Former Presidents: Office and Security Costs and Other
Information (28-SEP-01, GAO-01-983).
GAO updated a 1988 report on costs borne by the federal
government associated with former presidents and their
dependents. In addition to updating that report, GAO added
information concerning the offices of former presidents. For
fiscal years 1977 through 2000, the federal government paid about
$370 million to support former presidents and their families. As
of June 1, 2001, the offices of the five living former presidents
ranged in size from 3,306 to 5,912 square feet. Under the Former
Presidents Act, the General Services Administration (GSA) is
authorized to provide for each former president suitable office
space appropriately furnished and equipped as determined by the
GSA Administrator at a location specified by the former
president. The law does not, however, provide any information or
guidance on the appropriate amount of space that is to be
provided. For fiscal year 2000, GSA's rental charged to former
President Bush was $144,000, former President Carter $89,283,
former President Ford $105,099, and former President Reagan
$256,671. Former President Clinton's office was not finished
until late August 2001. His estimated annual rent payment to GSA
for fiscal year 2002 is estimated to be about $354,000. According
to GSA officials, the federal government is paying the entire
lease cost for all of the former presidents' offices. The rental
rates GSA has paid are generally within the range of comparable
rents paid for similar properties in the areas in which the
former presidents' offices are located. The Carter Presidential
Center, where the office of former President Carter is located,
has provided additional space for President Carter's use at no
cost to the government. The Secret Service maintains space close
to each of the former presidents' offices and pays rent to GSA
for that space. No special amenities or interior features appear
to exist at the former President's offices. The office staffs of
former presidents' ranged from six to 19 persons and included
full-time and part-time paid members along with volunteers and
interns. In addition to receiving federal compensation, most paid
staff members also receive compensation from other sources.
According to representatives of each former president, the staff
is not involved with political fund-raising activities. To
varying degrees, foundations associated with each former
president are involved with the office operations. Although the
foundations themselves do not pay any portion of the office rent
cost, they do assist office operations by supplying some
furniture and equipment
-------------------------Indexing Terms-------------------------
REPORTNUM: GAO-01-983
ACCNO: A02038
TITLE: Former Presidents: Office and Security Costs and Other
Information
DATE: 09/28/2001
SUBJECT: Cost control
Cost effectiveness analysis
Housing allowances
Office expense allowances
Federal Buildings Fund
******************************************************************
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GAO-01-983
Report to the Chairman, Subcommittee on Treasury, Postal Service, and
General Government, Committee on Appropriations, House of Representatives
United States General Accounting Office
GAO
September 2001 FORMER PRESIDENTS
Office and Security Costs and Other Information
GAO- 01- 983
Page i GAO- 01- 983 Former Presidents Letter 1
Results in Brief 2 Background 5 Total Federal Cost of Former Presidents From
Fiscal Years 1977
Through 2000 Was About $370 Million 9 Historical Space Data Provide Guidance
for Amount of Office
Space; Office Sizes Vary 9 GSA Generally Pays All Costs for Office Space 11
Office Rental Costs Generally Similar to Comparable Properties 12 Former
Presidents? Office Space Has No Special Amenities or
Build- Out Features but Provides Good Exterior Views 15 Former Presidents
Staff Generally Receive Compensation From
Federal and Nonfederal Sources and Are Reportedly Not Engaged in Political
Fund- raising 16 Agency Comments and Our Evaluation 21
Appendix I Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000 23
Appendix II Scope and Methodology 34
Tables
Table 1: Former Presidents Office Space 10 Table 2: Fiscal Year 2000 Rental
Cost for Offices of Former
Presidents and GSA?s Current Estimated Cost of Comparable Space 13 Table 3:
Former President?s Office Staff and Compensation Paid
With Funds From the Former Presidents Act 18 Table 4: Total Expenditures
Associated With Former Presidents,
Fiscal Years 1977- 2000 23 Table 5: Expenditures Under the Former Presidents
