Federal Property Management Regulations. The Federal
Property Management Regulations (FPMR) are issued by the Administrator of General Services
under authority of the Federal Property and Administrative Services Act of 1949, 63 Stat. 377, as
amended, and other laws and authorities. Selected Parts and Subparts of the FPMR pertain to the
acquisition, utilization and disposal of real property, and therefore effect the Departmental
quarters program. The FPMR has been codified at 41 CFR 101. Copies may be obtained from
the Superintendent of Documents, Government Printing Office, Washington, D.C. 20402.
- A. 41 CFR 101-3, Annual Real Property Inventories, establishes the
policies and
- procedures for annual reports of real property (including quarters) owned
or leased by the United States.
- B. 41 CFR 101-18, Acquisition of Real Property, sets forth the policy and
procedures
- for acquiring real property (including Government-furnished quarters) by lease,
purchase or condemnation; it provides guidance on obtaining delegations of leasing authority
from
the General Services Administration (GSA), and it imposes limitations on the use of delegated
authority.
- C. 41 CFR 101-19, Construction and Alteration of Public Buildings. 41 CFR
- 101-19.003-6(a) excludes housing and residential projects from the "public building"
definition. This is important as FPMR provisions relating to conduct while on Federal property
(41 CFR 101-20.3) do not apply to quarters. Instead, bureaus are guided by this handbook, and
bureau regulations pertaining to restrictions associated with occupancy of GFQ.
- D. 41 CFR 101-47, Utilization and Disposal of Real Property. This Part
establishes
- the requirement for annual surveys of real property; and the procedures and
forms
for reporting unused, or underused, real and related personal property to GSA for disposal. This
Part also establishes the responsibilities of the holding agency during the disposal process; the
rules pertaining to transfers of real property among Federal agencies; and the process for granting
rights for non-Federal interim use of excess and surplus real property. 41 CFR 101-47.203-6
provides that prefabricated movable structures (Butler-type structures, quonset huts and house
trailers, with or without undercarriages) and related personal property, may be disposed of as
personal property.
2.5 Authority. 5 U.S.C 5911(f) delegates to the head of each
agency the authority to prescribe and issue regulations pertaining to management of quarters and
facilities, consistent with controlling legislation and executive regulations (OMB Circulars,
FPMR, etc). The Secretary of the Interior has in turn delegated authority to each program
Assistant Secretary to carry out quarters management activities. Some of these may be
redelegated in accordance with 205 DM 10.1 (see Appendix 7). To ensure that proper
management control is exercised, certain authorities may not be redelegated below the level of
bureau head or regional director (see 205 DM 10.1B and C in Appendix 7).
2.6 Interior Property Management Regulations (IPMR).
- A. 114-3, Annual Real Property Inventories. This Part establishes the
Departmental
- guidelines pertaining to preparation and submission of annual reports of real
property, including quarters.
- B. 114-47, Utilization and Disposal of Real Property. This Part contains the
- Departmental rules and procedures pertaining to annual surveys of real property and to the
identification, utilization, transfer and disposal of unneeded and underutilized real property. This
Part also establishes the guidelines for interim use by other Interior bureaus or other Federal
agencies, and for interim leasing to non-Federal entities of unutilized, underutilized, excess and
surplus real property.
- C. 114-51, Government Furnished Quarters. This Part establishes that the
- Department of the Interior quarters management regulations are prescribed in 400 DM,
Departmental Quarters Handbook. A copy of this Part appears as Appendix
- D. 410 Addition to IPMR, Personal Property Management Regulations
(114-60).
- This regulation establishes the responsibilities of "cognizant employees", and
the guidelines to be followed incident to loss or damage to personal property. The provisions of
114-60.8 will be followed whenever Government quarters, furnishings and appliances have been
damaged, destroyed or lost.
- E. Temporary Regulations. Temporary regulations are issued when time is
limited,
- and the regulation is not of a permanent nature, or is subject to frequent revision.
Each temporary regulation not subject to frequent change shall have an established expiration
date
or be scheduled for conversion to a permanent regulation.
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Table of Contents
CHAPTER 3 -- DEFINITIONS
3.1 This chapter provides the following definitions to those terms which are common to
quarters management. These definitions will apply to, and will be used when, interpreting and
implementing the Department's quarters management program.
- A. Appliances. Household devices operated by electricity or fossil fuel.
Appliances include
- refrigerators, ranges, wood stoves, fireplace inserts, washers, dryers,
televisions, radios, window air conditioners, irons, etc.
- B. Bunkhouse/Dormitory. A structure classified as a dormitory or bunkhouse
shall
- have at least one of the following.
- (1) Multiple bathroom fixtures such as several sinks, showers and toilets in one
bathroom.
- (2) Multiple kitchen fixtures, such as several ranges, refrigerators and sinks, or a lack
of
- kitchen facilities.
- (3) A large common bedroom area with numerous beds, bunkbeds and/or lockers.
- C. Comparable Housing. Housing in the private sector which is generally
equivalent in
- size to the rental quarters, with the same number of bedrooms, and with
generally equivalent related facilities. Such housing is available on a landlord-tenant basis, with
rental rates reflecting the fair market value of the accommodations. This is distinguished from
housing rented on an employer-employee basis or between friends and relations, for which other
considerations may have influenced the rental rates. In addition, such housing as other
Government furnished housing (Federal, state or local) and housing provided by Indian tribes,
churches or religious societies are excluded from this definition of comparable housing.
- D. Equipment. Powered and nonpowered tools and devices used in and
around households,
- including lawn mowers, saws, base radio stations, battery chargers and
watering or fertilizing devices.
- E. Established Community. Ordinarily the nearest population center
(Metropolitan
- Statistical Area or an incorporated or unincorporated city or town) having a
year-around population of 1,500 or more (5,000 or more in Alaska), provided that it has
minimum
essential medical facilities (i.e. at least one physician and one dentist) available to all occupants
of
Government quarters on a non-emergency basis, and a private rental market with housing
available to the general public. Population determinations will be based upon the most recently
published decennial census of the United States. Established communities are the locations in
which rental and related facilities cost data are gathered for use in surveys and appraisals for
establishing rental charges for GFQ.
- F. Excess Quarters . Excess quarters are those which have been reported to
GSA on
- Standard Forms 118 and/or 118a by the holding bureau as being excess to the needs
of the Department. While excess quarters may be the responsibility of the holding (reporting)
bureau, they shall be considered as being under GSA control. For the purposes of this chapter
the
term "excess quarters" also includes quarters which have been categorized by GSA as surplus
property.
- G. Furnishings. Furnishings include furniture, appliances, equipment and
other
household
- effects necessary to provide a reasonable degree of livability in personnel
quarters.
Furnishings do not include installed fixtures or equipment which is permanently affixed to and
part
of the quarters (i.e. central air conditioner, furnace, installed cupboards or cabinets).
- H. Furniture. Major household goods articles (excluding appliances,
equipment and other
- household effects), which are typically freestanding and movable.
Furniture includes tables, chairs, sofas, lamps, mattresses (but not bedding), bed frames, chests,
dressers, etc.
- I. Government Furnished Quarters. Housing units owned or leased by the
Government
- for which the Government serves as landlord. The terms Government quarters,
quarters, rental quarters and GFQ have the same meaning as Government furnished quarters.
The
word "furnished" in the term Government furnished quarters means provided by the Government,
and is not intended to imply that the Government has provided furniture, appliances, equipment
or
other household effects.
- J. Housekeeping Quarters. Quarters which include a kitchen as an integral
part
of
- each unit.
- K. Mobile Home. A moveable living unit in excess of 8 feet wide (and 256
square feet),
- regardless of length.
- L. Monthly Base Rental Rate (MBRR). The Monthly Base Rental Rate
(MBRR) is the
- rental value of a GFQ equipped with a refrigerator, range and floor and
window coverings. Where applicable, the MBRR reflects exclusions of excess (closed off) and
Official Use space. The MBRR is determined by a survey or appraisal analysis of market rental
comparables, as described in Chapter 10 of this DQH. The MBRR does not include charges for
related services, or administrative deductions.
- M. National Quarters Officer. The National Quarters Officer is the chief
bureau official
- responsible for managing that bureau's quarters program. National Quarters
Officer and National Housing Officer are interchangeable terms. Bureaus which utilize quarters
shall assign one individual with responsibility for implementing this handbook and for program
coordination. As provided in Paragraph 17.3H, this position may be funded from rental income.
- N. Nonexcess Quarters. Nonexcess quarters are those which are not presently
required
- by the holding bureau for the provision of service or protection of property, but for
which there is a known or probable future need for provision of service or protection of property.
Nonexcess quarters will not have been reported to the General Services Administration (GSA) as
excess real property, and remain in the possession and control of the holding bureau.
- O. Non-Housekeeping Quarters. Quarters without kitchens, or with shared
kitchens,
- including dormitories, barracks, bunkhouses, transient quarters and tents.
- P. Non-Federal Tenant. Any person, other than an employee of the holding
bureau,
- whose occupancy is not directly related to the performance of a contract, or other
formal agreement between the managing bureau and another Federal agency, a state agency, or a
contractor providing services or supplies to the managing bureau.
- Q. Obsolete Quarters. Quarters which have been classified as "obsolete" on
the
- Government Quarters Inventory (Form DI 1875). These are quarters which are unsuitable
for
occupancy because they are not decent, safe and/or sanitary. Whenever occupancy of obsolete
quarters is considered essential, the provisions of paragraph 7.3A of this DQH shall be followed.
- R. Other Household Effects. Uninstalled minor household goods articles
(excluding
- furniture, appliances, equipment, and floor and window covering), necessary for the
operation of a household. These include cooking and eating utensils, bedding material, linen,
wall
hangings, personal articles and bric-a-brac.
- S. Permit. A permit is a document granting a temporary right of occupancy
(one year or less)
- of vacant quarters to a Federal tenant. A permit is revocable at
will by the permitting bureau, and does not transfer an interest in the property. The permit,
which
should be used by bureaus to allow temporary occupancy of vacant nonexcess quarters
by other Interior bureaus or other Federal agencies, is shown in Appendix 10. When permitting
excess quarters to Federal tenants, GSA may prescribe the use of a permit which differs
in format from the permit shown in Appendix 10.
- T. Quarters Management and Information System (QMIS) Program
Manager.
- The QMIS Program Manager heads the QMIS Program Office.
- U. QMIS Program Office. The QMIS Program Office is responsible for
administering the
- interagency Regional Rental Survey program. This office conducts
regional rental surveys; prepares regional survey reports, annual rental adjustment instructions,
and special analyses; conducts quarters training; and maintains the interagency quarters data
base.
The QMIS Program Office mailing address is: QMIS Program Office (Code D-2910),
Administrative Service Center, 7301 West Mansfield Avenue, Denver, CO 80235-2230.
- V. Quarters Program Manager. The Quarters Program Manager is responsible
for
- administering the Department's Quarters Management Program; overseeing the
activities
of the QMIS Program Office; preparing Departmental quarters regulations and policies; and
representing the Department in all intradepartmental and interagency quarters management
activities.
- W. Reasonable Value. Reasonable value is the net rental charge (Netrent)
which results
- after adding charges for related facilities, and after administratively adjusting
the Monthly Base Rental Rate, or the Consumer Price Index Adjusted Monthly Base Rental Rate
(CPI-MBRR). The authorized administrative adjustments are intended to account for many of
the
differences in conditions between the established communities from which rental data is
gathered,
and the sites at which Government furnished quarters are located.
- X. Related Facilities. Related facilities include all services, utilities, furniture,
appliances,
- equipment, supplies and other household effects which the Government may
provide in connection with the occupancy of GFQ.
- Y. Revocable License. A revocable license grants a temporary right of
occupancy (one
- year or less) of vacant quarters to a non-Federal tenant. A
revocable license is revocable at will by the licensing bureau, and does not transfer an interest in
the property. The revocable license, which should be used by bureaus to allow temporary
occupancy of vacant nonexcess quarters by non-Federal tenants, is shown in Appendix
11. When licensing excess quarters to non-Federal tenants, GSA may prescribe the use
of a revocable license which differs in format from the license shown in Appendix 11.
- Z. Same General Area. The same general area, or general area, means the
areas
in or
- adjacent to the established communities nearest a Government installation.
- AA. Seasonal Quarters. Quarters are considered seasonal when the planned
period
- of occupancy is limited -normally six months or less.
- BB. Tent, Tenthouse or Tin Top. A tenthouse has paved or frame floors and
sidewalls
- with a tent over it. Tin tops are tenthouses with the tenting replaced with tin roofs.
Tents are typically supported fabric structures without paved or framed floors. This housing
class
has few conveniences, is for seasonal use only, and has a shared community bath. Rental and
related charges will not be assessed for this type of housing.
- CC. Travel Trailers. Travel trailers are movable living units, not in excess of
8
feet wide (or
- 256 square feet), regardless of length.
- DD. United States. United States means the 50 States, the District of
Columbia,
- Puerto Rico, the Virgin Islands and the territories and possessions of the United
States.
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Table of Contents
CHAPTER 4 -- ESTABLISHMENT AND DISPOSAL OF
QUARTERS
4.1 Policy. The cost to the Government of acquiring,
constructing, operating, maintaining, managing and disposing of GFQ typically far exceeds the
value of rental receipts collected over the useful life of the GFQ. For this reason, new or
replacement GFQ shall not be provided unless it has been determined by the appropriate program
Assistant Secretary (or by the head of the bureau or regional/area director if the authority has
been redelegated pursuant to 205 DM 10.1C) that the GFQ are essential to the accomplishment
of
a bureau's mission, and are energy efficient. The need to construct or acquire additional GFQ
(including replacement units), or to retain previously constructed or acquired GFQ, is limited to
circumstances where it is determined that the employees must live at the station to provide
necessary service or protection, or that adequate housing is not available in the area.
4.2 Justification for Additional or Replacement Quarters. OMB
Circulars A-11 and A-45 establish the policies, justifications, requirements and restrictions
associated with the construction of GFQ. Although these Circulars do not address other means
of
establishing GFQ (such as leasing or purchasing GFQ; obtaining excess quarters from GSA; or
obtaining quarters by permit from other bureaus or Federal agencies), the provisions of these
Circulars will be applied, as prescribed below, regardless of the method contemplated for
establishing new or replacement GFQ.
- A. Housing Requirements Analysis. A Housing Requirements Analysis (HRA)
will
be
- conducted to ascertain the need for each proposed additional or replacement GFQ.
Where two or more additional or replacement GFQ are contemplated at a specific housing site
within an installation, the HRA may include all of the GFQ at such site. Although no specific
form or format is prescribed, the HRA should contain, as a minimum, the following information.
- (1) The number of employees, by position, title, series and grade for whom
the housing
- would be provided.
- (2) The duties and services to be performed by each employee for whom
housing is
- proposed. The HRA should positively establish that only through the
performance
of these duties can necessary service or protection of property be provided.
- (3) A conclusive demonstration that necessary service and protection of
property can
- only be rendered if the individuals with the specified duties are housed at the
designated housing site. This determination is typically made on the basis that key employees
will
be needed on 24-hour call (service and protection of property are 24-hour per day
responsibilities). In these circumstances, the HRA should specify how these functions will be
performed during the temporary absence (annual leave, temporary duty, shopping trips, etc.) of
persons in positions for which the housing is intended.
- (4) A statement that housing is not available, currently or prospectively, at
the designated
- housing site. If housing (Government or private) is present at the housing
site, the HRA should explain why available housing cannot be used to meet the requirement. If
other personnel are presently housed at the designated site, the HRA should explain why those
individuals are unable to provide the necessary services or property protection, or alternatively,
why they cannot vacate the housing to provide the housing to the individuals for whom the
proposed housing is intended.
- (5) A description of Government and private housing (if any) available
within 30 road
- miles of the designated housing site; and a supported finding that the
available
supply (present and prospective) will not meet the necessary housing requirements. The HRA
will consider private housing available for sale and for rent; except that in situations where it is
the
practice of the bureau to rotate the designated personnel between intervals of three years or less,
only rental housing need be considered available. In such situations, the HRA should establish
that the personnel rotation system is reasonable and contributes to the effective prosecution of its
program. Insufficiency or inadequacy of the housing supply shall be demonstrated in the HRA
by
a showing that one or more of the following conditions exist and are likely to be of extended
duration.
- (a) Housing cannot be located through realtors or advertisement.
- (b) Available housing is substandard by reasons of design,
construction or location.
- (c) Available housing, because of size, is considerably more costly
than employees can afford.
- (d) Employees subject to rotation cannot obtain leases permitting
them to vacate on 30 days notice, at prevailing rental rates.
- (6) Following guidelines prescribed in OMB Circular A-45, the HRA
should determine
- the number and sizes of the families to be housed; the numbers and types
of
dwellings to be established (houses, apartments, mobile homes, etc.); the design standards,
configuration, size and number of rooms of each proposed GFQ; and relationship between the
prospective rental charge and the employee's ability to pay.
- (7) Because of the high cost of operation and maintenance, and the
relatively low
- rental revenue associated with mobile homes, mobile homes shall not be used
to meet new or replacement quarters requirements, unless there is no reasonable or economic
alternative. The proposed use of mobile homes shall be fully supported and justified in the HRA.
- (8) The name, organization, address and telephone number of each person
contacted
- during the conduct of the HRA.
- (9) The signature, and typewritten name and title of the person preparing
the HRA,
- and the date the HRA was prepared.
- B. A Justification for New or Replacement Quarters, Form DI 1871, (see
Appendix 12)
- should be prepared and submitted to the bureau's approving official. The
appropriate HRA(s), along with any additional supporting justification, should accompany the
Form DI 1871 through the review and approval cycle. Following approval, of additional or
replacement quarters by the program Assistant Secretary or bureau head, a copy of the approved
Form DI 1871, the HRA, and other supporting documentation should be provided to the
Departmental Quarters Program Manager. Copies of approved requests should be retained by
bureau national, regional and installation quarters offices.
4.3 Establishment of New or Replacement Quarters. Following
the justification of new or replacement housing, bureaus shall comply with the procedures below
when establishing the required housing.
- A. In accordance with IPMR 114-47.201-2(b), and to the extent compatible
with
program
- requirements, bureaus shall fulfill the need for new or replacement quarters, first,
by
utilizing quarters that may be offered by other Interior bureaus, and second, by utilizing quarters
reported as excess by other Federal agencies to GSA. When requesting space from GSA,
bureaus
shall utilize Standard Form 81, Request for Space.
- B. If quarters are not available under paragraph 4.3A above, bureaus may
establish quarters
- by one of the following methods.
- (1) Construction. Construction of quarters may be undertaken at
a given location only when
- specifically authorized through the normal budgetary process.
