Title II provides for the acquisition of certain additional lands within the District of Columbia and for the transfer of jurisdiction over certain sites outside of the District of Columbia by various departments of the Federal Government for the purpose of better utilization and efficient administration of those sites.

Title III authorizes the Commissioner of Public Buildings to undertake a program of acutely needed renovation of Federal buildings outside the District of Columbia. This would apply to major repairs and renovations and would not be used for ordinary repair and maintenance jobs costing less than $25,000 for which annual maintenance funds are now available. The sum of $30,000,000 is authorized to be appropriated for this program.

Title IV contains miscellaneous provisions which will improve the efficiency of administration of the functions assigned to the Public Buildings Administration.

GENERAL STATEMENT

The Subcommittee on Public Buildings held hearings on S. 714 on February 8 and 15, 1949. At these hearings consideration was given to S. 245, introduced by Senator Downey, and to an identical measure S. 114, introduced by Senator Cain, which provide for acquisition of sites and preparation of plans for Federal public buildings, similar to the provisions of title I of S. 714. Since S. 714 is a more-inclusive bill containing legislation pertaining to several other subjects which make for more efficient administration of the public-buildings program, it was considered desirable to report S. 714 in its entirety rather than to separate the planning phases from the remainder of the bill. The purposes and general content of S. 245 and S. 114 have met with the approval of the committee, however, and are incorporated in S. 714 as reported.

Testimony or statements were received from Senators, Congressmen, and others urging adoption of the bill. Representatives of the Federal Works Agency, the Public Buildings Administration, and the Post Office Department testified in favor of the bill. No opposition to the bill was expressed. The Bureau of the Budget has reported favorably on S. 714, and a copy of their letter is contained in this report.

Under existing legislation the Public Buildings Administration has basic authority to undertake the construction of Federal buildings, subject to certain requirements specified in the law, when appropriations are specifically provided for that purpose by Congress. The existing law does not, however, permit the Public Buildings Administration to make advance preparations for Federal building construction such as is common practice among other agencies engaged in public works construction. This lack of authority for advance planning results in a serious delay in initiating the actual construction work whenever such a program is undertaken. The provisions contained in title I of S. 714 will fill this gap in the existing legislation and pave the way for removing the elements of delay which would hinder prosecution of a building program when conditions warrant the initiation of construction.

The committee now has a few bills before it calling for construction of Federal buildings at individual localities. The House committee

has a much larger number of individual bills on its calendar. Unless a sound policy is established for handling bills of this type, it is anticipated that there will be a flood of additional individual bills. At present there are about 4,000 such proposed and needed buildings to be constructed throughout the country. The committee is not equipped to pass on the merits of eligible Federal buildings and make priority selections. Such selections, in the opinion of the committee, are properly the functions of the executive agencies charged with the administration of the housing needs of the Federal Government. From the testimony at the hearings it developed that additional Federal buildings are urgently needed at many localities. It is generally agreed that a Federal program of construction should not be started under present economic conditions. The construction inindustry is at present almost fully occupied, although there are people in the building trades in certain areas that do not have full employment. In order to be prepared to meet the urgent need for Federal buildings when economic conditions permit, it appears that S. 714 provides a logical approach to our present Federal building problems and constitutes the full extent to which we can go toward their solution at the present time. Information obtained from the Commissioner of Public Buildings shows that the terms of S. 714 as amended will provide for about 400 projects or additions thereto which can be made ready for starting construction. Of these a considerable number already have available sites or portions thereof. The precontract steps provided for in the bill require from 12 to 24 months, depending upon the size of the project. Enactment of this bill as amended would permit the orderly planning of a public building program and make it possible to proceed promptly with urgent construction as soon as economic conditions warrant it and the Congress deems it advisable. Existing legislation relating to Federal buildings is also somewhat inadequate with respect to the repair and renovation of old buildings which are basically sound for continued future use if measures for renovation and modernization could be undertaken. Funds included in the annual appropriations are sufficient for the more urgent work on maintenance and ordinary repairs, but they are not adequate to include any major modifications and renovations which are needed to provide proper facilities for efficient conduct of Government business. The authorization contained in title III of this bill will provide for major renovation and modernization work of an urgent character, including such work as changes and improvements in lighting, plumbing, heating, and air-conditioning equipment, structural changes to meet modern fire-prevention standards and fire codes, and modernization of elevator equipment. It is contemplated that the authorization of $30,000,000 contained in the bill will be spread over about a 3-year program. This authorization will not be used for ordinary repair jobs costing less than $25,000, for which annual maintenance appropriations are usually available.