Act, Fiscal
Years 1977- 2000 24 Table 6: Expenditures Under the Former Presidents Act,
by Former
President, Fiscal Years 1977- 2000 25 Table 7: Expenditures Under the Former
Presidents Act, by Former
Presidents? Widows, Fiscal Years 1977- 2000 26 Contents
Page ii GAO- 01- 983 Former Presidents
Table 8: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 2000 27 Table 9: Expenditures Under
the Former Presidents Act, by Cost
Category, by Former President and Widows, Fiscal Year 1999 28 Table 10:
Expenditures Under the Former Presidents Act, by Cost
Category, by Former President and Widows, Fiscal Year 1998 29 Table 11:
Expenditures Under the Former Presidents Act, by Cost
Category, by Former President and Widows, Fiscal Year 1997 30 Table 12:
Expenditures Under the Former Presidents Act, by Cost
Category, by Former President and Widows, Fiscal Year 1996 31 Table 13:
Former Presidents, Wives, Widows, and Minor Children
Protected by the Secret Service, Fiscal Years 1977- 2000 32
Page 1 GAO- 01- 983 Former Presidents
September 28, 2001 The Honorable Ernest J. Istook, Jr. Chairman,
Subcommittee on Treasury,
Postal Service, and General Government Committee on Appropriations House of
Representatives
Dear Mr. Chairman: This report responds to your request of March 20, 2001,
that we update and expand on the work we reported on in 1988, concerning
costs borne by the federal government associated with former presidents and
their dependents. 1 In addition to updating the information contained in
that report, you also asked for additional information concerning the
offices of former presidents. As agreed with your office our six objectives,
therefore, are as follows:
How much has the federal government spent to support former presidents and
their dependents since fiscal year 1977? What are the sizes and types of
office space utilized by each former
president? What guidance exists regarding the appropriate size of a former
president?s office? What is the rental cost of each of the former
presidents? offices, and does
any person or entity other than the General Services Administration (GSA)
pay for any of the former presidents? office space? Is the rental cost GSA
pays for each former president?s office in accord with prevailing rental
rates for similar properties near the former presidents? offices? Is there
any other space near the offices of former presidents that is used for
activities associated with former presidents? Are there any special
amenities or interior space features within each
former president?s office that could affect rental cost? How many staff
occupy each former president?s office? Does the staff
receive compensation from nonfederal sources? Are the staffs involved with
political fund- raising activities?
1 Former Presidents: Support Costs and Other Information (GAO/ GGD- 88-
57FS, Mar. 13, 1988).
United States General Accounting Office Washington, DC 20548
Page 2 GAO- 01- 983 Former Presidents
Is there any involvement between entities such as presidential foundations
and the former presidents? offices?
To respond to your request, we researched applicable laws, reviewed GSA
files, toured each of the former presidents? offices and interviewed GSA and
U. S. Secret Service officials and staff from each of the former presidents?
offices. In addition, to provide context for the information we are
reporting, we reviewed and discussed with GSA and Secret Service officials,
applicable laws authorizing benefits for former presidents and GSA?s
correspondence to one former president relating to the use of appropriated
funds. This report provides information on private funding that was provided
by the offices of the former presidents. GSA is not required to collect or
verify this information, nor are the offices of former presidents required
to report it.
During the period in which we conducted our review former President Reagan?s
office was in the process of relocating to a smaller office complex. This
relocation was expected to be completed during September 2001. Much of the
information contained in this report about former President Reagan?s office
is based upon the location of his office as of June 1, 2001. Where possible,
we have also provided information concerning his future office. At the time
we last visited former President Clinton?s office, it had not been
completed. Where possible, we have included information about his office
based on information provided by GSA officials responsible for establishing
the office. Some of this information was still preliminary at the time we
completed our work and is subject to change.