- (2) Leasing. Leased quarters may be provided if funds are
available for this purpose.
- However, it must be kept in mind that where housing is available
for lease on the private market, it would be almost impossible to find that circumstances
warranted the provision of leased housing, except to satisfy a short-term need. Under FPMR
101-18.1, the leasing function shall be performed by GSA, unless a bureau has leasing authority,
or unless GSA has delegated the leasing function to a bureau.
- (3) Purchase. Bureaus may acquire quarters through purchase if
funds are available for this
- purpose. GSA shall perform the transaction, unless the bureau
has the authority, or unless GSA has delegated the authority to the bureau.
4.4 Retention of Quarters. In compliance with the spirit of 5
U.S.C. 5911, OMB Circulars A-11 and A-45, and IPMR 114-47.201-1, it is Departmental
policy to promptly dispose of any GFQ not essential to accomplishment of a bureau's mission.
Housing should not be retained for use as GFQ merely because it is available. Unneeded
housing
acquired in conjunction with land acquisition programs is particularly susceptible to unjustified
retention. Unneeded housing may also result from a growth in the housing supply in a nearby
community; changes in bureau program objectives with attendant reductions in total staff or
required occupants; or improved commuting conditions. Bureaus shall take the following
measures to minimize retention of unneeded housing.
A. Bureaus should avoid the acquisition of land containing residential housing
except where the land is required for program purposes.
B. As directed by FPMR 101-47.201-2 and IPMR 114-47.201-2, each bureau
having jurisdiction over real property shall survey all of its real property, including GFQ, at
least once each year to determine which holdings, or portions thereof, are no longer needed in
Interior programs.
C. In accordance with IPMR 114-47.802-50, quarters may be retained by a
bureau only if one of the following conditions is met.
(1) Quarters Currently Utilized. In this situation, the quarters are
currently being used for the provision of service or the protection of property, and should be
retained until no longer needed for the provision of service or protection of property.
(2) Nonexcess Quarters. In this situation, the quarters are not
currently required for the provision of service or the protection of property (even though
they may be occupied by employees who are not required occupants, or by other authorized
individuals). However, there is a definite or probable future need for the quarters for the
provision of service or protection of property. The known or future need for such quarters shall
be documented, and the quarters may be retained. However, if after one year, the quarters are not
utilized by the holding bureau for the provision of service or protection of property, they shall be
disposed of or rejustified. Rejustification (following the procedures in paragraph 4.2, DQH)
shall
be accomplished annually during periods when such quarters are not being utilized for provision
of service or protection of property. The justification to retain such quarters shall be approved by
the bureau National Quarters Officer.
4.5 Disposal of Quarters.
- A. Disposal Criteria. Quarters in the following situations, as described in IPMR
- 114-47.802-50, shall be regarded as unneeded, and shall be promptly disposed of by the
holding bureau.
- (1) Quarters not currently utilized for the provision of service or
protection of property,
- and for which there is no foreseeable future need for provision of
service or protection of property.
- (2) Nonexcess quarters described in paragraph 4.4C(2), DQH, that have
not been
- justified and approved for retention.
- (3) Quarters used by another Interior bureau or Federal agency under a
permit, but
- which have not been justified as having a definite or probable future need for
provision of service or protection of property. Such quarters shall not be retained by the holding
bureau solely on the basis that they are occupied by rent-paying tenants. Instead, the quarters
shall be conveyed to the permittee bureau or agency by formal transfer of accountability, or
disposed of otherwise.
- (4) Quarters leased to non-Federal tenants, but which have not been
justified as
- having a definite or possible future use for provision of service or protection of
property. Such quarters shall not be retained solely on the basis that they are occupied by
rent-paying tenants.
- (5) Quarters presently used for the provision of service or protection of
property, but
- which are located within ten (10) one-way road miles of an established
community shall be disposed of unless rejustified following the provisions of paragraph 4.2 of
this
handbook. Thereafter, such quarters shall be rejustified every two years, or until disposed of.
- B. Disposal Procedures. Bureaus shall promptly dispose of unneeded and
obsolete GFQ,
- following procedures in FPMR 101-47, IPMR 114-47, and bureau
regulations. Copies of documentation incident to the circularization and excess processes shall
be
provided to the holding bureau's headquarters and appropriate regional offices. The installation
name and the quarters number shall be entered on all disposal documents.
- (1) When it is determined by the holding bureau that quarters are no
longer needed
- by the holding bureau for the provision of service or protection of property,
the availability of the quarters shall be circularized and offered to other DOI bureaus and offices
(see IPMR 114-47.203-1(c)). Transfers of available quarters to other Interior bureaus shall be
made without an exchange of funds except as provided in IPMR 114-47.203-1(e). If the
circularization process does not result in a transfer of quarters to another Interior bureau, the
holding bureau shall determine that the quarters are excess to the needs of the Department of the
Interior, and shall report the quarters as excess property to GSA on Standard Form 118, Report
of Excess Real Property, and accompanying Standard Forms 118a, 118b and 118c (see FPMR
101-47.202-2).
- (2) In accordance with FPMR 101-47.203-6, prefabricated movable
structures, such
- as Butler-type structures, quonset huts, mobile homes (with or without
undercarriages), travel trailers and houseboats may be disposed of as personal property.
- (3) Bureaus with specific statutory authority to dispose of quarters using
procedures
- different from those described above, may dispose of quarters in accordance with
special authorities. An example of special disposal authority is 25 U.S.C. 443 (a), under which
the Bureau of Indian Affairs may convey certain buildings to Indian tribes.
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Table of Contents
CHAPTER 5 -- USE OF QUARTERS BY NON-BUREAU
TENANTS
5.1 Scope. The provisions in this Chapter apply to the interim
use
of quarters by
other Interior bureaus, by other Federal agencies, and by non-Federal tenants, during periods of
temporary non-utilization, and pending disposal by GSA. These provisions are not applicable in
situations where quarters are made available to a non-Federal entity incident to the lease of an
installation, such as when quarters are included in the lease of a fish hatchery (and associated
property) to a state on a long term basis. Tents and quarters that are in obsolete condition shall
not be made available to non-bureau occupants.
5.2 Interim Use of Nonexcess and Excess Quarters by Other Interior
Bureaus or Federal
Agencies. Subject to the following provisions, bureaus may allow temporary occupancy of
vacant, nonexcess and excess quarters by other Interior bureaus or Federal agencies.
- A. Permits to other Interior Bureaus or Federal Agencies. Nonexcess
quarters (as
- described in IPMR 114-47.5104(a) and paragraph 3.1N, DQH) and excess or
surplus quarters reported to GSA may be made available for interim use under permits to other
Interior bureaus or Federal agencies (see IPMR 114-47.51).
- B. Approval.
- (1) Nonexcess Quarters. All permits shall be approved and
signed at the regional
- office level. GSA approval is not required when permitting nonexcess
quarters to another DOI bureau (see FPMR 101-47.203-1). However, GSA approval must be
obtained prior to permitting GFQ to a non-DOI Federal agency, unless the holding bureau has
specific authority to permit real property to another Federal agency (FPMR 101-47.802(a)(3)(i)).
- (2) Excess Quarters. All requests to permit excess quarters must
be approved at
- the regional office level. Since excess quarters are under GSA control, GSA
approval must be obtained prior to execution of the permit (see FPMR 101-47.203-8(b)).
- C. Documentation.
- (1) Nonexcess Quarters.
- (a) Permits to Other Interior Bureaus. The minimum
documentation requirements
- include evidence of a probable or known future need for the
GFQ by the holding bureau (see paragraph 4.4C(2), DQH); the regional office approval to permit
the GFQ; and a signed copy of the permit (see Appendix 10). If, at the end of the permit period,
another permit is established, documentation for the current and all previous permits should be
retained. Documentation shall be maintained at the regional office and installation, with a copy
provided to the bureau headquarters office.
- (b) Permits to Other Federal Agencies. Where bureaus
have specific authority
- to permit GFQ to another Federal agency, the documentation
requirements are the same as those in paragraph 5.2C(1)(a), above. Where bureaus do not have
specific authority to permit GFQ to another Federal agency, the documentation will include the
necessary GSA approval, in addition to the requirements in paragraph 5.2C(1)(a), above.
Documentation shall be maintained by bureaus at the installation, regional and national levels.
- (2) Excess Quarters. The minimum documentation requirements
include the regional
- office approval to permit the GFQ; GSA's approval to permit the GFQ;
a
copy of the signed permit (either the GSA-prescribed permit, or the permit illustrated in
Appendix
10); and other documentation which GSA may require. Documentation for permitted excess
quarters shall not be provided to the Departmental Quarters Manager.
- D. Reimbursement. Pursuant to FPMR 101-47.203-8(b), the permittee
bureau or
- Federal agency shall reimburse the permitting (holding) bureau for the full rental
value of each quarters unit. The full rental value of quarters permitted to another bureau or
agency is determined by applying the provisions of OMB Circular A-45. Thus, the rent shall
consist of the Consumer Price Index-adjusted Monthly Base Rental Rate (CPI-MBRR), plus
charges for Government furnished related facilities, minus applicable administrative adjustments.
The permittee bureau or agency shall be responsible for rental collections from quarters
occupants.
5.3 Interim Use of Nonexcess and Excess Quarters by Non-Federal
Tenants.
Subject to
the conditions and limitations in this paragraph, bureaus may allow temporary
occupancy of vacant, nonexcess and excess quarters by non-Federal tenants. Bureaus shall first
determine that no other bureau or Federal agency has an interim need for the quarters. When
quarters are leased to non-Federal tenants (general public), a revocable license (not a permit)
shall
be the instrument granting temporary occupancy. Quarters may be licensed and leased to
non-Federal tenants only during interim periods pending future use by the holding bureau, or
pending disposal by GSA. Interim use of quarters by non-Federal tenants shall be subject to the
following provisions.
- A. Non-Federal Tenants. Non-Federal tenants include members of the
general public
- and any person not a Department of the Interior employee, whose occupancy
is not directly related to performance of a contract, memorandum of understanding, or other
formal agreement between the bureau or office managing the quarters and another cooperating
Federal or state agency or with a contractor providing services or supplies to the managing
bureau or office. A former employee (or the family of a deceased employee), who continues to
occupy quarters for a period of up to 60 days following the separation or the death of the
employee is not a non-Federal tenant, and shall pay rental charges established pursuant to OMB
Circular A-45. A former employee (or the family of a deceased employee), who continues to
occupy quarters for a period of more than 60 days, shall not be regarded as a non-Federal tenant,
if the continued occupancy is related to extenuating circumstances (sickness or death), and if the
continued occupancy is approved at the regional office level. In the absence of extenuating
circumstances, a former employee (or the family of a deceased employee), who continues to
occupy quarters beyond 60 days of the separation or death of the employee, shall be considered
to
be a non-Federal tenant, unless continued occupancy is directly related to performance of a
contract, memorandum of understanding, or other formal agreement with the bureau, another
cooperating Federal or state agency, or with a contractor providing services or supplies to the
managing bureau. Employees in the Military Reserve, who are called to active military duty
shall
not be regarded as non-Federal tenants. Where such employees, or their families, continue to
occupy GFQ, they shall continue to pay rental charges established pursuant to OMB Circular
A-45.
- B. Approval.
- (1) Nonexcess Quarters. Bureaus without specific authority to
license and lease
- property to non-Federal tenants shall first obtain written approval from the
program Assistant Secretary, and then from GSA (FPMR 101-47.802(a) (3)(i)). Bureaus with
authority to lease to non-Federal tenants must obtain approval from the program Assistant
Secretary (but not GSA) prior to renting nonexcess quarters to non-Federal tenants.
- (2) Excess Quarters. All requests to license and lease excess
quarters to non-Federal
- tenants, must be approved, first by the program Assistant Secretary,
and then by GSA. Bureaus do not need specific statutory authority for leasing to non-Federal
entities in these circumstances, since GSA approval constitutes authorization under the Federal
Property and Administrative Services Act of 1949 (FPMR 101-47.203-9).
- C. Documentation.
- (1) Revocable License. A copy of the revocable license to be
used for all leases of
- excess and nonexcess GFQ to non-Federal tenants is shown in
Appendix 11. Issuance of a revocable license is in addition to the other documentation
requirements set forth in paragraphs 5.3C(2) and (3), below. The "General Conditions"
appearing
in the license are prescribed by GSA, and will be updated as necessary. When GSA is involved
in
the licensing process, the actual license/format used may vary somewhat to comply with
additional GSA requirements. Other terms and conditions deemed essential by bureaus to protect
the Government's interests may be incorporated by adding the following paragraph E to the
"Terms and Conditions" portion of the license.
"E. The additional terms and conditions
appearing on Attachment "B" hereto,
are hereby incorporated and made a
part of this license."
- (2) Nonexcess Quarters. The minimum documentation
requirements include evidence
- of a probable or known future need for the GFQ by the
holding bureau (paragraph 4.4C(2), DQH); the written approval of the program Assistant
Secretary and (where necessary) GSA; a signed copy of the revocable license (Appendix 11);
Form DI 1879, Quarters Occupancy/ Vacation Inspection Form (Appendix 15); Form DI 1880,
Rent Computation Schedule (Appendix 16); Form DI 1882, Notice of Rental Adjustment
(Appendix 19); and Form DI 1881, Quarters Assignment Agreement (Appendix 14). The
revocable license shall be incorporated into the Quarters Assignment Agreement by adding the
following statement to the "Other Conditions" section of the Form DI 1881.
"The attached revocable license is made a part of this agreement."
- (3) Excess Quarters. The minimum documentation requirements
include the written
- approval of the program Assistant Secretary and GSA; a signed copy of
the revocable license (Appendix 11) issued by the bureau or by GSA; Form DI 1879, Quarters
Occupancy/ Vacation Inspection Form (Appendix 15); Form DI 1880, Rent Computation
Schedule (Appendix 16); Form DI 1882, Notice of Rental Adjustment (Appendix 19); and Form
DI 1881, Quarters Assignment Agreement (Appendix 14). The revocable license shall be
incorporated into the Quarters Assignment Agreement by adding the following statement to the
"Other Conditions" section of the Form DI 1881.
"The attached revocable license is made a
part of this agreement."
- (4) Retention and Distribution of Documents. Full documentation shall
be maintained
- at the installation and Regional Office; copies of the revocable license shall
be
provided to the bureau National Quarters Officer and the Departmental Quarters Program
Manager. If, at the end of the license period, another license is established, documentation for
the
current and all previous licenses should be retained.
- D. Rental Charges. When quarters are rented to non-Federal tenants, the
holding bureau
- is responsible for establishing and collecting the rental charges. Rental
charges to non-Federal tenants shall be established in accordance with OMB Circular A-25,
Revised. As contrasted with OMB Circular A-45, which prescribes the establishment of a
"reasonable value" rent, OMB Circular A-25 requires the establishment of a "fair market" rent,
when renting to non-Federal tenants. Fair market rental charges shall be established as follows.
- (1) Survey Method. Where regional surveys are used, the rent
shall consist of
- the CPI-MBRR plus charges for all Government furnished related facilities
(utilities, appliances, furnishings, services, etc.). The adjustments in paragraph 11.3 and Chapter
12 of this DQH are not allowed; however, bureaus may offset from the rent the amount of
possessory interest tax (if any) actually paid by non-Federal tenants. The base rental rate and
charges for related facilities shall be affirmed or adjusted annually as prescribed by OMB
Circular
A-45; however, incremental implementation of rental adjustments in excess of 25 percent (see
paragraph 14.7, DQH) is not authorized for non-Federal tenants.
- (2) Appraisals. Where appraisals are used, they shall be
conducted by appraisers who
- have been certified in accordance with Title XI of the
Financial
Institutions Reform, Recovery and Enforcement Act of 1989. Appraisals shall be fully
documented; and approved by a certified review appraiser. The appraisal shall establish the fair
market rental value, taking into consideration all relevant factors, including the imposition of
special terms and conditions required by the Government. The appraisal shall also establish the
market value (including all taxes, surcharges and delivery charges) of related facilities (utilities,
furnishings, appliances, services, etc.) provided by the Government. The adjustments in
paragraph 11.3 and Chapter 12 of this DQH are not allowed; however, bureaus may offset from
the rent the amount of possessory interest tax (if any) actually paid by non-Federal tenants. The
fair market value rental rate and charges for related facilities shall be affirmed or adjusted
annually
as prescribed by OMB Circular A-45; however, quarterly incremental implementation of rental
adjustments in excess of 25 percent (see paragraph 14.7, DQH) is not authorized for non-Federal
tenants.
- E. Deposits. It is customary in the private sector for landlords to require
advance rental
- payments and security/damage deposits. Inasmuch as OMB Circular A-25
requires that the charges for real property reflect the fair market value, and that they be in
accordance with commercial practices, bureaus are authorized to collect and hold, until vacation
of the quarters, an amount equal to two months' rental charges (including charges for related
facilities) as a condition of occupancy. These amounts are in addition to the tenant's monthly
rental payments. These funds, less amounts due the Government for unpaid rental charges and
for
damage to the GFQ and/or contents, shall be refunded following vacation of the quarters.
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Table of Contents
CHAPTER 6 -- GOVERNMENT PROVIDED
FURNISHINGS
6.1 Scope. This chapter sets forth the policies and criteria
governing
the provision of furnishings in GFQ.
6.2 Policy. Bureaus shall provide furnishings in GFQ in
accordance
with the following criteria.
- A. Restricted Furnishings. Unless otherwise authorized, bureaus shall
not provide:
- (1) Television sets, radios and other pleasurable, but unnecessary, items
(except Government
- provided radios, etc. required for official purposes).
- (2) Other household effects as defined in paragraph 3.1R, DQH.
- B. Living space in all quarters, except tents, shall be provided with finished floors.
Finished
- flooring may be carpeting, tile, sheet vinyl or linoleum, wood parquet or finished
boards, but not painted or unpainted plywood, particle board or cement.
- C. Window covering (curtains, shades, blinds, drapes, etc.) shall be provided for
each
- window in living areas.
- D. Appliances normally associated with rental housing (washer, dryer, refrigerator
and range)
- may be provided in GFQ. In making the determination as to what other
appliances are to be provided, bureaus shall consider such factors as remoteness of the quarters
site, geographical location and climatic conditions. Bureaus shall establish appropriate approval
levels.
- E. Government Quarters in the United States. GFQ located in the United
States
- generally shall be provided to employees unfurnished, except that:
- (1) Bureaus may provide furnishings in GFQ located in Alaska, Hawaii,
Puerto Rico and the
- Virgin Islands when determined to be advantageous to the Government.