During the committee's consideration of this bill, a question was raised as to the desirability of delegating the authority for selection of Federal building projects to the executive agencies involved; namely, the Federal Works Agency and the Post Office Department. In the course of the discussion, it was pointed out that prior to the enactment of the present basic public buildings legislation in 1926, Congress itself made the selections of building projects in so-called

omnibus bills. It was found that this process was extremely burdensome and troublesome to the committees and individual Members of Congress, with the result that in 1926 the authority for selection of building projects was delegated to the proper executive agencies with suitable safeguards to retain full control over matters of policy and appropriation of funds in the hands of the Congress. That decision in 1926 was reached after lengthy and thorough discussion by the Congress. The existing system of selection by the executive agencies as continued by S. 714 has been reasonably effective and satisfactory during the subsequent 22-year period. The committee wishes to emphasize, however, that the Congress retains full control over the appropriation of funds for all building projects after they have been selected by the executive agencies, since those agencies are required when appearing before the Appropriations Committees to submit in complete detail the various amounts proposed to be spent during the fiscal year for projects, including a statement of the location of the buildings proposed to be erected, together with a limit of cost for the same.

The Public Buildings Commissioner stated that it is the invariable practice of his agency and of the Post Office Department in cases affecting said Department, to confer with the representatives of the local units of government and with the Members of Congress representing the area concerned in determining the selection of projects and sites therefor.

Since the selection methods contained in S. 714 are simply a continuation of methods which have been tried and found satisfactory over a period of nearly a quarter of a century, the committee sees no reason for making any further change at the present time and in fact believes that this tried and proven system should be given continued support.

The report of the Bureau of the Budget is printed below:
EXECUTIVE OFFICE OF THE PRESIDENT,

BUREAU OF THE BUDGET,
Washington 25, D. C., February 23, 1949.

Hon. DENNIS CHAVEZ,
Chairman, Committee on Public Works,

United States Senate, Washington 25, D. C.

MY DEAR SENATOR CHAVEZ: Reference is made to your request of February 2, 1949, for the views of this Bureau on S. 714, a bill to provide for comprehensive planning, for site acquisition in and outside of the District of Columbia, and for the design of Federal building projects outside of the District of Columbia; to authorize the transfer of jurisdiction over certain lands between certain departments and agencies of the United States; and to provide certain additional authority needed in connection with the construction, management, and operation of Federal public buildings; and for other purposes.

Our letter of February 7, 1949, advised you that there would be no objection to the enactment of S. 114 or S. 245, bills similar to title I of S. 714.

Title III of S. 714 contains an authorization of $30,000,000 for major renovation and modernization work of an urgent character needed in some of the more than 5,300 public buildings scattered throughout the United States. This authorization appears desirable in view of the limited annual appropriation for repair and preservation of these Federal structures. Each year it is necessary to spend sizable sums on a few major items, principally in connection with mechanical equipment. The remainder of the annual appropriation must cover normal maintenance and upkeep of buildings.

This bill appropriately does not authorize a public-buildings program but paves the way for removing some of the elements of delay when such a program is ready for initiation. Site acquisition and plan preparation is particularly

desirable in those cases where the extension of existing facilities is necessary. For entirely new sites and buildings it is important to proceed with caution so that the Federal Government will not have in its possession sites that should not be used because of changed conditions in a community.

While the bill authorizes an expenditure of $70,000,000, that amount would be spread over several years, so that the burden on the Federal Treasury would not be unduly heavy in any one year.

It appears that section 205 (a) as now written would override the provisions of law which now control the transfer of lands within the District of Columbia. Under the act of May 20, 1932 (47 Stat. 161), the transfer of property between Government agencies within the District of Columbia is subject to the approval of the National Capital Park and Planning Commission. This law enables coordination of transfers of Federal and District land within the District. The National Capital Park and Planning Commission has suggested that section 205 (a) be amended to insure that existing law will remain in force. It is believed that the committee may wish to give consideration to this suggestion which, in the opinion of the Bureau, has considerable merit.