For fiscal years 1977 through 2000, the federal government paid about $370
million to support former presidents and their families. The cost for fiscal
year 2000 was about $26 million. Each former president by law is entitled to
a pension, a furnished office, salaries for office staff, office- operating
expenses, travel funds, free mail, and Secret Service protection. In
addition, a former president?s surviving widow is entitled to a pension. The
former president?s surviving spouse is entitled to free mail costs, and
Secret Service protection. The tables in appendix I provide cost information
on a yearly basis for fiscal years 1977 through 2000 and identify those
persons receiving protection during these fiscal years. Tables 8 through 12
provide detailed information on cost, by category, for each former president
for fiscal years 1996 through 2000. Results in Brief
Page 3 GAO- 01- 983 Former Presidents
As of June 1, 2001, the offices of the five living former presidents ranged
in size from 3,306 to 5, 912 square feet. Under the Former Presidents Act, 2
GSA is authorized to provide for each former president suitable office space
appropriately furnished and equipped as determined by the GSA Administrator
at a location specified by the former president. The law does not, however,
provide any information or guidance on the appropriate amount of space that
is to be provided. According to a GSA official who was involved with
establishing former President Bush?s office, the former president used the
size of existing former presidents? offices as a guide in determining the
size of his future office. Likewise, the Chief of Staff for former President
Clinton said historical space data and advice from GSA officials were used
in estimating the size of former President Clinton?s office. Table 1
provides information on the types and amount of space, such as the former
president?s personal office, general offices, and conference area for each
of the former presidents? offices.
For fiscal year 2000, GSA?s rental charge to former President Bush was
$144,000, former President Carter $89, 283, former President Ford $105, 099,
and former President Reagan $256,671. Former President Clinton?s office was
not finished until late August 2001. His estimated annual rent payment to
GSA for fiscal year 2002 is estimated to be about $354,000. According to a
GSA official, the fiscal year 2003 rental rate will be adjusted to reflect
any amortization of interior construction costs not accounted for in the
fiscal year 2002 rental charge. According to GSA officials, the federal
government is paying the entire lease cost for all of the former presidents?
offices. The rental rates GSA has paid are generally within the range of
comparable rents paid for similar properties in the areas in which the
former presidents? offices are located. Table 2 provides information on the
fiscal year 2000 rental cost of the former presidents? offices and current
comparable rental cost for other properties located near each of the former
presidents? offices. No outside organizations paid any portion of the rent.
However, the Carter Presidential Center, 3 where the office of former
President Carter is located, has provided additional space for former
President Carter?s use at no cost to the government. This includes a
conference room and some office space. The Secret Service maintains
2 3 U. S. C. sect. 102 note. 3 Former President Carter and his wife Rosalynn
Carter founded the Carter Presidential Center, a nonprofit organization in
1982. The Jimmy Carter Library and Museum are operated by a separate
organization.
Page 4 GAO- 01- 983 Former Presidents
space close to each of the former presidents? offices. The Secret Service
pays rent to GSA for that space.
No special amenities or interior features appear to exist at the former
Presidents? offices. All five offices provide good exterior views. Three of
the offices- those of former Presidents Bush, Reagan, 4 and Clinton- are
located on the top floor of their respective high- rise buildings and
provided panoramic views. Former President Ford?s office is a one- story
house with a view overlooking a golf course and former President Carter?s
office is located on the second floor- also the top floor- of the Carter
Center and provides a view of some of the Carter Center grounds. According
to GSA officials, office space permitting good outside views should command
higher rental rates. However, because so many other factors also affect the
negotiation of rental rates, they could not provide a precise amount for
that feature.
The office staffs of former presidents? ranged from 6 to 19 persons and
included full- time and part- time paid members along with volunteers and
interns. In addition to receiving federal compensation, most paid staff
members also receive compensation from other sources. These sources include
the former presidents and his or his spouses? foundations. Table 3 provides
information on the type and number of staff that are currently employed by
each former president and the total federal and nonfederal compensation they
receive. According to representatives of each former president, the staff is
not involved with political fund- raising activities. Former President
Carter?s staff is involved with fund- raising for the former president?s
foundation.
To varying degrees, foundations associated with each former president are
involved with the office operations. While the foundations themselves do not
pay any portion of the office rental cost, they do assist office operations
by supplying some furniture and equipment. At former President Carter?s
office, which is leased from the Carter Presidential Center- a nonprofit
foundation- two staff members of the Center use office space paid for by
GSA. Simultaneously, however, GSA does not pay for other Center space that
is used exclusively by former President Carter or his staff. Only one of the
former presidents? spouse maintains an office within his office complex.
Former President Carter provides his spouse an
4 Former President Reagan?s office is relocating to another building. The
size of the office is also being reduced from about 5, 912 to about 2,450
usable square feet of space.