- (2) Bureaus may provide furnishings in GFQ located in remote, highly
inaccessible areas
- where transportation difficulties and periods of duty are such that it is
more economical for the Government to provide furnishings. An example of this type of quarters
might be a ranger station, which is inaccessible to all or most motor transportation. However,
mere remoteness from populous areas is not enough to justify provision of furnishings. The
following costs shall be considered in evaluating relative economies and the total thereof
compared with the costs of packing, crating, transportation, and other costs of moving personally
owned furnishings, which would be incurred if Government furnishings were not supplied.
- (a) Cost of new furnishings.
- (b) Delivery costs of new furnishings.
- (c) Storage costs of furnishings not in use.
- (d) Cost of moving furnishings in and out of quarters.
- (e) Cost of repairing furnishings.
- (f) Cost of storing furnishings owned by occupants of furnished
quarters (including related transportation costs) when such storage at Government expense is
authorized by law.
- (g) Cost of administering a "furnishings" program.
- (3) Bureaus may provide furnishings in GFQ if necessary because the GFQ
occupant is
- required to accommodate or entertain visitors frequently as a part of his or her
official duties.
- (4) Bureaus may provide furnishings in GFQ that are normally occupied
on a shared or
- short-term basis. These include transient and seasonal quarters, tents and
dormitories.
- (5) Bureaus may provide furnishings in GFQ when only specially designed
or built-in
- furnishings can be used, as in mobile homes.
- F. Government Quarters Outside the United States. GFQ located outside
the United
- States should be provided with furnishings, except that unfurnished quarters, or
partly furnished quarters, may be provided at locations where:
- (1) Assigned personnel are expected to remain for four years or more.
- (2) It is determined after considering overall economy, equity and morale,
that an exception to
- the general rule of providing furnishings is clearly advantageous to the
Government.
- G. Reduction of Shipping Weight Allowance. When furnishings are
provided by the
- Government, bureaus shall restrict the weight allowances for transportation
of household goods and personal effects. When the shipping allowance is restricted, the
remaining household goods may be placed in storage at Government expense. In such cases, the
amount shipped plus the amount stored shall not be in excess of the amounts allowed in the
Federal Travel Regulations.
6.3 Selection of Furnishings. The following criteria shall be
considered in the acquisition of
furnishings to be provided in GFQ. The acquisition of
furniture or other household effects shall be as prescribed in FPMR 101-26.505.
- A. Furnishings shall be of good, durable, but not excessive quality, and within
price ranges
- suitable to the proposed quarters. They shall be of commercial types and
grades
which are compatible in quality and appearance with personally owned items. Furnishings shall
be
in sound condition, safe operating order, and free of major surface or internal defects. Where the
quality of Government provided furniture in a particular room is substantially lower than the
quality contemplated in this paragraph, that room shall not be considered as being furnished by
the
Government.
- B. Furnishings should be appropriate for the climate and for the quarters units to
be furnished.
- The general styling and materials should be consistent with those in common
use in the locality, insofar as practicable.
- C. Consideration should be given to interchangeability, simplicity, adaptability to
different
- room sizes and configurations, durability, ease of warehousing, maintenance, and
general acceptability to persons of different tastes.
6.4 Guidelines for Determining Furniture Requirements. The
tables below, set forth guidelines to be used in determining the amounts of furniture to be
provided in GFQ. Where the Government provides substantially less (50 percent or less)
furniture
than is indicated below for a particular room, that room shall not be considered as being
furnished
by the Government.
- A. Houses, Duplexes, Triplexes, Townhouses, Multi-Room Apartments and
Mobile Homes.
- (1) Living room/area:
| Sofa/couch (3-person capacity) | 1 |
| Armchairs (upholstered) | 2 |
| Coffee table | 1 |
| Occasional tables | 2 |
| Lamps (table or floor) | 2 |
- (2) Dining room/area:
| Dining table with one leaf | 1 |
| End chairs (arm chair) | 2 |
| Side chairs | 4 |
| Side board/buffet with china cabinet | 1 |
- (3) Master bedroom:
| Double bed | 1 |
| Mattress and box spring | 1 |
| Dresser with mirror | 1 |
| Chest of drawers | 1 |
| Night table | 1 |
| Table lamp | 1 |
- (4) Other bedroom:
| Twin bed or double bed | 1 |
| Mattress and box spring | 1 |
| Dresser | 1 |
| Night table | 1 |
| Table lamp | 1 |
- B. Efficiency Apartment, Travel Trailer, Transient Quarters.
| Sofa bed (3-person capacity) | 1 |
| End table | 1 |
| Coffee table | 1 |
| Small (or drop-leaf) table | 1 |
| Side chair (no arms) | 2 |
| Dresser | 1 |
| Table or floor lamp | 1 |
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Table of Contents
CHAPTER 7 -- MAINTENANCE OF
QUARTERS
7.1 Policy. It is the policy of the Department of the Interior that
all occupants of GFQ under the control of Interior bureaus shall be provided decent, safe,
sanitary
and energy efficient housing. Toward that end, the guidelines in this chapter shall be followed
by
each bureau responsible for GFQ.
7.2 Quarters Maintenance Responsibilities.
A. Government Responsibilities. Bureaus shall ensure that all
occupied
quarters are safe, decent, sanitary and energy efficient. All alterations and improvements to
quarters are the responsibility of, and shall be performed by the holding bureau. Unauthorized
alterations and improvements made by an occupant shall become the property of the
Government.
In meeting these responsibilities, bureaus shall be guided by the following requirements.
(1) Housing shall be maintained at a level at least equal to the code
requirements in the vicinity of the GFQ. Bureau maintenance and construction standards
may be used if the bureau standards equal or exceed the local code requirements.
(2) Meters. As required by OMB Circular A-45, meters
(electricity, heating fuel and water) shall be installed on all GFQ. In multi-unit dwellings,
such as duplexes, triplexes, townhouses, rowhouses or apartments, each living unit shall be
individually metered. Buildings used as dormitories, bunkhouses or transient quarters shall be
metered at the building level, but not at the living unit level. Tents need not be metered.
Bureaus
are responsible for ensuring that meters are installed, calibrated and in good operating condition.
Exceptions to these requirements must be fully justified by the bureau, and approved by PAM.
(3) Fire Protection Devices. Fire protection devices, as required
by the Fire Administration Authorization Act of 1992 (Public Law 102-522) shall be
installed
in all GFQ. The number and locations of these devices shall be as recommended by local fire
fighting or safety officials. Bureaus shall inspect these devices periodically, to ensure that they
are
in working condition.
(4) Quarters Maintenance Inspections. Each GFQ shall be
inspected by facility/maintenance personnel to ensure that the housing is decent, safe,
sanitary
and energy efficient; and to identify and correct maintenance deficiencies. Quarters shall be
inspected before initial occupancy, and thereafter annually, or with a change in tenant, whichever
occurs first. Quarters no longer required by a bureau for provision of service or protection of
property shall be inspected prior to making it available to another bureau, reporting it as excess
to
GSA, or issuing an interim use permit or revocable license. As the purpose of these inspections
is
to obtain information regarding the condition of the GFQ and associated maintenance needs,
bureaus should develop appropriate inspection checklists for use during these inspections.
(5) Inventory and Rental Changes. Following a quarters mainte-
nance inspection, or the completion of maintenance or alterations, it may be determined that
the description of the GFQ as it appears on the Government Quarters Inventory (Form DI 1875)
does not agree with the actual appearance, condition or configuration of the GFQ. In such cases,
the local housing manager shall revise the inventory to reflect the actual description of the
subject
GFQ. The bureau rent setting office shall be notified within 30 days of the inventory changes.
Where necessary, rental charges and charges for related facilities shall be recalculated to reflect
the new GFQ description. Revised rental charges will be effective 30 days following notification
of the occupant of the inventory and rental rate changes. Additional information concerning the
Government Quarters Inventory may be found in Chapter 16, DQH.
(6) Quarters renovation, and installation or replacement of appliances,
furnishings and fixtures are management actions and are not subject to prior tenant approval,
even if the actions result in rental increases. While every effort should be made to avoid
inconvenience to the tenants (i.e., scheduling maintenance, painting, carpet cleaning, etc., during
periods of vacancy), tenants should be advised prior to occupancy that this may not always be
possible.
(7) Relocation of Occupants. Bureaus shall make every effort to
accomplish maintenance or renovation during periods of vacancy. However, where it is
necessary to move employee occupants of GFQ to other GFQ or to private sector housing
(apartment or hotel), the bureau may pay the cost of moving and/or storing the occupants'
personal effects, as well as the cost of alternate private sector housing as administrative expenses
of operating the installation. Under these circumstances, the relocated occupants continue to
occupy GFQ and shall pay the rental charge applicable to the "new" housing unit. The holding
bureau shall not pay the expenses of relocating occupants who are employees of other bureaus or
Federal agencies, using the GFQ under permits issued by the holding bureau. Likewise, the
holding bureau shall not be liable for the expenses of relocating non-Federal entities occupying
the
GFQ under a revocable license.
B. Quarters Occupant Responsibilities. Occupants of GFQ have the
normal tenant responsibilities described below.
(1) GFQ occupants are responsible for minor maintenance of the quarters
and the grounds, such as yard upkeep, snow removal, and light bulb replacement.
Occupants
shall also perform such activities as cleaning garages, storage areas, porches, steps, walks,
windows, inside walls, woodwork, floors, furniture, fixtures, appliances and similar household
equipment.
(2) GFQ occupants shall conduct periodic checks of fire protection
devices (fire extinguishers, smoke detectors, etc.) to verify that they are in operating
condition; inadequate units shall be reported to the housing manager. Occupants are also
responsible for replacing batteries in smoke detectors, as necessary.
(3) GFQ occupants shall maintain the quarters in a clean and sanitary
condition, and shall pay for damage beyond normal wear and tear.
(4) GFQ occupants should, at least annually, verify that the Government
Quarters Inventory (Form DI 1875) accurately reflects the description, condition and
configuration of the quarters unit. Any discrepancies shall be reported to the installation housing
manager. Occupants have the normal tenant responsibility to report all GFQ deficiencies to the
housing manager as soon as such deficiencies are identified.
7.3 Maintenance Priorities. While unanticipated requirements
must be satisfied on a day-to-day basis, bureaus shall establish housing maintenance plans, in
which intermediate and long term maintenance needs are identified and programmed. Bureaus
shall incorporate the following priorities in their quarters maintenance plans.
- A. Priority #1 -Obsolete Quarters. The Department is committed to
furnishing decent,
- safe, sanitary and energy efficient quarters to its employees. Quarters,
which have been classified as "obsolete" on the Government Quarters Inventory (Form DI 1875),
are by definition not decent, safe or sanitary, and should not be used as housing. Where program
essential quarters are classified as being obsolete, the highest maintenance priority shall be given
to either repair, remodel or modernize the GFQ to meet local code requirements, or bureau
standards (if bureau standards are more stringent than applicable building codes). Alternatively,
obsolete GFQ should be replaced or disposed of in accordance with bureau program
requirements
and this DQH.
- (1) Whenever occupancy of obsolete quarters is considered essential,
approval by
- the appropriate program Assistant Secretary (or head of the bureau or
regional/area director where authority has been delegated), shall be obtained prior to occupancy.
- (2) Interim use of obsolete quarters will be dependent upon positive
evidence of
- action to eliminate the deficiencies, or to replace the obsolete units. Occupancy
of such units shall not continue beyond one year from the date of determination of obsolete
condition, unless the deficiencies are corrected.
- (3) Employees, contractors, grantees and essential cooperators occupying
obsolete quarters
- shall not pay rent for the use of such quarters; however, they shall be
required to pay for utilities, services and related facilities, which the Government may provide.
- (4) Decisions concerning repair, rehabilitation or replacement of obsolete
quarters are
- property and maintenance management decisions, and are not subject to tenant
approval, even where improvement or replacement results in rental rate increases.
- B. Priority #2 -Health and Safety Deficiencies. Quarters which have
health and
- safety deficiencies, even though not inventoried as being in obsolete condition
shall be accorded the second level of maintenance priority.
- C. Priority #3 -Energy Inefficient Quarters. The third level of
maintenance
- priority shall be given to quarters which are so energy inefficient that the
occupants are allowed an adjustment for excessive heating or cooling costs (see also paragraph
11.3, DQH).
- D. Priority #4 -Quarters in Poor Condition. This maintenance category
includes quarters
- classified on the Government Quarters Inventory (Form DI 1875) as being
in poor exterior and/or interior condition. Also included in this category are quarters which have
been inventoried as having minimal or no weatherproofing, even though the occupant may not be
eligible for an adjustment for excessive heating or cooling costs. The installation files for such
quarters shall contain adequate documentation fully supporting the inventory determination. If
the quarters are to be retained for three years or longer, a budget and maintenance schedule shall
be established to improve the level of insulation/weatherproofing to at least "adequate," and the
condition to at least "fair."
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Table of Contents
CHAPTER 8 -- ASSIGNMENT AND VACATION OF
QUARTERS
8.1 Assignment of Quarters.
- A. Assignment Policy. Each bureau having jurisdiction over GFQ
shall
develop and
- make known to its employees a quarters assignment policy with implementing
procedures appropriate to the number of quarters involved and the requirements of the bureau's
programs. The assignment policy should be in accord with the provisions of this Chapter 8. All
assignments of quarters shall be made without regard to race, color, creed or national origin.
- B. Required Occupants.
- (1) Authority and Delegation. 5 U.S.C. 5911(e) provides that an
agency may
- not require an employee to occupy quarters unless the agency head determines
that necessary service cannot be rendered, or that property of the Government cannot adequately
be protected, otherwise. Within the Department, the authority to make the determination that an
employee must occupy Government quarters has been delegated to heads of bureaus (205 DM
10) with authority to redelegate, but not below the level of regional director (see Appendix 7).
- (2) Policy and Procedure. The decision to require occupancy of
GFQ as a
- condition of employment is an agency determination -not an employee
determination -which should be based upon the requirements of the program. Required
occupancy may not be established solely to achieve a high GFQ occupancy rate, or as a means of
forcing efficient use of existing housing. It is the policy of the Department of the Interior that
employees shall not be required to occupy GFQ unless all of the following conditions are met.
- (a) Occupancy is required for the provision of necessary service, or
for the protection of life and property.
- (b) Occupancy is required as a condition of employment, and is
specified as a condition of employment in the job announcement, position description and the
SF-50.
- (c) Occupancy is required for the convenience of the employer -
not the employee. That is, the requirement for occupancy of GFQ shall be associated with the
need for and responsibilities of a particular position, rather than the personal preference of the
individual who happens to encumber the position at the moment. Thus, where there is an historic
pattern of alternating occupancy between "required" and "permissive," to accommodate the
desires of the employee, occupancy shall not be regarded as "required," since in such cases,
required occupancy is not for the convenience of the Government.
- (3) Examples of Types of Service and Protection Which May Require
Occupancy
- of GFQ
. Examples of circumstances under which occupancy of quarters
may be required for service or protection include the following.
- (a) Suitable private housing is unavailable within a reasonable
commuting distance. Where the nearest established community is over 30 miles distance, or if
less, forty-five or more minutes normal one-way commuting time by private automobile,
occupancy of GFQ may be required to ensure availability of employees to meet the service or
protection requirements. These "non-availability" determinations should be made on an "all
employee or none" basis. Thus, in "non-availability situations, where even one employee is
allowed to live in private housing (i.e., is not required to occupy GFQ), it would be inappropriate
to designate any GFQ occupant at that installation as a "required" occupant.
- (b) The immediate availability of specific trained individuals is
required to respond to emergencies, such as outbreak of fires, canal breaks, storm damage, etc.
- (c) The presence of a specifically designated work force is required
during the frequent periods in winter when roads to refuges, reservations, parks, installations and
construction projects are impassable.
- (d) Specifically designated and trained individuals are required to
provide protection, guidance, information and aid to large numbers of the general public visiting
Interior installations, and parks, particularly those arriving or remaining after business hours.
- (e) All incumbents of specifically designated positions, or all
occupants of specifically designated housing units are required to occupy GFQ in order to
convey
to potential malefactors (vandals, arsonists, poachers, thieves, out-of-season hunters, etc.) that
people are living on the premises around the clock and throughout the year.
- (f) All occupants of specifically designated housing units are
required to occupy GFQ because occupancy, in and of itself, will prevent or deter rapid
deterioration or will ensure the protection and maintenance of the quarters and premises.
- (g) The continual availability of all incumbents in specifically
designated positions or all occupants of specifically designated housing units are required to
render services at all hours to the direct beneficiaries of Interior programs, e.g., Indian families
on
reservations, irrigation farmers on reclamation projects, etc.
- (h) Additional Considerations. Other important elements
in determining whether an occupant shall be required to occupy GFQ are shown below.
- (i) The normal and emergency responsibilities documented
in the position description.
- (ii) Documented requirements to perform essential duties outside
normal working hours.
- (iii) Documented requirements to perform overtime or standby
duty on a frequent basis.
- (iv) Response time if alternatively housed in a nearby community
and the consequences of delayed response.
- (v) Where duties are limited to certain specific times of the
year, consideration should be given to staggering staff work hours.
- (4) Minimum Response Time. In lieu of requiring occupancy of
Government
- quarters, bureaus may establish minimum response times, within which
employees must be able to travel from their residences to the duty station when called to duty.
Employees under minimum response time requirements may be provided Government quarters,
or
they may obtain private housing; however, such employees, even if provided GFQ, shall not be
regarded as required occupants.
- (5) Requirement to Occupy Quarters. Each required occupant
shall occupy
- assigned GFQ as the primary residence. The employee does not satisfy the
terms of required occupancy solely by paying rent on the assigned housing.
- (6) Documentation. All determinations of required occupancy
shall be in
- writing. The delegations of authority in 205 DM 10 reserve to the appropriate
program Assistant Secretary, the head of the bureau or bureau regional/area directors, the
determination of whether an employee must occupy GFQ for the convenience of the Government
and as a condition of employment, in order to provide necessary service or to protect life or
property. These determinations will be based upon the justification and recommendations
submitted in writing on Form DI 1872, Certification of Required Occupancy, which appears in
Appendix 13. Since required occupants may attempt to use the Form DI 1872 as the basis for
reducing their Federal tax liabilities, misrepresentations on the Form DI 1872 could result in
penalties imposed by the Internal Revenue Service. Since required occupancy is a condition of
employment, the requirement to occupy GFQ shall also be included in the position description
and
job announcements for required occupancy positions; and on the SF-50. Each required occupant
shall be provided with a copy of the approved Form DI 1872, the SF-50 and the Position
Description. Copies of these documents should also be retained at the installation.