You are advised that the general objectives of S. 714 would not be in conflict with the program of the President.

Sincerely yours,

FRANK PACE, Jr., Director.

PURPOSES OF SECTIONS OF THE BILL

TITLE I

The purpose of section 101 of the bill is to authorize the Federal Works Administrator to acquire sites and prepare plans for Federal public buildings. Because of the continued demand for labor and materials, a construction program at this time is not recommended. The need of the Government for additional Federal buildings is extremely acute and a site acquisition and planning program of the nature contemplated should be undertaken as soon as possible. It is well recognized that the preliminary work incident to the construction of public buildings consumes much time. Before any planning can be done, the site must be selected and acquired. Thereafter plans, drawings, and specifications must be prepared. As a considerable period of time may elapse after the site has been acquired before the title has been approved by the Attorney General, this section was amended to permit initiation of plans and specifications prior to approval of title to the site. This section also requires submission to Congress of a report listing all eligible projects and their limits of cost when in excess of $200,000. When the estimate of cost of a project does not exceed $200,000, the limit of cost is to be determined by the Commissioner of Public Buildings. Selection of projects is to be made by the Federal Works Administrator and the Postmaster General from such report. They may also select such other projects not included in the report which in their judgment are economically sound and advantageous to the public service. Projects are to be distributed equitably, but not necessarily uniformly throughout the country with due regard to the comparative urgency of projects in various sections of the country.

Section 102 authorizes the appropriation of $40,000,000 to implement section 101.

TITLE II

Section 201 authorizes the Federal Works Administrator to acquire squares 11, 19, 20, and 32 in the District of Columbia as a part of the site for a new building or buildings. For years these squares along

the river north of Lincoln Memorial, together with land contiguous thereto, have been under consideration for this purpose. Acquisition of other squares in this area has been previously authorized. At present the area is relatively unimproved. For some time it has been mentioned as possible sites for apartments, hotels, and other commercial types of real-estate development. It is the opinion of the committee that the area should be acquired by the Government before it is further developed.

Section 202 permits the exchange without reimbursement of certain lands between the Department of the Navy and the Federal Works Agency. As a part of the national defense program, the Federal Works Administrator issued a permit to the Department of the Navy covering the use of the existing quarantine station in the city of San Diego, Calif., as a fuel depot. During the period of hostilities most of the old quarantine station buildings were dismantled and new permanent facilities installed by the Navy. As the Public Health Service requires a new station to carry on full quarantine activities in the area, a project has been developed for consideration under future building programs predicated upon acquisition by exchange of a new site. The Department of the Navy has agreed to the exchange of Navy property which is most adaptable and most economical for the new station and acceptable to the Public Buildings Administration and the Public Health Service.

Section 203 involves the exchange of lands between the Department of the Army and the Federal Works Administrator without reimbursement to provide a site for a new quarantine station in Honolulu. Following the Pearl Harbor disaster, the Army took over the Sand Island Quarantine Station at Honolulu and subsequently constructed extensive improvements thereon. The Department of the Army now contemplates continued use of the island for military purposes and has offered to make available a portion of Fort Armstrong on the mainland in exchange for the Sand Island site. The new site has been found by the Public Buildings Administration and the Public Health Service to be the most logical location for a new quarantine station.

Section 204 authorizes the Federal Works Administrator to transfer to the jurisdiction and control of the Public Buildings Administration without reimbursement certain buildings acquired by him under the Lanham Act, which in his determination are suitable for use by that Administration in performing its functions. Some of these buildings are now in the custody of the Public Buildings Administration under temporary permits issued by the Federal Works Administrator, but he is not permitted under existing law to make final disposition of the sites and buildings by formal transfer, since that law requires that they must ultimately be disposed of outside the Government. The sites and buildings together with furniture and equipment located therein which would be transferred pursuant to this section would in most instances bring less return to the Government if sold than it would cost to provide similar sites and buildings by purchase or construction. In general, they will be of use only to governmental bodies such as states and political subdivisions thereof. By permanent transfer of these sites and buildings to the Public Building Administration a substantial saving in public money can be effected.