Page 5 GAO- 01- 983 Former Presidents
office. GSA pays for that space. According to a former President Carter
office representative, Mrs. Carter is significantly involved with the former
president?s activities and thus was provided an office by the former
president.
We provided copies of a draft of this report to the Administrator, General
Services Administration, the Secretary of the Treasury, and former
Presidents Bush, Carter, Clinton, Ford, and Reagan for their comment. We
received either written or oral comments from GSA, the Secret Service, a
Treasury bureau, former President Carter and representatives of former
Presidents Bush, Clinton, Ford, and Reagan. GSA?s Chief Financial Officer
and former President Clinton?s Chief of Staff provided technical
clarifications to our draft report. These clarifications have been included
where appropriate. The Deputy Assistant Director of the Secret Service
stated that the Secret Service had no comment. Former President Carter and
the Chiefs of Staff of former Presidents Bush, Ford and Reagan all said that
the information pertaining to their offices was accurate.
The Presidential Transition Act, 5 the Former Presidents Act, presidential
protection legislation, 6 and other legislation authorize federal government
benefits for former presidents, their spouses, and children. The
Presidential Transition Act and the Former Presidents Act authorize office
space and office operating costs to a former president. The Former
Presidents Act authorizes pensions for a former president and his surviving
widow. The protection legislation authorizes the Secret Service to provide
protection for former presidents, their spouses, and children and specifies
the length of time each is entitled to receive protection.
The act authorizes GSA to provide former presidents the following support:
suitable office space, appropriately furnished and equipped as determined
by the GSA Administrator at a place within the United States specified by
the former president; compensation for members of their office staff, not
to exceed for any one
person the amount provided for an Executive Level IV position (currently
that amount is $125,700);
5 3 U. S. C. sect. 102 note. 6 18 U. S. C. sect. 3056. Background
Presidential Transition Act
Page 6 GAO- 01- 983 Former Presidents
an allowance for travel expenses and subsistence; communications
services; and printing, binding, and postage expenses.
Under the Transition Act, funds are available for expenses incurred to
establish an office for an outgoing president beginning 30 days before his
presidential term expires, (December 21) until 6 months after the end of the
term of office (July 20). 7 The act also provides that, except for pensions,
entitlements under the Former Presidents Act do not become effective until 6
months after the presidential term expires (July 20).
This act authorizes GSA to provide the following support for a former
president, some of which are similar to that provided by the Transition Act:
a pension at an annual rate equal to the rate of pay for a head of an
executive department, currently $161,200. Upon the death of a former
president, a surviving widow is entitled to receive an annual pension of
$20,000. an office staff selected by the former president and responsible
only to
him in the performance of their duties. For the first 30 months the total
annual allowance for the entire staff is limited to $150,000. Thereafter,
the annual allowance is limited to $96, 000. No individual may be paid more
than the highest annual rate provided for an Executive Level II position,
currently $145,100. While not considered to be federal employees, staff
working for the former president are eligible for certain federal benefits,
such as federal retirement and life and health insurance. 8 office space
appropriately furnished and equipped, as determined by the
GSA Administrator, located wherever the former president specifies in the
United States. Upon the death of a former president, GSA has determined that
to give the staff ample time to bring its operations to a conclusion, the
office should be allowed, as a general rule, to operate up to 6 additional
months. 9 GSA has decided that 6 months is sufficient time to complete any
7 GSA has concluded that July 20 th is the last day that Presidential
Transition Act funds are legally available to be obligated by a former
president. 8 Retirement - 5 U. S. C. sect. 8331( 1)( I) and 5 U. S. C. sect. 8401
(11)( A), health insurance- 5 U. S. C. sect. 8901( 1)( H), and life insurance -
5 U. S. C. sect. 8701( a)( 9). 9 The Former Presidents Act does not provide any
information or guidance on how long a former president?s office should be
given to wind up affairs after a former president?s death. Former Presidents
Act
Page 7 GAO- 01- 983 Former Presidents
unfinished business and transfer appropriate documents and other items to
the presidential library. The surviving spouse is not entitled to any staff
or office allowance.