- (7) Encumbered Positions. Required occupancy should not be
established while
- a position is encumbered (filled), unless justified by a serious and
immediate
need, or unless the affected incumbent agrees voluntarily to such a designation. In such cases,
applicable changes shall be made in the incumbent's position description, and written notice must
be provided to the affected employee at least 30 days prior to the effective date of the required
occupancy.
- (8) Appeal of Required Occupancy Determination. Affected
employees shall
- be notified in writing of required occupancy determinations affecting them,
and informed of their right to appeal such actions through proper channels, in accordance with
paragraph 17.4, DQH. In considering employee appeals, the fullest consideration will be given
to
the personal desires of the employee, subject only to the paramount requirements of the
Government.
- C. Volunteers. Bureaus with authority to hire and employ volunteers,
may allow
- volunteers to occupy GFQ, without charge, under the following circumstances.
- (1) Occupancy is necessary for the provision of service and/or protection
of property;
- or because suitable private housing is not available within a reasonable
commuting distance.
- (2) It must be determined that the GFQ to be occupied by volunteers is not
needed at
- the time for housing required occupants or other station personnel.
- (3) The contribution of volunteers assigned to GFQ must be significant
enough to
- justify the provision for GFQ without charge.
- (4) Each volunteer must be covered by a volunteer service agreement, or
other
- contractual document, which legally enrolls an individual as a volunteer. This
agreement shall specify the full name and address of the volunteer, the commencement and
termination dates, and a brief description of the work to be performed. The agreement shall be
signed both by the volunteer and by an authorized bureau official.
- D. Assignment Priorities. In assigning quarters, the bureaus shall follow
the priorities
- in the order listed below.
- (1) Required Occupants. Individuals who have been designated
as required
- occupants in accordance with paragraph 8.1B, above, shall be accommodated
ahead of all other categories of occupant. However, required occupants do not have a right to
select a specific GFQ unit. Assignment of required and permissive occupants to specific GFQ
units will be done in the context of paragraph 8.1E, DQH.
- (2) Station Officials. Station officials, including contractors and
essential
- cooperators.
- (3) Volunteers. Volunteers employed by the holding bureau
under
- paragraph 8.1C above.
- (4) Other Bureaus. Employees of other Interior bureaus, who are
allowed
- occupancy during periods of temporary non-use, or in interim periods pending
disposal of the GFQ (see paragraph 5.2, DQH).
- (5) Other Agencies. Employees of other Federal agencies, who
are allowed
- occupancy during periods of temporary non-use, or in interim periods pending
disposal of the GFQ (see paragraph 5.2, DQH).
- (6) Non-Federal Tenants. Non-Federal tenants, who are allowed
occupancy
- during periods of temporary non-use, or in interim periods pending disposal of
the
GFQ (see paragraph 5.3, DQH).
- E. Assignment Consideration. To the maximum extent practicable, and
within the
- assignment priorities listed in paragraph 8.1D, above, bureaus shall assign
quarters
on an objective and equitable basis, in accordance with the following.
- (1) In assigning GFQ, bureaus shall consider the grade, seniority,
permanency
- of position, family size, and the sex and age of the children of prospective
occupants.
- (2) Larger or more expensive quarters should be assigned to occupants
with larger
- families, or to higher salaried personnel.
- (3) Adults and children should not occupy the same bedroom.
- (4) Children of the same sex may share a bedroom. However, separate
bedrooms
- should be provided for children of opposite sex who are ten years of age or older.
8.2 Assignment Records. Written records, in the format
specified below, shall be kept at the installation level to reflect all housing assignments and
periods of occupancy. The assignment record should, as a minimum, set forth the rights and
obligations of the tenant and the Government; list the equipment and furnishings provided; note
existing damage to premises, equipment and furnishings; state requirements on subletting,
assignment, sharing or conducting business on premises; specify the termination of assignment
and
recapture of quarters; specify which party will service the equipment, cut grass, remove snow,
etc.; control painting and alteration; reserve the right of the Government to enter to make safety
and maintenance inspections; and include information on any aspect of the landlord-tenant
relationship, which is likely to arise in quarters of the type or the locations involved.
- A. Quarters Assignment Agreement. A Quarters Assignment
Agreement
(Form DI 1881)
- shall be completed for all occupants of GFQ. Where a GFQ is occupied by
a family unit, the individual to whom the GFQ is assigned (the employee-tenant) shall be
regarded
as the occupant. This agreement provides the essential contractual elements common to all GFQ
assignments; however, bureaus may incorporate additional terms and conditions deemed
applicable to a given tenancy situation. The Quarters Assignment Agreement must be signed by
the occupant and by a designated bureau employee. A copy of this agreement will be provided to
each tenant; the original will be retained by the installation. Prospective occupants who refuse to
sign the agreement shall not be allowed to occupy GFQ. This form accommodates annual
adjustments of the monthly rental rate and charges for related facilities, outlined in paragraph
13.3, DQH. Thus, the agreement need not be re-executed annually, but will be effective until the
tenancy is terminated, or the base rental rate is revalued (normally every fifth year). Occupants
who refuse to sign a re-executed agreement, implementing a revalued rental rate shall be evicted.
The Quarters Assignment Agreement is illustrated in Appendix 14.
- B. Quarters Occupancy/Vacancy Inspection Form. Bureaus have a
responsibility
- as landlords to ensure that GFQ are in good condition when assigned to
employees or other occupants, and when vacated. Therefore, GFQ (including appliances,
furnishings and fixtures) shall be inspected jointly by the occupant and by bureau housing
personnel prior to each occupancy and immediately following vacation of the GFQ. Since these
inspections are the bases for determining occupant liability for property loss or damage in excess
of normal wear and tear, the inspections shall be documented using the Quarters
Occupancy/Vacancy Inspection Form (Form DI 1879). Occupants who refuse to sign Form DI
1879 shall not be allowed to occupy GFQ. This form is shown in Appendix 15.
- C. Rent Computation Schedule. A Rent Computation Schedule (Form
DI 1880) shall
- be prepared for each GFQ occupant (except volunteers, who are provided
housing without charge). This schedule is used to document the rental calculation at the time the
GFQ are occupied and is effective immediately upon occupancy of the GFQ. This schedule is
also
used to document subsequent rental changes resulting from a new regional survey; annual
adjustments required by OMB Circular A-45; or changes in the description of GFQ as reflected
in
revisions to the Government Quarters Inventory. Initial rental charges are effective immediately
upon occupancy; changes in rental charges subsequent to occupancy require a 30-day written
notice. The Rent Computation Schedule is illustrated in Appendix 16.
- D. Miscellaneous Rental Schedules. Form DI 1876 (Isolation Adjust-
ment) and
- Form DI 1877 (Excessive Heating/Cooling Deduction) shall be prepared for each
occupant entitled to these adjustments. This documentation should not be prepared for
volunteers
who are provided housing without charge; or for non-Federal occupants, who are not entitled to
the administrative adjustments authorized in OMB Circular A-45. These forms are illustrated in
Appendices 17 and 18, and are explained more fully in paragraphs 11.3 and 12.2 of the DQH.
- E. Notice of Rental Adjustment. A Notice of Rental Adjustment (Form
DI 1882) shall
- be prepared for each occupant of GFQ, except volunteers, who are provided
housing without charge. This notice is prepared upon initial occupancy of GFQ, and subsequent
to occupancy to reflect changes in the rental charge as reflected in the Rent Computation
Schedule. This form is shown in Appendix 19.
- F. Certification of Required Occupancy. A certification of Required
Occupancy
- (Form DI 1872) shall be prepared for each required occupant as set forth in
paragraph 8.1B(6) above.
- G. Permit. When GFQ are permitted to another bureau or Federal
agency, the
- original permit shall be retained by the installation on which the GFQ is located.
The permittee bureau or agency shall be responsible for ensuring that the other assignment and
occupancy documentation complies with applicable regulations. See paragraph 5.2, DQH for
additional information.
- H. Revocable License. When GFQ are occupied by non-Federal tenants
(including
- private citizens), under conditions described in paragraph 5.3, DQH, a copy of
the
revocable license is required in addition to the other documentation requirements described
above.
8.3 Reassignment of Quarters. Reassignment of bureau
occupants from one GFQ to another GFQ, or to Government acquired temporary private sector
housing should take place only under unusual circumstances in which the best interests of the
Government are clearly served. If such reassignment is at the Government's request, the cost of
the move will be the Government's responsibility. Reassigned occupants shall pay the rental
charges applicable to the "new" housing unit, and need not be provided with a 30-day advance
notice of rental adjustment.
8.4 Vacation of Quarters. This paragraph sets forth the
procedures and documentation associated with termination of GFQ occupancy.
- A. Notice of Intent to Vacate GFQ. Occupants shall notify the
installation
- housing manager of their intention to vacate assigned GFQ. This written notice
shall be submitted at least 30 days prior to the intended date of vacancy, and shall specify the
intended vacation date.
- B. Pre-termination Inspection. A pre-termination inspection should be
held 10 to
- 30 days prior to the intended vacation date to identify conditions requiring
correction by the tenant and by the Government, prior to vacation.
- C. Final Inspection of GFQ. Immediately following vacation of GFQ, the
local housing
- manager and the GFQ occupant shall jointly inspect the GFQ, including
appliances, furnishings and fixtures. The inspection shall be documented on the Quarters
Occupancy/Vacancy Inspection Form (form DI 1879). The purpose of this inspection is to
determine and document the condition of the GFQ, appliances, furnishings and fixtures; and to
compare the condition at vacancy with the condition at the time of occupancy.
- D. Cleaning of Quarters. Occupants shall be required to leave the GFQ
and immediate
- premises in a clean and orderly condition. GFQ left in an unsatisfactory
condition may be cleaned by the bureau (or by a bureau contractor) at the expense of the vacating
occupant. If desired, the vacating occupant may arrange for the cleaning to be done in any other
manner acceptable to the housing manager.
- E. Occupant Responsibility for Loss or Damage to GFQ. Occupants of
GFQ are
- responsible for the care and safekeeping of GFQ and related Government furnished
property (appliances, furnishings and fixtures). Quarters occupants may be held responsible for
property loss or damage in excess of normal wear and tear. Where the Quarters
Occupancy/Vacancy Inspection form indicates that damage to the quarters or other Government
property exceeds normal wear and tear, or where Government property is missing, bureaus shall
provide the occupant with an opportunity to repair or replace the property rather than to pay for
the loss or damage. Occupants who restore the property/premises to a satisfactory condition
shall
be relieved of further liability. In instances where the occupant does not restore the
property/premises to a satisfactory condition, bureaus shall follow the Report of Survey
procedures prescribed in IPMR 114-60 to determine the negligence and liability of quarters
occupants. Bureaus shall initiate collection action against occupants who are found by a Board
of
Survey to be liable for property loss or damage. Amounts collected for loss and damage to
Government property are not rental receipts and must be deposited with the Treasury as
miscellaneous receipts.
- F. Employees on Leave or Furlough. Employees on leave or furlough
will continue
- to be charged for GFQ and related facilities unless the quarters are vacated and
made available to the bureau for reassignment.
- G. Instances of Hardship. Former Federal employees (or other
occupants) and
- dependents of deceased Federal employees (or other occupants) may
continue to occupy GFQ for a period normally not to exceed 60 days. In extenuating
circumstances (sickness or death), National Quarters Officers may approve extensions of the
60-day limitation. Such occupants will continue to pay the established rental rate, as adjusted to
reflect the results of a new regional survey or appraisal, or the application of required
adjustments
in the interim years between baseline rental revisions.
- H. Eviction. GFQ occupants may be evicted upon termination of, or for
breaching, the
- Quarters Assignment Agreement (Form DI 1881). Occupants who pose a
serious threat to the public health and welfare may also be evicted. As eviction is an extreme
action, all prospective evictions shall be referred to the appropriate Field Solicitor's Office to
ensure that there are adequate grounds for the action, that proper process is followed, and that the
matter is adequately documented.
Top of this section
Table of Contents
CHAPTER 9 -- HISTORIC STRUCTURES USED AS
QUARTERS
9.1 Background. Some GFQ held by Interior bureaus are
included in, or are eligible for inclusion in the National Register of Historic Places (National
Register). The National Historic Preservation Act imposes two requirements upon Federal
agencies. 16 U.S.C. 470 sets forth the procedures for nominating properties for inclusion in the
National Register; and 16 U.S.C 470f requires agencies to take into account the effects of
undertakings on properties included in, or eligible for inclusion in the National Register, and to
afford the Advisory Council on Historic Preservation (ACHP) with a reasonable opportunity to
comment on an undertaking prior to the agency's approval and funding of the undertaking. The
intent of the National Historic Preservation Act is that bureaus should compare the benefits of
completed undertakings with historical preservation, costs and other factors. In this regard, while
the ACHP does not have veto power over bureau actions, bureaus are required to consult in good
faith with the ACHP.
9.2 Use of Historic Buildings as Quarters. The National Historic
Preservation Act (at 16 U.S.C. 470h-2(a)(1)) requires agencies to use historic properties to the
maximum feasible extent prior to acquiring, constructing or leasing buildings. Thus, historic
buildings may be used as GFQ where the following determinations have been made.
- A. The need for GFQ has been identified and justified under paragraph 4.2,
DQH.
- B. The use of historic buildings as GFQ will provide the most desirable means of
- preservation, protection and management of each historic building at issue. In this regard,
human occupancy of historic buildings provides protection from fire, theft and vandalism; as
well
as early detection of structural deterioration, such as roof leaks. It also protects the historic fabric
through continued housekeeping and routine maintenance.
- C. It is not appropriate, necessary or cost effective to use the historic structures at
issue for
- other official bureau uses.
9.3 Definitions. For the purpose of this chapter, the terms below
shall have the following meanings.
- A. Historic Building. Historic buildings are those which are already
listed
in the National
- Register; those which are not listed, but which have been formally
determined as being eligible for listing in the National Register; and those which have not been
formally determined eligible for listing, but which appear to meet the eligibility criteria specified
in
36 CFR 60.4.
- B. Undertaking. An undertaking is any activity that can result in changes
in the
- character or use of historic properties. With respect to GFQ, the term "undertaking"
includes (but is not limited to) maintenance, repair, renovation, alteration (i.e., adding a garage,
carport, patio, sidewalk, etc.), destruction, transfer, lease or sale.
9.4 Procedure. In planning for any undertaking to a GFQ, which
is also an historic building under paragraph 9.3A, above, bureaus shall comply with the
procedures set forth in 36 CFR 800. While these procedures are summarized below, bureaus
shall
consult 36 CFR 800, and the other authorities and documents listed in paragraph 9.5, below.
- A. Identification and Evaluation of Historic Buildings. In determining
whether an
- undertaking affects an historic building, it is first necessary to determine if the
structure at issue is an historic structure. Historic properties are listed in the National Register.
Annual updates of new National Register listings are published in the Federal Register, as are
listings of properties, which (while not listed in the National Register) have been determined to
be
eligible for inclusion in the National Register. However, since the National Historic Preservation
Act applies to any eligible property (including those for which eligibility determinations
may not have been made), bureaus should seek the assistance of State Historical Preservation
Officers (SHPO's). These individuals can provide information on previous identification studies
for the area at issue and properties on state registers or listings. SHPO's can also direct the
bureau to other sources of information, such as local Governments or Indian tribes. If the bureau
and the SHPO cannot reach agreement regarding a property's eligibility for inclusion in the
National Register, the bureau must obtain a formal determination of eligibility from the Keeper
of
the National Register of Historic Places using procedures set forth in 36 CFR 60.9. Additional
information on the National Register nomination and eligibility determination processes may be
found in 16 U.S.C. 470a and 36 CFR parts 60 and 63. A list of National Park Service (NPS)
regional offices and SHPO's, including mailing addresses and telephone numbers may be found
in
36 CFR 61, Appendix B.
- B. Assessment of the Effect of an Undertaking on Historic Properties. In
this second
- step, the bureau, in consultation with the SHPO, determines whether the
undertaking has no effect; has no adverse effect; or has an adverse effect on historic properties.
This determination is made by applying the criteria in 36 CFR 800.9(b) and (c).
- C. Consultation to Avoid, Reduce or Minimize Adverse Effect. When a
proposed
- action will have an adverse effect on an historic property, the bureau shall consult
with the SHPO and other interested persons. The purpose of these consultations is to consider
alternatives and mitigation methods that will reduce the damage an undertaking is expected to
impose upon historic properties. If agreements are reached, they are documented in a
Memorandum of Agreement (MOA), which is reviewed by the ACHP. If agreement is not
reached, the bureau shall request ACHP comments on the undertaking.
- D. Comments of ACHP. ACHP comments can be in the form of an
MOA, if an
- agreement is reached on alternatives and mitigation measures. If consultation
with the ACHP does not produce an agreement, the bureau shall request the ACHP to review the
documentation and to comment, within 60 days, on the undertaking.
- E. Final Agency Decision. Where agreement is reached between the
bureau and
- the SHPO and/or the ACHP, the bureau shall proceed with the undertaking as set
forth in the MOA. If agreement cannot be reached, the bureau shall take into account the
ACHP's
written comments, and then make a final decision as to how (or whether) to proceed with the
undertaking. The bureau must notify the ACHP, in writing, of its decision before work begins on
the undertaking.
9.5 Additional References. Detailed descriptions of the
procedures, forms and formats that are used in implementing the National Historic Preservation
Act may be found in the publications listed below.
- A. Code of Federal Regulations.
- (1) 36 CFR 60: National Register of Historic Places.
- (2) 36 CFR 61, Appendix B: Addresses and telephone numbers of
SHPO's and
- NPS offices.
- (3) 36 CFR 63: Determinations of Eligibility for Inclusion in the National
Register of
- Historic Places.
- (4) 36 CFR 68: The Secretary of the Interior's Standards for Historic
Preservation.
- (5) 36 CFR 800: Protection of Historic Properties.
- B. Publications of the Advisory Council on Historic Preservation. The
following
- publications are available from the Advisory Council on Historic Preservation,
1100 Pennsylvania Avenue NW., Suite 809, Washington DC 20004, telephone 202-786-0503.
- (1) 36 CFR Part 800: Protection of Historic Properties -Regulations of
the Advisory
- Council on Historic Preservation Governing the Section 106 Process.
- (2) Section 106, Step-by-Step.
- (3) Preparing Agreement Documents: How to Write Determinations of
No Adverse
- Effect, Memoranda of Agreement, and Programmatic Agreements Under 36
CFR 800.
- C. Publications of the National Park Service. The National Park Service
(NPS) prepares
- and maintains numerous publications, including those listed below. These
publications are available from: Interagency Resources Division, P.O. Box 37127, Washington,
DC 20013-7127.
