges in Managing Historic Buildings

The three agencies we reviewed face challenges related to the  functionality of historic buildings, the amount of funding available for  preservation projects, and federal requirements to consult stakeholders  on historic preservation. Also, competing stakeholder interests  can arise when agencies consult with stakeholders. The three  selected agencies, however, did not report consistent information on their  historic properties. According to GSA and VA  officials, the data in the National Register are not complete. GSA and NPS historic building officials also stated that FRPP data on the  number of historic buildings they hold are inconsistent with data  maintained within their internal historic buildings databases. Recommendation for Executive Action

We recommend that the Acting Administrator of GSA—in collaboration  and consultation with ACHP, NPS, VA, and FRPC member agencies— ensure that the action plan being developed to improve FRPP data  includes actions to improve historic-building data by addressing the  following areas, at a minimum:    determining whether changes are needed—to historic data elements  or guidance—to ensure that data are consistently and accurately  reported;    developing, in FRPP fiscal-year summary reports, data that will better  convey to the public and stakeholders—including OMB and  Congress—a sense of the extent of historic buildings held by  agencies, such as total numbers or percentages; and,  facilitating ACHP’s access to FRPP data, as appropriate, so that  ACHP can better fulfill its historic-building advisory role to Congress  and the President. GSA agreed with our recommendation and further reported that it has, in  part, already taken action to rectify inconsistencies we found between  GSA’s FRPP data and its internal data sources used for NHPA  compliance and reporting required by Executive Order 13287. Major contributors to this report are listed in appendix V.

Appendix I: Objectives, Scope, and Methodology

Our objectives were to identify (1) actions selected nondefense agencies  have taken to manage historic federal buildings, and (2) any challenges  they have faced. We identified three agencies for our review: (1) the  General Services Administration (GSA); (2) the National Park Service  (NPS) within the Department of the Interior; and (3) the Department of  Veterans Affairs (VA). In addition, GSA was selected because it also maintains the Federal Real  Property Profile (FRPP) database that is used to identify and report on  federal real property, to include the historic status of federal buildings,  held by executive branch agencies. To understand the challenges faced by agencies in managing their  historic buildings and to identify agencies’ portfolio-wide efforts to  preserve their historic buildings, we interviewed our selected agencies’  real property and preservation officials about their agencies’ preservation  programs. We also interviewed agency officials  about data and reviewed FRPP guidance and other documents related to  the agencies’ real property data and FRPP database.
Why GAO Did This Study

The federal government has made some progress addressing previously identified issues with managing federal real property. This includes establishing the Federal Real Property Council (FRPC) and creating the FRPP database to identify and report agencies' real property, including attributes such as historic status. GAO was asked to assess issues related to historic preservation at nondefense agencies. GAO's review focused on-- GSA, NPS, and VA--three nondefense agencies that hold significant numbers of historic buildings. This report identifies (1) actions these agencies have taken to manage historic federal buildings, and (2) any challenges they have faced. GAO selected and visited a sample of 31 historic buildings managed by the three agencies. The results of these site visits cannot be generalized but provide important insights. GAO interviewed agency officials and reviewed agencies' efforts to preserve, use or lease, and improve the sustainable performance of those buildings. GAO also interviewed officials from the selected agencies about their agencies' preservation programs, including actions to identify and report on their historic buildings.

What GAO Found

The General Services Administration (GSA), the National Park Service (NPS), and the Department of Veterans Affairs (VA) have undertaken portfolio-wide efforts in recent years to identify historic buildings they hold, nominate some of those buildings to the National Register of Historic Places, and manage their historic buildings in an effort to comply with the requirements in the National Historic Preservation Act (NHPA) and relevant executive orders. While these agencies use and preserve some of their historic buildings to meet mission needs, others are excess or unsuited for current mission needs. GAO found several instances in which these agencies leased part or all of some historic buildings to non-federal entities that could use and preserve the buildings. GAO also found that these agencies had implemented projects in some of their historic buildings to improve their sustainable performance, such as installing green roofs and energy-efficient heating and cooling systems.
GSA, NPS, and VA face an array of challenges in managing historic buildings, including functional limitations of older buildings in relation to contemporary mission needs and current building codes, budgetary limitations, and competing stakeholder interests. Competing stakeholder interest can become apparent during the required consultation with stakeholders, such as the state historic preservation officers, prior to implementing projects that may affect a historic building. Compounding these property management challenges, the selected agencies' data on historic buildings in the Federal Real Property Profile (FRPP) are not complete. GSA and VA are still working to evaluate many buildings that are over 50 years old. Also, GSA and NPS have not reported complete and consistent historic-building data to the FRPP--in comparison to data they track within their agencies' historic-building databases. GAO reported its concerns with the reliability of FRPP data in 2012. This review emphasizes the relevance of these concerns to the historic-building data included in the database. In June 2012, GAO recommended improvements to the FRPP database to enhance its consistency, completeness, and usefulness in federal decision making. Such improvements are also necessary to increase the consistency and completeness of historic-building data in the FRPP.

What GAO Recommends

GSA--in collaboration and consultation with NPS, VA, and FRPC member agencies, and others--should ensure that the action plan being developed to improve FRPP also addresses the need for improved data on historic buildings. GSA agreed with GAO's recommendation and further reported that it has, in part, already taken action to rectify inconsistencies GAO found between GSA's FRPP data and its internal data sources.