- (1) National Register Bulletins. This is a list of numbered
bulletins
- available from the NPS.
- (2) Catalog of Historic Preservation Publications. This catalog
lists and
- describes numerous publications available from the NPS and other organizations.
- (3) Guidelines for Applying the National Register Criteria for
Evaluation.
- This publication explains how to apply the criteria to determine the
eligibility
of properties for listing in the National Register.
- (4) Guidelines for Completing National Register of Historic Places
Forms.
- (5) Policies and Procedures for Processing National Register
Nominations.
Top of this section
Table of Contents
CHAPTER 10 -- MONTHLY BASE RENTAL RATE
DETERMINATION
10.1 General. The reasonable value of a GFQ consists of the
Monthly Base Rental
Rate (MBRR)(Chapter 10, DQH), the value of Government provided related facilities (Chapter
11, DQH), the value of applicable administrative adjustments (Chapter 12, DQH), and the value
of interim year annual adjustments (Chapter 13, DQH). The determination of reasonable value
of GFQ shall be based upon an impartial study of comparable private rental housing. Only two
methods may be employed to determine the MBRR: regional surveys and appraisals. Since
OMB Circular A-45 expresses a preference for regional surveys, bureaus shall use the regional
survey method for all GFQ located within designated survey regions. Exceptions must be
obtained in writing from PAM.
10.2 Base Rent Principles. Monthly base rental rates for GFQ
will be set at the
prevailing rental rates for comparable private housing in the survey area (where rental charges
are based upon regional surveys), or in the established community (where rental charges are
based upon appraisals). Generally, rental rates lower than those prevailing in the nearest
established community or survey area may not be charged for quarters, since this would be a
form of employee subsidization specifically forbidden by statute, Comptroller General decisions
and OMB regulations. Conversely, base rental rates higher than those in the nearest established
community or survey area should not be charged. It is recognized that the reasonable value rent
actually established and charged under the rental valuation system set forth in OMB Circular A-
45 does not necessarily equate to fair market valuation of the comparables after required
administrative adjustments are made to the base rental rate. These administrative adjustments
(see Chapter 12, DQH) are designed to provide a uniform basis for assessing differences in
physical and economic characteristics, and for establishing reasonable value to the employee in
the circumstances under which the quarters are provided, occupied or made available.
10.3 Regional Surveys. The purpose of a regional survey is to
establish reasonable
rents by producing a general cost-adjusted market-derived base rent schedule for the whole
region, rather than the specific market appraisal of a unit on a specific site in a specific
neighborhood. This schedule should reflect physical differences in structures and economic
differences among communities, where these differences are shown to impact the rental rate
structure. This is done by obtaining community and comparative private rental housing data for
use in constructing the MBRR tables for each class of quarters; and by obtaining market data on
the cost of related facilities for use in determining charges for Government provided utilities,
appliances, furnishings and services. Regional surveys shall be conducted at least every five
years by the QMIS Program Office, in coordination with PAM and the participating bureaus and
agencies.
- A. Regional Survey Principles. In regional surveys, reasonable rents
are
derived from
- an analysis of the market rents of private comparable properties in the
established communities nearest to concentrations of Government housing. The process of
arriving at the MBRR of a structure can be influenced by real estate appraisal principles,
statistical limitations or administrative principles and considerations. Often there may be a
conflict among these three which necessitates a trade-off.
- (1) Real estate appraisal principles include matching comparables as
closely as
- possible to the specific subject property in physical characteristics and locations
and adjusting in a logical direction for all significant differences.
- (2) Statistical principles involve: trying to minimize the standard error of
the estimate
- (unexplained variation); getting a good match of characteristics between the
properties analyzed and those the analysis is applied to; obtaining a large and diverse sample and
making adjustments only for factors that are significant in explaining variation. Ideal samples
may not always be available in the market, and the market search may be limited (like an
appraisal) due to time and budget constraints.
- (3) Administrative considerations recognize that Government housing is
often not
- located in or very close to the nearest established community. Physical
characteristics, such as in historical houses, one room cabins, lookouts, dormitories or transient
quarters are usually difficult to match in the market. Government housing is frequently found in
areas influenced by tourism or boom-bust natural resource development that may produce
unreasonable rents. Consistency and relative reasonableness, as well as time and budget
constraints, must also be taken into consideration.
While trade-offs among these three considerations may result in a less than ideal application
of any one of the three principles, the goal is still to determine MBRR's which are: relatively
consistent with the local market rents for similar properties; internally consistent and logical
from one unit to another; and which represent reasonable value to the employee.
- B. Regional Survey Process. Regional surveys shall be conducted by the
QMIS Program
- Office, and shall incorporate the following features and procedures.
- (1) Survey Region. The boundary of each survey region is
established by
- the QMIS Program Office in coordination with PAM and the participating
bureaus and Federal agencies. The survey region should be large enough to permit an adequate
sampling of comparable rental properties in several established communities, and may
encompass one or more states. Within a survey region, the actual areas to be surveyed shall be
nearest established communities, including an area extending five miles from the community
boundary (i.e., city/town limits) for house and apartment comparables; and fifteen miles for
mobile homes and trailer spaces. In exceptional circumstances, the QMIS Program Office may
expand the community survey area. If adequate private rental housing data is not available in a
nearest established community, data may be gathered in and around the next closest community
meeting the established community criteria. In some regional surveys, budgetary constraints
may preclude a survey of every designated nearest established community.
- (2) Survey Sample. The QMIS Program Office will analyze the
quarters inventory
- data base to identify the established communities near which there are
GFQ, and to determine for each established community, the number of GFQ by housing class.
Generally, the total number of comparables sampled in each community should be proportional
to the total number of GFQ in the vicinity of the community; and the number of comparables in
each housing class should be proportional to the number of GFQ in each housing class. If
available, at least two samples of each housing class should be collected in each established
community for each class of GFQ present at surrounding installations. The total number of
samples collected for each quarters class should be sufficient to give an adequate estimate of
average rental values for the communities surveyed, and for the region. In the interest of
economy, a community may be excluded from the survey if it is used as an established
community for one or only a small number of GFQ. The QMIS Program Manager will
coordinate the sample plan with bureau and agency National Quarters Officers.
- (3) Data Collection. The regional survey data may be collected
by a private
- contractor, or by qualified Government personnel not quartered in Government
housing. The following data will be gathered during regional surveys.
- (a) Descriptive, community and rental cost data for each private
rental comparable sampled. This information will be documented on Private Rental Survey,
Form 7-2226 (for houses, apartments and mobile homes) and on Private Rental Survey -Trailer
Spaces, Form 7-2227 (for trailer spaces). Form 7-2226 appears in Appendix 20; Form 7-2227
appears in Appendix 21.
- (b) Tariffs and other summary data documenting the costs of
utilities (water, sewer, electricity, fossil fuel and trash removal) in each surveyed community
- (4) Data Analysis. The method of analysis must be capable of
recognizing
- different physical characteristics and differences in economic conditions, and of
reflecting such differences in base rents. Regional survey data analysis shall follow the process
generally described below.
- (a) Data Edit. Survey data shall be edited for accuracy
and completeness. Samples containing irreparable data errors or omissions shall be removed
from further consideration.
- (b) Rental Adjustments. The contract rent of each
comparable shall be adjusted to exclude the value of appliances, services, utilities and
furnishings which are provided by the landlord. Since most private housing (and GFQ) units rent
with a landlord-provided range and refrigerator, the value of these appliances are not excluded.
If a range or refrigerator is not supplied by the landlord, their value will be added
to the contract rents. Central air conditioning and fireplaces will be treated as real property and
analyzed as to their contributory market value. Generally, if it is necessary to adjust the contract
rent of a market comparable by more than 30 percent, that comparable will be excluded from
further consideration.
- (c) Relational Analysis. Individual private rental market
housing samples will be screened for relational consistency with other comparables in the
established community and the survey region prior to derivation of the MBRR formulae.
Comparables with adjusted rental rates that are substantially higher or lower than the regional
and community means for a given housing class should be scrutinized as to actual comparability.
Samples, which are significantly at variance with community or regional rental patterns should
be identified and removed. Comparables should be excluded from the final sample if they are in
areas subject to unreasonable conditions of seasonal agriculture or tourism, population explosion,
severe economic boom or other conditions which may have created an inequitable rent structure.
- (d) Stepwise Regression. Relevant community and rental
data for improved comparables are analyzed using forward in-and-out stepwise regression to
identify features (age, size, condition, location, rooms, etc.), and their value contributions (plus
or minus), which are most significant in explaining the variation in the adjusted market rents.
The analysis of trailer space data may be accomplished using more fundamental techniques.
While this step of the process employs statistical methodologies, the QMIS Program Office is
ultimately responsible for reviewing (and adjusting, where necessary) the results of the analysis
from a property valuation perspective to ensure that the results of the analysis are logical,
consistent and complete.
- (e) Utility data are analyzed to determine the regional unit cost of
each utility surveyed.
- (f) Nationwide appliance, furnishings and service cost data are
updated once each year as part of the annual adjustment process described in paragraph 13.3,
DQH.
- (5) Monthly Base Rental Rate Tables. The MBRR of a GFQ,
derived from the
- analysis of survey data, is the estimated value of that unit before applying
administrative adjustments or charges for related facilities. Each regional survey report shall
contain MBRR tables for each class of quarters identified from the inventory of GFQ. The
QMIS Program Office may combine classes into a single class where a review of GFQ warrants
such action. MBRR tables for housing classes that are not typically present in the market (i.e.,
dormitories and transient quarters) may be established by extension of comparability as provided
in OMB Circular A-45. The MBRR tables, derived from the market analysis, shall be structured
and formatted to permit construction of GFQ MBRR's. When establishing the MBRR for a
particular GFQ, the construction of the GFQ -not its use -will determine its housing classification
and MBRR. For example, a unit constructed or reconstructed as a single family dwelling, but
which is used as a dormitory, will be valued as a house; not as a dormitory.
- (6) Regional Survey Report. The QMIS Program Office shall
incorporate the results
- of the analysis in a regional survey report, which shall include a list
of communities surveyed, the base rent tables and charges for related facilities; and which shall
be reviewed and approved by PAM. The QMIS Program Office, in consultation with partici-
pating agencies and bureaus, shall establish an implementation date for each regional survey
report.
10.4 Appraisals. Appraisals shall not be conducted in areas
covered by a regional
survey without
the approval of PAM. When rental rates are to be determined by the
individual appraisal method, the appraisals shall be performed by appraisers who have been
certified in accordance with Title XI of the Financial Institutions Reform, Recovery and
Enforcement Act of 1989; and who do not reside in GFQ. All appraisals will be reviewed for
technical acceptance by certified reviewing appraisers, prior to their utilization in establishing the
monthly rental charge.
- A. Appraisal Process. The appraisal process shall incorporate the
following features and
- procedures.
- (1) Selection of Comparables. To ensure a uniform approach to
valuation, the appraiser
- will be limited to comparing the GFQ with current comparable
market rentals in the established community nearest to the subject GFQ. However, if there is no
rental market in the nearest established community for one or more classes of housing, the
appraiser will collect comparable rental data for those rental classes from the next closest
community meeting the established community criteria. No less than two private rental units
must be utilized for comparative purposes in establishing the base rental rate for each quarters
unit.
- (2) Rental Adjustments. The contract rent of each comparable
shall beadjusted to exclude
- the value of appliances, services, utilities and furnishings, which
may be provided by the landlord. Since most private housing (and GFQ) units rent with a
landlord-provided range and refrigerator, the value of these appliances are not excluded. If a
range or refrigerator is not supplied by the landlord, their value will be added to
the contract rents. Central air conditioning and fireplaces will be treated as real property and
analyzed as to their contributory market value. Adjustments for the value of utilities, appliances,
services and furnishings will be based on the retail costs of these items in the established
community in which the comparables are located.
- (3) Adjustments of Comparables to the GFQ. The appraiser shall
apply recognized
- real estate valuation principles, and will adjust only for differences in
physical characteristics. Each adjustment shall be shown in either dollar or percentage terms,
and the source of each adjustment shall be fully explained and documented. No adjustments will
be made (as part of the appraisal process) for excessive heating/cooling costs, isolation, site
amenities or other administrative adjustments. Rather, these adjustments will be made as
provided in Paragraph 11.3 and Chapter 12, DQH.
- B. Forms. To ensure Department-wide uniformity, the following forms
will be used for
- all appraisals.
- (1) Government Quarters Inventory (Form DI 1875). Prior to
conducting the
- appraisal, the appraiser will either be furnished, or will complete on his/her
own, the appropriate quarters inventory form for the GFQ to be appraised. This form and the
instructions for completion are found in Appendix 22. If the completed inventory form has been
furnished, it shall be re-verified by the appraiser and co-signed. Any conflicts in the data
provided and the observations made by the appraiser will be resolved by the appraiser.
- (2) Private Rental Survey. The Private Rental Survey (BOR
Form 7-2226), or
- equivalent form, shall be used to document the information concerning all
improved comparables (houses, apartments and mobile homes). The Private Rental Survey
-Trailer Spaces (BOR Form 7-2227), or equivalent form, shall be used for trailer space
comparables. These forms are shown in Appendices 20 and 21.
- (3) Rental Rate Comparability Form (Form DI 1874). This three
part work form
- allows the appraiser to spreadsheet the relevant comparative factors and to
assign weights to each factor. All adjustments should be made to the subject quarters; e.g., if the
GFQ is better, enter a "plus" figure, and if the GFQ is inferior to the comparable, enter a minus
amount. Form DI 1874 appears as Appendix 23.
10.5 Official Use Space. Where a portion of a GFQ is used or
set aside solely for Government
business purposes, the official use space shall be exempted
from assessments of rental and related facilities charges.
A. Requirements. In order to exempt official use space from rental
assessments, all of the following conditions must be met.
(1) The use of space in GFQ for official purposes shall be required and
approved in writing by the installation manager.
(2) The installation manager shall determine that the use of the space for
official purposes renders the space unsuitable for residential use.
(3) The amount of official use space must be significant; i.e., at least one
room or 100 square feet of finished floor space.
(4) The official use space must be clearly identifiable and measurable.
B. Procedure. The procedures below will be followed when establishing
the MBRR for quarters which contain official use space.
(1) Regional Survey Method. Where the MBRR is determined
by regional surveys, the MBRR shall be computed as follows.
(a) Reduce the amount of GFQ rental space (the number of square
feet, bedrooms, rooms, garages, etc.) by the amount of official use space (square feet, bedrooms,
rooms, garages, etc.). Thus, for a 3-bedroom, 5-room, 1,200 square foot house, where one
bedroom (consisting of 200 square feet) is official use space, the MBRR would be computed for
a GFQ that is a 2-bedroom, 4-room, 1,000 square foot house.
(b) Use the appropriate MBRR chart in the regional survey report
to compute the rent for the GFQ as adjusted to discount the official use space.
(2) Appraisal Method. Where the MBRR is determined by an
appraisal, the new base rent will be determined by "reconfiguring" the GFQ to reflect the
deduction of official use space (i.e., fewer square feet, rooms and bedrooms). Then, market
comparables, as closely matched as possible to the "reconfigured" GFQ, will be obtained from
the nearest established community. The appraisal will be performed as prescribed in paragraph
10.4, DQH.
10.6 Extension of Comparability. Private rental comparables
may not be available
for certain
classes of Government housing, including bunkhouses, dormitories, bachelor
quarters, lookouts and transient quarters. In such circumstances, OMB Circular A-45 provides
that the rental charges for such GFQ may be established by extending the principle of
comparability. Guidelines for housing classes most typically not available as comparables in the
private sector are shown below. The specific means by which rental and related charges for these
and other housing classes are established shall be fully explained in each regional survey or
appraisal report. When base rental charges are established by extension of comparability, none
of the administrative adjustments in Chapter 12, DQH shall be applied.
- A. Bunkhouses, Dormitories and Lookouts. Rental charges for these
types of
- GFQ will be established as follows.
- (1) Regional Survey Method. For survey purposes it has been
determined that
- comparable private sector dormitory housing is generally not available.
Therefore, the dormitory rental rate will be established as one-half of the average adjusted house
rent in each survey region. This aggregate rent will then be divided by the average number of
house occupants (two per bedroom) to produce a Basic Shelter Rental Rate(BSRR) per occupant.
To this amount will be added appropriate charges for Government provided related facilities.
More specific information shall be provided in each regional rental survey report.
- (2) Appraisal Method. Where private comparable rental data are
not obtainable for these
- types of GFQ, rental charges will be established at a rate equivalent
to one-half of the base rental rate charged for the next most comparable rental housing. A
separate charge for Government provided related facilities will be established at rates equivalent
to those prevailing in the appraisal area.
- B. Transient Quarters. Transient quarters are hotel-type accommodations,
and are
- usually offered with Government provided furnishings, linens, housekeeping
items and supplies and special services. Transient quarters are typically occupied on a transient
basis, normally for 90 days or less. The charges for transient quarters shall be established as
follows.
- (1) Regional Survey Method. It has been determined for survey
purposes that
- comparable private sector transient housing is generally not available.
Therefore, the rental rate will be constructed by adding to the dormitory Basic Shelter Rental
Rate (BSRR), charges for Government provided utilities, furnishings and services. To that total
will be added an administrative charge of 20 percent, as required by OMB Circular A-45.
- (2) Appraisal Method.
- (a) Charges for transient quarters will be established at rates
equivalent to private transient housing of comparable type and quality.
- (b) If comparable private housing does not exist in the appraisal
area, the rental charge may be established as one-half of the monthly rental charge for the next
most comparable rental housing. To this amount will be added the value of Government
provided related facilities. That total will be increased by 20 percent (as required by OMB
Circular A-45), to produce the final charge.
10.7 Tents. No rental charges will be assessed for tents.
10.8 Obsolete Quarters. As specified in paragraph 7.3A, DQH,
obsolete quarters are not in a decent, safe and sanitary condition, and are therefore unsuitable for
human habitation. Rental charges will not be assessed for quarters in obsolete condition;
however, charges will be assessed for Government provided related facilities.
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Table of Contents
CHAPTER 11 -- CHARGES FOR RELATED
FACILITIES
11.1 General Policies. Related facilities, as defined in 3.1X,
DQH, include utilities, appliances, furnishings and services that are not included in the base
rental rate, but which are provided to occupants of Government furnished quarters (GFQ).
- A. Provision of Related Facilities. It is Departmental policy that all
utilities, appliances,
- furnishings and services shall be provided and billed directly by the
supplier to the occupant when feasible. It is recognized that in certain circumstances, generally
involving remote locations or seasonal occupancy, it may not be feasible (or possible) to require
GFQ occupants to deal directly with suppliers. However, remoteness or seasonal operations are
not sufficient reasons by themselves for the Government to involve itself in providing related
facilities.
- B. Assessment and Collection. OMB Circular A-45 requires that
charges for
- related facilities be set at levels equal to those prevailing for comparable private
housing located in the "same area". The term "same area" means the survey region (when rental
charges are established using the survey method) or the nearest established community (when
rental charges are established using the appraisal method). Charges for related facilities shall
reflect full residential (retail) costs, including all applicable taxes, delivery charges, surcharges,
service charges and adjustments. Failure to collect the full comparable cost of related facilities
provided by the Government to an occupant constitutes a supplementation of salary, which is
prohibited by law.
11.2 Charges for Utilities. Departmental and OMB policies require that GFQ occupants
pay the cost of each utility received. Therefore, utility consumption and prevailing market
residential rates per unit of consumption shall be determined as follows.
- A. Utilities Furnished Directly to Occupants by Supplier -Direct Supplier
Billing.
- GFQ rental charges shall not include the value of utilities that are provided and
billed directly by a utility supplier to a GFQ occupant.
- B. Utilities Furnished Directly to Occupants by Supplier -Government Acts
as Utility
- Collection Agent
. Under certain arrangements, a private utility supplier may
provide service directly to several GFQ units at an installation, but may submit an invoice to the
installation, itemizing the charge for each GFQ. If the invoiced charges are residential-level
market charges (including all taxes and related charges), and are uninfluenced by Government
contracts or preference, the Government shall charge each GFQ occupant the amount billed by
the supplier. If the charges are not residential-level charges, but are established by, or for, the
Government, then the utility service is be viewed as being provided by the Government. In such
instances, the provisions of paragraph 11.2C, below, shall apply.
- C. Government Provided Utility Service. The Government shall be
considered as
- providing utility service if it provides a utility directly to GFQ occupants.
Examples of such service include (but are not limited to) electricity from a Government or
contractor supplied generator or Government hydro electric facility; water service from a
Government/contractor installed or operated well or other water supply; and sewer service from a
Government/ contractor operated or installed sewerage, waste disposal, septic, cesspool or other
type of sewer system. Government provided utility service also includes service provided by a
non-Federal utility supplier at rates established by or for the Government. When the
Government provides a utility, the charges should reflect the cost of similar utility services
provided to renters of comparable private housing in the survey area (where the survey method is
used) or established community (where the appraisal method is used). Charges for utilities
furnished by the Government will be established as follows.
- (1) Consumption. Consumption shall be determined by meters
which are to
- be installed on all quarters, except those used exclusively as dormitories,
bunkhouses or transient quarters, unless Departmental approval for non-installation is requested
and granted. Where metered consumption is not possible, and where rental charges are
established under the survey method, the QMIS Program Office will publish consumption
estimates in regional survey reports. Where metered consumption is not possible, and where
appraisals are used, the appraiser shall estimate utility consumption. The method used for
estimating consumption, and the consumption estimates shall be described fully in the survey or
appraisal report.
- (2) Utility Rates. When rental charges are determined by
regional surveys,
- utility rates shall be the average rates prevailing in the survey region, and
shall be published in the regional survey report. When rental charges are determined by
appraisals, utility rates shall be those in effect in the nearest established community, and shall be
shown in the appraisal report. Under both methods, the utility rates shall include all applicable
taxes and related charges
- (3) Monthly Utility Charges.
- (a) Metered Utilities. When utilities are capable of being
metered or measured, the actual monthly consumption shall be multiplied by the published
regional survey utility rates (when the survey method is used) or appraisal utility rates (when the
appraisal method is used). In lieu of using actual metered or measured monthly consumption,
bureaus may use an average of the monthly measured amounts of the utility consumed during the
previous year. If this method is used, rental adjustments shall be made at least annually to reflect
differences between consumption during the previous year and actual consumption during the
current year. For newly metered GFQ, consumption during the first 12 months may be based on
monthly meter readings; it may be estimated based either upon the metered 12-month
consumption of similar GFQ; or it may be based upon the tables provided in the regional survey
reports. Where estimates are used, rental adjustments shall be made at least annually to reflect
the difference between estimated and actual utility consumption. This provision also applies
where the Government provides metered well water and a septic sewer system. Electric credits
may be allowed for Government owned/provided well and sump pumps, sewer lifts, radon
mitigation systems, base radios, battery chargers or remote control units if the electricity used by
these devices is recorded by the electric meter at the GFQ site.
- (b) Unmetered Utilities. When utilities cannot be
metered or measured at the individual GFQ level, the estimated amounts consumed will be
multiplied by the utility rates published in regional survey reports (when the survey method is
used) or appraisal reports (when the appraisal method is used). Electric credits are not allowable
when electricity consumption is unmetered/estimated.
11.3 Excessive Heating/Cooling Costs. Where GFQ are
determined to be energy inefficient or inadequately constructed or weatherproofed so that the
annual heating and/or cooling costs are excessive (and not attributable to tenant actions), OMB
Circular A-45 allows an adjustment to offset the excessive cost of heating and cooling. This
adjustment is made as a direct offset to the cost of fuel and/or electricity used for heating and
cooling the GFQ. Bureaus shall reimburse the costs over and above those for heating and/or
cooling a comparable but energy efficient and adequately weatherproofed and constructed
housing unit. The only reason for this adjustment is to reimburse employees for excessive costs
incurred because the Government has supplied housing which is not energy efficient or which is
inadequately constructed or weatherproofed. Thus, if a GFQ meets or exceeds established
energy efficiency and construction standards, no adjustment is authorized, regardless of energy
consumption or cost. This adjustment shall only be allowed where the heating and cooling
charges are based upon actual measured (metered) usage of heating/ cooling fuel or electricity.
- A. General Procedures. The following general procedures should be
followed in
- determining the adjustment for excessive heating and/or cooling costs.
- (1) Quarters occupants who believe that their heating/cooling costs are
excessively high
- because of inadequate construction or weatherproofing of the GFQ, must
submit a request for reimbursement of the excessive costs to the installation housing manager.
All requests must include copies of utility bills or other receipts showing the amount of
fuel/electricity consumed, and the heating/cooling charges for the most recent twelve month
period. If the employee cannot produce utility bills or other receipts, no adjustment is
authorized.
- (2) The Government shall inspect the quarters unit to determine
whether the
- construction, weatherproofing and energy efficiency meets applicable standards.
If applicable standards are met, the Government will notify the tenant that no reimbursement will
be made.
- (3) If the GFQ construction and/or energy efficiency does not meet
applicable standards,
- the Government shall estimate the average monthly energy
consumption and cost for heating/cooling a comparable but adequately constructed and
weatherproofed housing unit where proper energy conservation practices are observed. This
shall be done as follows.
- (a) Where regional surveys are used, the monthly amount of
fuel/electricity required for space heating/cooling shall be estimated using the methodology and
tables shown in Section VI (Utilities, Heating Fuels and Related Services) of the applicable
regional survey report. Next, the estimated monthly amount of heating/cooling fuel/electricity
should be multiplied by the utility rates (including all applicable service charges, taxes,
surcharges, etc.) in effect for the GFQ unit to estimate the monthly charge for the
predicted amount consumed per month. Thus, if the tenant pays the utility company directly, the
local utility rates should be used; if the tenant pays the Government, the regional survey utility
rate shall be used.
- (b) Where appraisals are used, the monthly amount of fuel/
electricity required for space heating/cooling may be estimated from a study of the cost of
heating/cooling the private market comparables used in the appraisal (if the comparables meet
applicable weatherproofing, and construction requirements). Estimated consumption figures
may also be obtained from local utility companies. Next, use the utility rates (including all
applicable service charges, taxes, surcharges, etc.) in effect at the GFQ location to determine the
total monthly charge for the estimated amount consumed per month.
- (4) Increase the predicted monthly cost of heating/cooling the comparable
housing unit by
- 25 percent. If this amount (125 percent of the predicted monthly cost) is
less than the actual average monthly billing for heating and/or cooling, the difference may be
reimbursed to the employee tenant.
- B. Procedures for Known Construction, Weatherproofing and Energy
Inadequacies.
- In certain situations it may already be known by the Government that
specific GFQ are energy inefficient or inadequately weatherproofed or constructed, and that
those inadequacies (and not tenant preferences or energy habits) result in excessively high
heating and cooling charges. For example, the Government may have applied the procedures in
paragraph 11.3A, above, for a previous occupant of a GFQ. If that GFQ is rented to a new
occupant, and if the construction, energy efficiency or weatherproofing has not been brought up
to an acceptable standard, then it would be burdensome to require the new occupant to collect
utility receipts for 12 months before being eligible to claim excessive heating and cooling costs
-especially since the Government already knows that the GFQ is energy inefficient or
inadequately constructed or weatherproofed. In these situations reimbursement may be effected
using the following procedures.
- (1) A written determination must first be made by a qualified facility or
maintenance engineer
- that the GFQ at issue is energy inefficient or inadequately constructed
or weatherproofed for the climatic conditions at the GFQ site; and that these deficiencies (and
not the lifestyles or energy habits of the occupants) result in excessively high heating and/or
cooling costs.
- (2) Occupants of such designated GFQ may elect to have the Government
assume
- responsibility for the payment of the heating and cooling utility bills. In these
instances, installations may pay the bills received by the occupants; or they may establish
alternate procedures, such as arranging for the utility companies to send the bills directly to the
appropriate office for payment.
- (3) Following the provisions in Paragraph 11.3A(3), above, the Government shall
determine
- the average monthly energy cost of heating/cooling a comparable but energy
efficient or adequately constructed or weatherproofed housing unit where proper energy
conservation practices are observed.
- (4) Multiply the average monthly cost of heating/cooling, as determined
in
- Paragraph 11.3B(3), above, times 1.25; then add the resulting product to the rental
charges. The requirement to increase the average heating and cooling costs by 25 percent is
based upon OMB Circular A-45 which limits reimbursement to those costs that exceed the
average by 25 percent, or more.
- (5) These procedures, once invoked, shall remain in effect for at least one
year, or until the
- subject GFQ is vacated. That is, occupants cannot elect to exercise this
option only during heating or cooling seasons, and then obtain their own utility services during
the balance of the year. This is because the methodology prescribed in paragraphs 11.3A(3) and
11.3B(3), above, prorates seasonal utility consumption in equal amounts over a 12-month period.
This understates heating and cooling costs during the heating and cooling seasons, but recovers
the balance during non-cooling/heating seasons.
- C. Excessive Heating/Cooling Deduction (Form DI 1877). Bureaus
shall use
- Form DI 1877 for determining the amount of excessive heating/cooling costs. A
copy of this form, along with employee requests for reimbursement, and management
determinations will be maintained in the quarters file at the installation. A copy of this form
appears as Appendix 18.
- D. Maintenance Priorities. Paragraph 7.3, DQH, requires that GFQ be
assigned a high
- maintenance priority when they are so energy inefficient or inadequately
constructed or weatherproofed that an excessive heating/cooling deduction is allowed.
11.4 Charges for Appliances and Furnishings. Charges to
occupants of GFQ for appliances and furnishings provided by the Government will reflect the
cost of such furnishings to tenants of comparable private rental housing at the time of the survey
or appraisal. Where rental charges are based upon regional surveys, the charges for Government
provided appliances and furnishings shall be published in nationwide rate schedules established
by the QMIS Program Office. Where the rental charges are based upon appraisals, the charges
for Government provided appliances and furnishings may be determined by direct community
comparison, or from nationwide rate schedules established by the QMIS Program Office.
Central air conditioners and fireplaces shall be treated as part of the real property, and will be
considered in the survey or appraisal process when comparing properties. Window air
conditioners, stoves and fireplace inserts are items of personal property, and when provided by
the Government, an appliance/furnishing charge will be made.
11.5 Charges for Services. Where practicable, services (trash
removal, cable TV and satellite dish service, lawn care, snow removal, firewood, etc.) shall be
provided to occupants of GFQ directly by private suppliers, and the occupants billed directly for
such services. Where the Government collects for services provided at normal residential rates
by a private supplier, the final charges shall be the actual cost. Where the services are provided
the Government, or by vendors at rates established by or for the Government, such services shall
be presumed to be provided by the Government. Where the rental charges are based upon
regional surveys, the charges for Government provided services shall be based upon nationwide
rate schedules established by the QMIS Program Office. Where rental charges are based upon
appraisals, the charges for Government provided services may be determined by direct
community comparison, or from nationwide rate tables established by the QMIS Program Office.
Annual or seasonal charges for services should be reduced to a monthly charge to be prorated
during the entire year.
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Table of Contents
CHAPTER 12 -- ADMINISTRATIVE ADJUSTMENTS TO
BASE RENTAL RATE
12.1 General. OMB Circular A-45 authorizes certain
administrative adjustments which, when applied, establish a "reasonable value" of the quarters to
the employee, and reflect the circumstances under which the quarters are provided, occupied or
made available. These adjustments are applied, as discussed below, to the Monthly Base Rental
Rate (MBRR) or to the Consumer Price Index (CPI) -adjusted Monthly Base Rental Rate
(CPI-MBRR), whichever is applicable. The total amount of administrative deductions must not
be excessive, resulting in a rental rate to the occupant that is less than the reasonable value of the
quarters, since this would constitute a supplement of salary in contravention of law. The total
value of administrative adjustments cannot exceed the limits set forth in OMB Circular A-45.
Therefore, the rental rate, after all administrative adjustments, must not be lower than 50 percent
of the MBRR or the CPI-MBRR, unless an isolation adjustment has been made. Where an
isolation adjustment has been made, the rental rate, after all administrative adjustments, must not
be lower than 40 percent of the MBRR or the CPI-MBRR. These adjustment limitations do not
apply to possessory interest tax payments (Chapter 15, DQH), or to excessive heating/cooling
adjustments (paragraph 11.3, DQH). Administrative adjustments will not be applied where
extensions of comparability are used to establish rental charges for bunkhouses, dormitories,
transient quarters or lookouts.
12.2 Isolation Adjustment. In some cases, GFQ are located
where community services are available but only at some distance from the GFQ. In addition,
travel conditions or mode of transportation may serve to further isolate some employees from
minimal community services. In such situations, OMB Circular A-45 allows a reasonable
adjustment to ameliorate the direct economic effects of the isolation. The isolation adjustment,
where applicable, reduces the MBRR (or the CPI-MBRR) by an amount equal to the number of
mileage points times an annually determined Isolation Adjustment Factor (IAF). In applying this
adjustment, bureaus shall use the procedure described below, and shown on the Isolation
Adjustment, Form DI 1876, (Appendix 17).
- A. The nearest established community will be used as the community for
calculating the
- adjustment, even though that community may not serve as the location of the
comparable private housing used in establishing the MBRR. The mileage used in computing the
adjustment will be the shortest route usually traveled from the GFQ to the center of the nearest
established community. If that route is closed seasonally, a weighted average adjustment will be
used for the entire year, based upon the number of months each route would ordinarily be used.
- B. The isolation adjustment is designed to recognize different categories of roads
and modes
- of transportation. Because of the range of possible travel conditions and modes
of transportation, point values have been assigned to each category of transportation. These
point values represent differences in time, cost, or both associated with each mile of each
category of transportation from the GFQ to the nearest established community.
- C. When travel from the GFQ to the nearest established community involves
more than
- one category of transportation, the one-way miles are distributed accordingly.
For each category of transportation, the specified point values are multiplied by the number of
one-way miles between the GFQ and the nearest established community to produce one-way
points. The one-way points in each category are then added to produce total one-way points,
which must exceed 30, or there is no adjustment. Finally, the total one-way points for all
modes of transportation are multiplied by an IAF to produce the monthly dollar adjustment.
- D. Isolation Adjustment Factor (IAF). The QMIS Program Office will
compute and
- publish the IAF annually. The IAF is calculated using a formula based in part
upon the General Services Administration (GSA) temporary duty travel mileage allowance for
privately owned automobiles, in effect as of the last day of September of each year. The
effective date of the IAF will be the first day of the first full pay period in March of each year.
The IAF will remain in effect until the following March, and will not be recomputed
every time GSA changes the mileage allowance.
12.3 Site Amenity Adjustments. Establishment of the MBRR
under
OMB Circular A-45 employs the presumption that the GFQ occupy the identical lot as the
private rental comparables. Thus in constructing the MBRR, only the salient differences in the
structures are subject to comparison and adjustment. Experience has shown that the amenities
below are generally present in the communities surveyed; therefore, their contributory values
will be included in the contract rents of the comparables. The lack of availability of any of these
amenities at the GFQ sites should be reflected as a negative percentage adjustment to the MBRR
or the CPI-MBRR. The standards to be used in determining the presence or absence of amenity
factors appear below. Inadequate amenities that are subject to amelioration should be improved
to adequate levels wherever possible.
- A. Reliability and Adequacy of Water Supply. The water delivery
system (including
- wells) should provide potable water, free of significant
discoloration or odor, at adequate pressure from usual outlets. If this amenity is not present at
the GFQ site, deduct 3 percent from the MBRR or the CPI-MBRR.
- B. Reliability and Adequacy of Electric Service. Service (including
locally generated
- service) must equal or exceed a 100 ampere power system capable of
providing 24-hour service under normal conditions (occasional temporary outages are considered
normal). If an adequate backup generator is available, the amenity will be rated as present,
regardless of the reliability of the primary power source. If this amenity is not present at the
GFQ site, deduct 3 percent from the MBRR or the CPI-MBRR.
- C. Reliability and Adequacy of Fuel for Heating, Cooling and Cooking.
There should
- be sufficient fuel delivery and/or storage capacity to meet prevailing weather
conditions and cooking needs. Fuel delivery as it is used here includes electricity as well as
fossil fuel. Thus, where electricity is used as the heating, cooling or cooking fuel, this amenity
shall be considered to be present (no adjustment is authorized) if electric service (see paragraph
12.3B, above) is rated as adequate. If this amenity is not present at the GFQ site, deduct 3
percent from the MBRR or the CPI-MBRR.
- D. Reliability and Adequacy of Police Protection. Law enforcement
personnel,
- including Government employees with law enforcement authority, should be
available on a 24-hour basis. Availability is defined as the ability to respond to emergencies as
quickly as if located in, or adjacent to, the nearest established community. If this amenity is not
present at the GFQ site, deduct 3 percent from the MBRR or CPI-MBRR.
- E. Reliability and Adequacy of Fire Protection. Fire insurance should be
available at
- the GFQ site with the premium charge based upon a rating equal to the rating
available to comparable housing located in or adjacent to the nearest established community; or,
in the alternative, adequate equipment, adequate water (or fire retardant chemical) supply, and
adequate trained personnel (including trained volunteers) should be available on a 24-hour basis
to meet foreseeable emergencies. If either element is present (i.e., comparable insurance rating
or adequate fire fighting capability) no adjustment may be made. If this amenity is not present at
the GFQ site, deduct 3 percent from the MBRR or the CPI-MBRR.
- F. Reliability and Adequacy of Sanitation Service. An adequately
functioning sewage
- disposal system and a solid waste disposal system, whether community
or individually provided, should be available. Individual sewage disposal systems (septic,
cesspool or other) will be considered adequate even though they may require periodic
maintenance, as long as they are usable during periods of occupancy. If this amenity is not
present at the GFQ site, deduct 3 percent from the MBRR or the CPI-MBRR.
- G. Reliability and Adequacy of Telephone Service. Commercial
telephone facilities
- should be available.
- (1) If telephone service (either private or party line) is not available both
within the
- quarters and within 100 yards of the quarters, deduct 3 percent from the MBRR
or the CPI-MBRR.
- (2) If telephone service (either private or party line) is available within
100 yards
- of the GFQ, but not in the GFQ, deduct 2 percent from the MBRR or the
CPI-MBRR.
- (3) If telephone service is available in the quarters, but is not private line
and/or is
- not accessible on a 24-hour basis, deduct 1 percent from the MBRR or the
CPI-MBRR.
- H. Noise and Odors. If there are significant and frequent disturbing
noises or
- offensive odors at the GFQ site, deduct 3 percent from the MBRR or the
CPI-MBRR.
- I. Miscellaneous Improvements. One or more of the following
improvements
- should be present: paved roads, sidewalks or street lights. If one or more of
these improvements are present at the GFQ site, no deduction is authorized. If none of these
improvements are present at the GFQ site, 1 percent may be deducted from the MBRR or the
CPI-MBRR.
- J. Documentation. Whenever it is determined that one or more of the
amenity
- factors for a GFQ are inferior to comparable private rental housing in the nearest
established community, documentation supporting the determination shall be included in the
installation quarters file (where surveys are used), or in the appraisal report (where appraisals are
used). Negative amenity adjustments shall not be granted unless there is adequate current
documentation in the files of the rent setting office.
- (1) Documentation must be current and sufficiently detailed to establish
the basis for
- the rating given each amenity. As an example, if electrical service is rated
inadequate, and a negative adjustment has been given, the basis of the rating must be shown. If
due to excessive and prolonged outages, the number of outages and the length of outages should
be identified.
- (2) For each GFQ, each amenity rated as inferior shall be verified at least
annually
- to validate the continued application of each amenity adjustment factor. The
annual verification should be accomplished in conjunction with the implementation of revised
baseline rents (resulting from a new survey or appraisal), or with the implementation of annual
rental adjustments. In addition to annual verifications, amenity ratings shall be changed on the
Government Quarters Inventory, as changes occur in amenities at the GFQ site. For example, if
a water delivery or sewage disposal system is installed, and the acceptance criteria for these
amenities are met, the inventory ratings for these amenities should be changed from inferior to
adequate immediately after the systems have been installed. If applicable, rental charges shall
also be recomputed.
12.4 Loss of Privacy/Restricted Use. OMB Circular A-45
establishes the basic guidelines relative to a determination of whether a deduction is appropriate
for loss of privacy, or for Government imposed restrictions upon the use of the GFQ. To qualify
for this adjustment, it must be determined that the occupant's use and enjoyment of the GFQ has
been seriously diminished by constant and substantial infringement on the private family area, or
by restrictions imposed by Federal agencies. Where it is determined that a GFQ occupant's
privacy has been restricted or imposed upon, a deduction of up to 10 percent from the MBRR or
the CPI-MBRR may be authorized. The amount of the deduction should be proportional to the
loss of privacy or the restrictions on GFQ use. For example, repeated public visits which are
limited to a six-month period each year, may warrant only a 5 percent deduction from the MBRR
or the CPI-MBRR.
- A. Illustrations of Loss of Privacy or Restricted Use. This handbook
makes no
- attempt to describe each situation or set of circumstances that may be eligible for
deduction as a loss of privacy or restriction on use. However, some examples are offered below.
- (1) A Portion of the Quarters is Required for Accommodating Official
Visitors or for
- the General Convenience of the Public
. To be eligible for a deduction,
the imposition on privacy must be both continual and substantial in nature. Occasional visits by
VIP's or facility users, particularly to the home of an installation manager, project leader or
district manager, would not suffice to establish an imposition on privacy. In addition to the
adjustment for a loss of personal privacy within the GFQ, an additional adjustment for official
use space may be applicable. Specifically, if a portion of the GFQ is set aside for the exclusive
accommodation of the general public or official visitors, and if the GFQ occupants are restricted
from using the space as living space, the space involved shall be considered as official use space,
and the value of the space shall be excluded from the MBRR as prescribed in paragraph 10.5,
DQH. However, the mere designation of a portion of the GFQ as official use space under para-
graph 10.5, DQH, does not, by itself, establish the basis for applying this adjustment.
- (2) Repeated Public Visits During Non-Duty Hours. To be
eligible for a
- deduction, the imposition on privacy must be continual and substantial in
nature, and must involve repeated public visits (i.e., occurring several times daily). The contacts
must be frequent, take place over an extended period each year, and involve the residential area.
Extensive public contacts, but over a limited time period (such as the fall hunting season), may
qualify a GFQ occupant for a proportional deduction.
- (3) Restricted Use. Restricted use occurs when a GFQ occupant
is prohibited
- from enjoying the full range of activities normally associated with rental
occupancies due to restrictions imposed by Federal agencies. A deduction for a restriction on use
would be allowed when the GFQ is located in a national cemetery, or is an integral feature of the
historic or natural scene that is being preserved in a national park or similar area, and the
occupant is inhibited or restricted by written bureau instructions from enjoying the full range of
activities normally associated with rental occupancies (e.g., no outdoor personal or family
recreational activities).
- (4) Accessibility to Management or the Public. A deduction
from the MBRR or
- the CPI-MBRR may be warranted if an employee is officially required,
in writing, to maintain a two-way radio, paging device, or similar device and to monitor that
device while in GFQ. A deduction may also be appropriate where the employee is accessible to
the public by means of an automatic phone dialing mechanism; or where the employee's GFQ
telephone number is listed in a public telephone directory or other notice, as being available to
render assistance at times that are not the employee's regular duty hours. In these cases,
proportional deductions should be made to reflect the number of hours the employee is required
to monitor radio or telephone devices in GFQ, or to be available to respond to any call or page.
- B. Bureau Responsibilities. Bureaus will, within the general framework
outlined
- above, be responsible for exercising good judgement and equitable treatment of
quarters occupants who may be faced with varying degrees of imposition on privacy within the
same installation or in different installations within the bureau. Where deductions are
authorized, bureaus will require that the circumstances be fully documented through the use of
logs (showing frequency of contacts, etc.) and written determinations illustrated with
photographs or drawings as appropriate, and written bureau policies.
12.5 Excessive Size. When an employee is required to accept
GFQ in excess of the reasonable size needs of the employee's family, an adjustment for excessive
size will be authorized as follows.
- A. Close Off Excessive Space. When the quarters are satisfactory,
other
than for the
- presence of unneeded bedrooms, rooms, bathrooms, garages, etc., the unneeded
rooms/space may be closed off (locked or otherwise secured) to bar access by the occupant. In
such cases, the quarters MBRR will be recalculated using the appropriate MBRR tables in the
regional survey report to determine the new (MBRR) for the "smaller" unit. Where rental
charges are determined by appraisals, the appraiser will "reconfigure" the GFQ to reflect the
deduction of locked-off excess space. Then the appraisal shall proceed as specified in paragraph
10.4, DQH. If the occupant of a GFQ unit refuses to allow the bureau to close off excess space,
no rental adjustment shall be authorized. Rental rate reductions that are the result of restricting
occupants' access to portions of the GFQ are not subject to the adjustment limitation in paragraph
12.1, DQH.
- B. Additional Adjustments. If after closing off excess space, the GFQ is
still in
- excess of the reasonable size needs of the employee's family; or if it is not possible or
feasible to close off excess space, then the criteria outlined in Paragraph 8.e of OMB Circular
A-45 will be followed to determine the degree of excess. If the amount of square feet exceeds
those listed on the chart for the family size, the MBRR, or the CPI-MBRR, may be reduced by
up to 10 percent in direct proportion to the excess. The deduction for excessive size will not
continue beyond one month following the availability of adequate alternative quarters.
12.6 Inadequate Size. An adjustment for inadequate GFQ size
will be permitted when an employee-tenant is required to accept rental quarters which are clearly
inadequate in size to accommodate the employee's immediate family needs. The inadequate size
adjustment is subject to the following conditions.
- A. Eligibility. Only permanent, year-round occupants will be eligible
for a deduction
- based upon inadequate size.
- (1) To ensure uniformity in applying this deduction, the table below
reflects the
- number of bedrooms and the size of immediate family. If one of these
conditions is met, a deduction of up to 10 percent shall be made from the MBRR or the
CPI-MBRR.
| Number of Bedrooms | Quarters Inadequate
if: |
| 1 | 3 or more
occupants |
---|
| 2 | 5 or more
occupants |
---|
| 3 | 7 or more
occupants |
---|
| 4 | 9 or more
occupants |
---|
| 5 | 11 or more
occupants |
---|
- (2) Quarters will also be considered inadequate whenever 2 children of opposite
sex,
- 10 years or older, must share a bedroom.
- B. Time Limitation. This deduction will not continue beyond 30 days
after availability
- of either appropriate rental quarters or private housing, except when the
bureau determines that the reassignment of quarters will not serve to benefit the Government.
Should the employee choose not to relocate to available housing of adequate size when it
becomes available, the adjustment shall be eliminated.
12.7 Temporary Quarters -Maintenance of Two Households.
Where permanent personnel occupy rental quarters while performing assigned work, they may be
transferred to a field location under certain conditions. Where it is necessary for an employee to
maintain two households for the convenience of the Government, one permanent and one
temporary, and where the employee is not eligible for per diem, the rental rate for the GFQ may
be adjusted so that the combined housing costs which the employee must pay during the period
of occupancy is not excessively burdensome. Unless approval is granted by the National
Quarters Officer, the adjustment authorized shall not exceed 20 percent of the base rental rate for
the temporary quarters. In the above situation, all permanent personnel who are assigned
temporary quarters and must maintain two households, shall be designated as required occupants
during the period of such occupancy.
NOTE: This situation would be extremely rare since the employee in most instances would
be placed in a travel status and furnished with either (a) housing in lieu of per diem, (b) a reduced
per diem, or (c) appropriate deductions made from the per diem claim.
12.8 Administrative Review. Each bureau shall establish a
system of review to determine the appropriateness of initial adjustments to the base (or CPI-
adjusted base) rental rate and the continued applicability of such adjustments. Administrative
adjustment factors subject to change or termination should be reviewed each year prior to
baseline and annual rental adjustment actions, to determine whether the adjustment(s) is (are)
still warranted. For example, an adjustment for inferior telephone service should be eliminated if
adequate service is installed. The absence of a finding in the installation files that one or more of
the administrative adjustments in Paragraphs 12.2 through 12.7, above, is justified, shall
constitute a presumption that no adjustment shall be made. Employee tenants may seek
application of an administrative adjustment, if warranted, upon written application to the
installation housing officer.
12.9 Changes in Administrative Adjustments. Bureaus should
revise the administrative adjustments to reflect changes in eligibility or amount resulting from
changing circumstances at the GFQ site. These changes should be made as soon as possible,
normally within 30 days. Occasionally, employee tenants will bring to the attention of housing
managers a misapplication of an administrative adjustment. As GFQ occupants are responsible
for verifying the accuracy of the GFQ inventory data (including the data on administrative
adjustments), changes will not be made retroactive beyond the date of documented notification.
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CHAPTER 13 -- NET MONTHLY RENTAL
CHARGES
13.1 General. The Net Monthly Rental Charge (NMRC) is
calculated as the Monthly Base Rental Rate (MBRR) minus deductions for administrative
adjustments; plus charges for Government provided related facilities (utilities, appliances,
furnishings and services); minus deductions for energy credits. The rental charges for
dormitories and bunkhouses shall combine the charges for shelter, furnishings, utilities and
related services into a single monthly, biweekly, weekly or daily rate. The monthly rental
charges shall be multiplied by .4615, by .2308 and by .0333 to determine the biweekly, weekly
and daily rates, respectively. The private rental market, and the private market for related
facilities are dynamic with many factors affecting the determination of the NMRC. In an effort
to maintain Government quarters rental rates in approximate balance with the changes which
occur in the market place, Government rental rates and charges for related facilities shall be
established and adjusted in accordance with this chapter.
13.2 Baseline Surveys or Appraisals. Baseline rental rates and
charges for Government provided utilities, appliances, furnishings and services shall be
established by a survey or appraisal of the private rental market, as follows.
- A. At least every fifth year or when the MBRR or the CPI-MBRR has been
- increased by 40 percent through application of the rent series of the Consumer Price Index
(CPI), whichever occurs first.
- B. Any year when changes in the private rental market in the nearest established
- community indicate a need to adjust the MBRR or CPI-MBRR on the basis of a survey or
appraisal.
13.3 Annual Adjustments to Net Monthly Rental Charges. In
the interim years between baseline surveys or appraisals, the components of the NMRC must be
adjusted, if necessary, to reflect fluctuations in the market place. These annual adjustments shall
be made as follows.
- A. Monthly Base Rental Rates (MBRR). The MBRR shall be adjusted
annually by
- applying the percentage change in the CPI rent series from the month and year
that the last baseline regional survey or appraisal was conducted. Although the new rates shall
be effective at the beginning of the first full pay period that starts on or after March 1 of each
year, the adjustment shall be based on the CPI level as of the preceding September. The
percentages to be used for survey and appraisal based rental adjustments will be provided to each
bureau by the QMIS Program Manager.
- B. Utility Charges. To ensure that charges for government furnished
utilities reflect
- current market costs, they shall be reviewed and adjusted (if necessary)
annually. Where rental charges are based upon regional surveys, the QMIS Program Manager
will adjust all utility charges by amounts coinciding with the changes in the appropriate
components of the September CPI. Where appraisals are used, the charges will reflect the
average residential rates for the utilities in the nearest established community as of September.
The revised charges will be effective at the beginning of the first full pay period that starts on or
after March 1 of each year.
- C. Charges for Appliances, Furnishings and Services. To ensure that
charges for
- government furnished appliances, furnishings and services reflect current market
costs, they shall be reviewed and adjusted (if necessary) annually. Where rental charges are
based upon regional surveys, the QMIS Program Manager will update the nationwide schedule of
charges for these items. Where appraisals are used, the charges may reflect the average costs of
these items in the nearest established community as of September, or the charges may be taken
from the nationwide schedule of charges published by the QMIS Program Office. However,
bureaus must make an election as to which method will be used in non-survey areas; the
adjustment approaches cannot be selectively applied or alternated to obtain the most favorable
rates from either the tenants' or Government's standpoint. The revised charges will be effective
at the beginning of the first full pay period that starts on or after March 1 of each year.
- D. Isolation Adjustment Factor (IAF). The IAF will be recomputed and
published by
- the QMIS Program Manager to reflect the Government temporary duty
mileage allowance for privately owned automobiles, published by the General Services
Administration (GSA) as of the last day of September each year. The new IAF will be used to
compute the isolation adjustment applicable to rents being charged effective at the beginning of
the first full pay period in March of each year. The IAF will remain in effect until the following
March, and will not be recomputed every time GSA changes the mileage allowance.
- E. Energy Credits. The QMIS Program Manager will recalculate and
revise, if
- necessary, credits for the energy used to operate Government well and sump
pumps, sewer lifts, radon gas mitigation systems, base radios, battery chargers or remote control
units, when the energy required to operate these units is included in the utility bills of GFQ
occupants. Revised energy credits will be applied to rents being charged effective at the
beginning of the first full pay period that starts on or after March 1 of each year.
13.4 Annual Adjustments to Prospective or Recently Conducted
Surveys or Appraisals. Baseline surveys and appraisals occur at different times for different
GFQ. Since annual adjustments effective in March are based on preceding September cost
levels, annual adjustments shall be made as follows.
- A. When a baseline regional survey or appraisal is made during the months of
- September through February, no annual adjustment will be made on the upcoming March 1,
but will be deferred until the start of the first full pay period which begins on or after March 1 of
the following year. Rental adjustments based on the baseline survey or appraisal will be put into
effect in the usual manner. Example: If the survey or appraisal month is October 1992, no
annual adjustment will be made in March 1993, but will be deferred until March 1994. Such
adjustments will be based upon the cost changes from the actual date of the survey/appraisal
through September 1993.
- B. When a baseline regional survey or appraisal is made during the months of
March
- through August, no annual adjustment will be made in March of that year, but will be
deferred until the start of the first full pay period which begins on or after March 1 of the
following year. Rental adjustment based on the baseline survey or appraisal will be put into
effect in the usual manner. Example: If the survey/appraisal month is April 1994, no annual
adjustment will be made in March 1994, but will be deferred until March 1995. Such
adjustments will be based upon the cost changes from the actual date of the survey/appraisal
through September 1994.
13.5 Annual Review Requirements. Bureaus shall review the
Government Quarters Inventory (where surveys are used) or other basis for rental charges (where
appraisals are used) annually. These reviews shall be conducted in time to be incorporated in
new baseline survey or appraisal rental charges, or in interim annual rental adjustments.
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CHAPTER 14-- IMPLEMENTATION OF RENTAL
CHARGES
14.1 Implementation Schedule. Baseline survey rental charges
shall be implemented as specified in the regional survey reports issued by the QMIS Program
Office. Baseline appraisal rental charges shall be implemented as directed by bureau National
Quarters Officers. Annual adjustments during interim years between baseline surveys or
appraisals shall be implemented at the beginning of the first full pay period on or after March 1
(see Paragraph 13.4, DQH, for further guidance). Rental adjustments resulting from resurveys
shall be implemented as specified by the QMIS Program Manager; those resulting from
reappraisals shall be implemented as specified by bureau National Quarters Officers. Rental
charges for newly constructed or acquired GFQ shall be determined prior to occupancy by survey
or appraisal, and shall be communicated to the tenant prior to occupancy.
14.2 Documentation of Net Monthly Rental Charge (NMRC).
- A. Baseline Surveys and Appraisals. The QMIS Program Office shall
maintain the
- documentation for all regional surveys. Documentation for each appraisal shall
be maintained by the office which performed or contracted for the appraisal. Copies of regional
survey reports and appraisals shall be maintained at the installation, regional or area offices and
the bureau headquarters.
- B. Annual Adjustments. The QMIS Program Office shall prepare and
maintain the
- documentation for all annual adjustments to regional surveys. Documentation
for annual adjustments to each appraisal shall be prepared and maintained by the office which
performed or contracted for the appraisal. Copies of annual adjustment summaries for regional
survey reports and appraisals shall be maintained at the installation, regional or area offices and
the bureau headquarters.
- C. Individual GFQ Rental Determinations. Bureaus shall document the
calculation of
- the NMRC by preparing a Rent Computation Schedule (Form DI 1880) for
each GFQ. This schedule contains the detailed calculations used in determining the NMRC, and
along with the Notice of Rental Adjustment (Form DI 1882) is used to implement baseline
surveys and appraisals, annual rental adjustments, and rental adjustments made to reflect changes
in the configuration or setting of a GFQ. Bureaus, with the approval of the QMIS Program
Manager, may use machine produced facsimiles of these forms. Together, these forms are the
official record of notice to GFQ occupants of a change in rental charges. Bureaus shall attach the
Rent Computation Schedule to the Notice of Rental Adjustment. A copy of these forms shall be
provided to the GFQ occupant; other copies shall be retained at the installation housing office
and the regional/area housing office. Form DI 1880 appears as Appendix 16, and Form DI 1882
appears as Appendix 19.
14.3 Tenant Notification-Current Occupant. Where revised rental
charges are to be implemented, whether due to baseline surveys or appraisals, annual
adjustments, or inventory changes, the rental charges (biweekly payroll deduction) shall not be
implemented until at least 30 days after the tenant shall have received notification in writing of
the basis and the amount of the charge. Where revised charges are the result of new baseline
surveys or appraisals, this notice shall inform the tenant of the right to request for reconsideration
of the rental rate as well as the office or official(s) to which the request must be submitted. The
Quarters Assignment Agreement (Form DI 1881) includes a provision for automatic
implementation of revised rates without need for execution of a new assignment agreement.
Tenant notification shall be provided through the use of completed Forms DI 1880 and 1882.
These forms should be hand delivered or mailed (certified mail) to each occupant of GFQ.
Receipt of notice shall be deemed effective upon placing the notice in the United States mail for
delivery or upon hand delivery to the employee.
14.4 Tenant Notification-Initial Occupancy. These procedures
apply when notifying prospective tenants of the rental charges which will be assessed upon their
occupancy of GFQ. Bureaus shall establish the NMRC for quarters and related facilities prior to
assignment of quarters. Prior to occupancy, bureaus shall provide prospective occupants with
completed copies of Forms DI 1880 and 1882, the Quarters Assignment Agreement and other
documents required in Paragraph 8.2, DQH. Prospective occupants shall not be allowed to
occupy GFQ until they have signed all required documents, including the Notice of Rental
Adjustment. The 30-day tenant notification period required in Paragraph 14.3, above, is not
required in connection with initial occupancy.
14.5 Implementation of Rental Charge. Automatic
implementation of revised rental rates and charges for related facilities shall be made at least 30
days after the notification specified in Paragraph 14.3, DQH. As 5 U.S.C. 5911 (c) provides for
rental collections through payroll deductions, bureaus shall collect rental charges through payroll
deductions, whenever possible. Revised rental rates and charges for related facilities shall be
collected whether or not the GFQ occupant signs a new rental agreement. Signing the agreement
does not nullify appeal rights. Refusal to sign is cause for eviction.
14.6 Rental Period. Rental rates shall be established on a
biweekly basis for quarters and related facilities, except that rates for dormitory rooms, transient
quarters and similar accommodations may also be set on a daily, weekly or monthly basis.
14.7 Incremental Implementation. If surveys, appraisals or
annual adjustments increase rental and related facilities charges by 25 percent or more above
current charges, such increases may be imposed incrementally over a period not to exceed one
(1) year, on the condition that they be applied in equal increments on at least a quarterly basis. If
the increase in charges is less than 25 percent, bureaus must implement the increase in full.
14.8 Employees in Leave or Furlough Status. Employees who
continue to occupy GFQ while on leave or furlough, with or without pay, will continue to be
charged for quarters. In lieu of collecting rental charges from employees during periods of
furlough, the estimated rental obligations during projected furlough periods may be added to the
rental obligation during periods of employment. The total obligation may be prorated over the
period of employment to allow the collection of rental charges for periods of furlough through
payroll deductions. The Quarters Assignment Agreement, Form DI 1881 (Appendix 14) shall
reflect the Net Monthly Rental Charge and the monthly and biweekly rental charges that will be
established to account for quarters occupancy during periods of furlough. Employees on leave or
furlough for more than 30 days may vacate quarters and make them available for reassignment.
No charge will be made to the employee in leave or furlough status once the quarters are made
available for reassignment.
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CHAPTER 15 -- POSSESSORY INTEREST
TAX
15.1 Policy. The U.S. Supreme Court has held that the
imposition of a possessory use tax on the occupancy rights of a tenant occupying GFQ is a valid
exercise of the taxing power of a state and its political subdivisions.
- A. The argument can be advanced that under OMB Circular A-45, the real
property tax
- paid by a private landlord is represented by a portion of the monthly contract
rent. Since this charge is not excluded from the contract rent in determining the base rental rate
for comparability purposes, the GFQ rental charge already reflects the real estate tax for
comparable private rental property. To allow the occupant of GFQ to pay a possessory use tax to
a local taxing authority thus amounts to a double charge to the occupant.
dd> B. Since the actual charge to be levied in future years by those states which have
statutory
- authority to collect a possessory use tax would not be determinable at the time of
rental rate establishment, exclusion of an estimated annual tax in establishing the base rental rate
is considered inappropriate.
15.2 Procedure. Where a GFQ occupant provides evidence of
payment of a possessory interest tax based upon the value as determined by a state or local taxing
authority, of the tenant's use and occupancy of GFQ, the amount of the tax will be returned to the
occupant without interest, either by offset against future rent payments or by lump sum payment
as determined by the bureau. Where reimbursement is sought by a former tenant or non-bureau
employee, any refund will be dependent upon prevailing accounting restrictions. Such refunds
are exempted from the adjustment limitation provisions described in Paragraph 12.1, DQH.
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CHAPTER 16 -- INTERAGENCY QUARTERS
MANAGEMENT DATA BASE
16.1 Introduction. The Quarters Management and Information
System (QMIS) Program Office maintains the interagency quarters management data base. This
data base contains standard information for every GFQ held by the agencies which participate in
the QMIS Program.
16.2 Data File Structure. The data base contains over 19,000
housing records. Each record contains the information that is entered on the Government
Quarters Inventory, Form DI 1875. The Government Quarters Inventory, and the instructions for
its completion are contained in Appendix 22.
16.3 Uses of the Interagency Quarters Management Data Base.
The interagency data base provides management information to OMB and to national, regional
and installation housing managers. The data file is used by the QMIS Program Office to
determine the communities and the number of private market comparables to sample when
conducting baseline regional surveys. Finally, the data file is used by the QMIS Program Office
for producing bi-weekly rental charges for each GFQ in the data file. Given these sensitive uses,
it is of critical importance that the inventory data be accurate and current.
16.4 Responsibilities.
- A. Agencies and Bureaus. DOI bureaus and other participating Federal
agencies are
- responsible for providing the QMIS Program Office with a completed
Government Quarters Inventory form for each quarters unit held by the bureau or agency.
Bureaus and agencies are also responsible for promptly notifying the QMIS Program Office of
any inventory changes which are required to reflect changes in the condition or configuration of
the GFQ. The bureau National Quarters Officer and the QMIS Program Office shall also be
notified when quarters are disposed of, or are no longer being used as GFQ.
- B. QMIS Program Office. The QMIS Program Office is responsible for
maintaining the
- interagency data file in a current condition and for coordinating all record
changes (including additions and deletions) and data base modifications with QMIS program
participants. The QMIS Program Office will also provide standard or specialized operational and
management reports to program participants upon request.
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Table of Contents
CHAPTER 17-- QUARTERS PROGRAM MANAGEMENT
17.1 Records Maintenance. This paragraph prescribes the
maintenance of quarters rental program records at several administrative levels. These records
will be disposed of in compliance with General Records Schedule 15. Bureaus shall retain the
following records at the following levels.
- A. Project/Installation Level. The records specified below should also
be available for tenant review.
- (1) General Program Data
- . Justification for New or Replacement Quarters
- . Housing Requirements Analysis (HRA)
- . Government Quarters Inventory
- . Regional Survey Report or Appraisal Report(s)
- . Annual Adjustment Schedules and Instructions
- . Revocable Licenses or Use Permits
- . Justification/Verification of Inadequate GFQ amenities
- (2) Tenancy Data
- . Certification of Required Occupancy
- . Quarters Assignment Agreement
- . Quarters Occupancy/Vacancy Inspection Form
- . Notice of Rental Adjustment
- . Isolation Adjustment
- . Excessive Heating/Cooling Deduction
- B. Bureau Regional/Area Office.
- (1) General Program Data
- . Justification for New or Replacement Quarters
- . Housing Requirements Analysis (HRA)
- . Government Quarters Inventory
- . Regional Survey Report or Appraisal Report(s)
- . Annual Adjustment Schedules and Instructions
- . Revocable Licenses or Use Permits
- . Justification/Verification of Inadequate GFQ
amenities
- (2) Tenancy Data
- . Certification of Required Occupancy
- . Notice of Rental Adjustment
- . Excessive Heating/Cooling Deduction
- C. Bureau Headquarters.
- (1) General Program Data
- . Justification for New or Replacement Quarters
- . Housing Requirements Analysis (HRA)
- . Regional Survey Report or Appraisal Report(s)
- . Annual Adjustment Schedules and Instructions
- . Revocable Licenses or Use Permits
- (2) Tenancy Data
- . Certification of Required Occupancy
17.2 Claims Against the Government. Quarters occupants,
who have experienced damages resulting from loss of or damage to personal property, from
personal injury or from death, may file claims against the Government under the authorities
shown below. Since the Government's liability and the amount of settlement may be less than
the amount claimed, tenants should consider the desirability of obtaining "renters" insurance.
Quarters rental receipts shall not be used as the source of funds from which claims settlements
are paid.
- A. Federal Tort Claims Act. Quarters occupants and other individuals
may file claims
- for damages resulting from property losses, property damage, personal
injuries and death where it is alleged that the damages resulted from the negligent or wrongful
acts or omissions of employees of the Department. Specific guidelines regarding the processing
of tort claims within the Department are found in 451 DM 1.
- B. Military Personnel and Civilian Employees Claims Act of 1964.
Departmental
- employees may file claims for loss of or damage to personal property if the
loss or damage is incident to the occupancy of Government quarters. This authority excludes
claims for personal injury or death. The maximum settlement allowed under this authority (31
U.S.C. 3721) is $40,000 (see also Public Law 100-565), and the Department may provide a lesser
settlement. Claims under this authority are based upon the occurrence of loss or damage, and it
is not necessary to establish that the damages resulted from negligence, wrongful acts or
omissions on the part of the Government. Specific guidelines regarding these claims may be
found in 451 DM 3.
- C. The reference in the Quarters Assignment Agreement to Government liability
limitations is
- advisory in nature, serving to put tenants on notice that the Government's
liability may be less than amounts claimed.
17.3 Disposition of Quarters Rental Income. Public Laws
98-473 and 100-446 (Appendix 3) require that rents and charges collected for the use or
occupancy of GFQ shall be deposited in a special fund in each bureau to remain available until
expended for the maintenance and operation of the quarters of the bureau. The use of rental
income for quarters maintenance and operation is in addition to other maintenance funds in
bureau budgets. Bureaus shall establish controls to ensure that quarters rental income is spent
only for the purposes intended by the Congress. The following examples of authorized uses of
quarters rental income are provided to assist bureaus in complying with the intent of the
Congress.
- A. Maintenance and repair of quarters units.
- B. Quarters maintenance inspections, and inspections prior to occupancy and
vacation.
- C. Maintenance and repair of water/sewer lines between the quarters and the
water/sewer
- main.
- D. Maintenance and repair of streets, streetlights, driveways and sidewalks in the
immediate
- vicinity (neighborhood) of the quarters unit.
- E. Installation, maintenance and repair of utility systems which provide direct
service to
- Government quarters.
- F. Acquisition, installation and repair of appliances and furnishings in quarters.
- G. Costs directly associated with the disposal of quarters and of furnishings and
appliances
- used in quarters.
- H. Program management costs (including salary costs) directly associated with
managing the
- quarters program.
- I. Law enforcement and fire protection costs directly related to Government
quarters. If
- the Quarters Inventory reflects that these amenities are missing, rental receipts
cannot be used for these purposes. No more than three percent of the rental receipts may be
expended for fire protection; no more than three percent may be expended for law enforcement.
- J. Purchase or provision of utilities and services used by quarters occupants
where utilities
- and services are not available to individual quarters occupants directly from
private suppliers.
17.4 Request for Reconsideration/Appeals. Employee-tenants
have the right to contest any aspect of the quarters management and rental rate establishment
processes. The two methods for doing so are (1) requests for reconsideration and (2) appeals.
Bureaus must ensure that employee-tenants are aware of their rights and the procedures for
exercising these rights.
- A. Requests for Reconsideration. A request for reconsideration is the
first step in
- the appeal process. It is a written request by the employee-tenant for
reconsideration of any aspect of the quarters management or the rate establishment processes. It
is a prerequisite to an appeal to the Office of Hearings and Appeals. Only employee-tenants may
request reconsideration of quarters management and rental rate determinations. Non-Federal
tenants may not seek reconsideration or subsequent appeal.
- (1) Employee-tenants may request reconsideration of rental rates,
adjustments, or
- other charges, whenever they believe the quarters have been improperly
classified by erroneous factual determinations, or rates have not been established within these
guidelines or those of OMB Circular A-45. The request for reconsideration shall be made in
writing, outlining in detail the basis for the request and the names of all occupants participating
in the request for reconsideration. The request shall be filed with the appropriate office or
official(s) within 30 days following receipt of the notice of change in rate.
- (2) The filing of a request for reconsideration shall not serve to delay
implementation
- of the revised rental rates and related facilities charges. However, the
employee shall be credited with whatever overpayment, if any, resulted during the period from
the date the rental increase became effective to the date the rate is modified. Conversely, the
employee shall pay the Government whatever underpayment, if any, resulted during this period.
- (3) The bureau reviewing official shall issue a decision on a request for
reconsideration
- within 30 days of receiving it. The failure of the responsible bureau official
to issue a decision within 30 days of receiving a request for reconsideration shall be deemed a
decision of denial, and grounds for appeal. While bureaus may have additional review steps,
these do not extend the 30-day response time.
- (4) The employee-tenant shall have the burden of proof on a request for
reconsideration
- and subsequent appeal as to questions of fact.
- B. Appeals. An appeal is a written request by the employee-tenant to the
Office of Hearings
- and Appeals (OHA), 4015 Wilson Boulevard, Arlington, VA 22203, for
an examination of the issues raised in a request for reconsideration. The appeal shall be filed
within 30 days of receipt of a decision on a request for reconsideration. The filing of a request
for reconsideration and a decision thereon, are prerequisites to an appeal. The Director, OHA,
shall refer the appeal to an Ad Hoc Board consisting of one or more persons. The decision of the
Ad Hoc Board shall be final. The appeal to the OHA shall be the sole procedure for appeal from
the bureau reviewing official's decision on reconsideration. Appeals shall be subject to the
following conditions.
- (1) Matters not raised in the initial request for reconsideration shall not be
considered
- on appeal.
- (2) Appeals undertaken as to either existing or proposed rates shall be
adjudicated as
- of the date the rate increases were implemented.
- (3) The filing of an appeal shall not postpone implementation of a
proposed rate
- pending adjudication of the appeal.
- (4) Where an appeal results in a revision of the rental rate, the employee
shall be
- credited with whatever overpayment, if any, resulted during the period from the date
the rental increase changes were implemented to the date of the appeal decision. Conversely, the
employee shall pay the Government whatever underpayment, if any, resulted during this period.
- (5) PAM shall have the right to intervene in any appeal concerning the
quarters program.
- The OHA shall direct a copy of all incoming appeals to: Quarters
Program Manager (D-2910), 7301 West Mansfield Avenue, Denver, CO 80235-2230. A
separate copy shall be sent to the Associate Solicitor - Division of General Law, who shall
appoint a Departmental Counsel to represent the Department before the Ad Hoc Board in those
cases where PAM intervenes. When PAM desires to intervene, it shall do so in writing to the
appellant and OHA within 30 days of receiving its copy of the appeal. Thereafter, the appellant
shall furnish copies of all submissions on appeal to PAM.
- (6) An appeal shall specify the errors alleged and shall list the names of
all employee-
- tenants participating in the appeal. Errors or occupants shall not be considered
unless they have been so specified and listed. A failure to specify the errors alleged is cause for
summary dismissal of the appeal by the Ad Hoc Board.
- (7) Except as otherwise specifically provided herein, an appeal shall be
conducted in
- conformance with 43 CFR Part 4, Subparts A, B, and G.
- C. For employees in an official leave or travel status at the time rental rates and
related
- charges are issued, the time period for filing a request for reconsideration or appeal
shall be extended accordingly.
- D. Implementation of the annually scheduled CPI adjustment shall not serve as a
vehicle for
- reexamination of the survey process or appraisal. Baseline surveys or appraisals
may only be contested within 30 days of receipt of the original notice of change in rate resulting
from a survey or appraisal. Likewise, the annual adjustments themselves are not subject to
request for reconsideration or appeal, as they are required by OMB Circular A-45.
17.5 Employee Participation in Rate Setting Process. Quarters
occupants shall be provided full access to OMB Circular A-45, the DQH and the survey or
appraisal report used to establish the rental rates and the related facilities charges. Presurvey and
postsurvey meetings with the employees are recommended as an effective means of ensuring a
full disclosure and understanding of survey actions. Employees should be afforded an
opportunity, individually or through employee organizations, to have their views and
representations considered during the rental ratemaking process. However, they should
understand that rental rates and related facilities charges are not negotiated. Neither employee-
tenants nor representatives of employee organizations may conduct or accompany a person
conducting an appraisal or a survey of private rental market comparables.
17.6 Exceptions. Efforts have been made in the preparation of
this handbook to allow for unusual circumstances that may exist with respect to the Department's
rental quarters program. Exceptions to the provisions of this handbook must be requested in
writing by bureaus to PAM. The requests should be sent only when the bureau can demonstrate
that they have exhausted all means available to them prior to submitting such a request. These
include allowing the employee to live in private housing. PAM will provide written notification
if an exception is granted.
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