Originally provided for in the Former Presidents Act, former presidents were
authorized to send nonpolitical mail within the United States, its
territories, and possessions as franked mail (i. e., mail with their
signature in lieu of postage). Subsequently, this provision was moved to 39
U. S. C. sect. 3214 and revised to include mail sent internationally and to
grant surviving spouses the same mailing privileges. 10 The former
presidents may also use penalty mail (mail sent in envelopes without a stamp
and bearing a notice of penalty for private use) for 6 months after leaving
office under the authority of the Presidential Transition Act. GSA is also
authorized to pay for travel and related expenses of former presidents and
no more than two members of their staffs. 11
GSA, in consultation with officials representing the former presidents,
prepares yearly operating budgets. Funds are appropriated by Congress and
included as part of GSA?s annual appropriation act. In addition to assisting
the former presidents? offices with budget preparation, GSA also provides
administrative support for the offices of former presidents, assisting on
requests for equipment, supplies, and other office expenditures.
Beginning in 1962, the Secret Service was authorized to protect a former
president, at his request, for a reasonable period of time after he leaves
office. 12 In 1965, protection was expanded to a former president and his
wife during his lifetime and the widow and minor children of a former
president for a period of 4 years after he leaves office or his death occurs
while still in office, unless such protection is declined. 13 In 1968,
protection was once again expanded to protect a former president and his
wife during his lifetime, the widow of a former president until her death or
remarriage, and minor children of a former president until they reach 16
10 The Former Presidents Act appropriation reimburses the Postal Service for
expenses under 39 U. S. C. sect. 3214. 11 Public Law 90- 608, 82 Stat. 1190,
1192 (1968).
12 Public Law 87- 829, 76 Stat. 956 (1962). 13 Public Law 89- 186, 79 Stat.
791 (1965). Presidential Protection
Page 8 GAO- 01- 983 Former Presidents
years of age, unless such protection is declined. 14 In 1994, the law was
amended to rescind lifetime protection for former presidents and their
spouses if the president?s term of office began after January 1, 1997. 15
The 1994 amendment provided that for presidents who begin their term of
office after January 1, 1997, protection is provided for them and their
spouses for a period of not more than 10 years from the date the former
president leaves office except, as follows:
The protection of a spouse is terminated in the event of remarriage or
divorce from, or the death of a former president. If the death of a
president occurs while in office or within 1 year after
leaving office, the spouse shall receive protection for 1 year from the time
of death. The child of a former president under the age of 16 receives
protection for
a period of time not exceeding 10 years or upon the child becoming age 16,
whichever comes first.
After the statutory period of protection has terminated, the Secretary of
the Treasury has the authority to provide temporary protection if the
Secretary determines that conditions warrant further protection.
President George W. Bush is the first President covered by the revised
protection legislation.
In fiscal year 1994, the Former Presidents Act was amended to authorize an
appropriation for GSA to make available for each former president up to $1
million annually and his or her spouse up to $500,000 annually for security
and travel- related expenses if,
the former president and/ or spouse was not receiving lifetime protection
under the lifetime provision (18 U. S. C. sect. 3056), or protection provided
by the Secret Service had expired at the end of the 10-
year period, or protection was declined prior to end of the 10- year
period.
14 Public Law 90- 608, 82 Stat. 1190, 1198 (1968). 15 18 U. S. C. sect. 3056.
Page 9 GAO- 01- 983 Former Presidents
Each former president by law is entitled to a pension, franked mail, a
furnished office, office staff salaries, office operating expenses, travel
funds, and Secret Service protection. In addition, a former president?s
surviving widow is also entitled to a pension. The former president?s
surviving spouse is entitled to free mail and Secret Service protection. For
fiscal year 2000, the cost to the federal government for those benefits was
about $26 million. For fiscal years 1977 through 2000, the total cost was
about $370 million. The tables in appendix I provide information on costs on
a yearly basis for fiscal years 1977 through 2000 and identify recipients of
protection during these fiscal years. Tables 8 through 12 provide detailed
information on cost, by category, for each former president for fiscal years
1996 through 2000.
Under the Former Presidents Act, GSA is authorized to furnish each former
president suitable office space appropriately furnished and equipped, as
determined by the GSA Administrator, at a location of the former presidents
choosing in the U. S. According to GSA officials, this provision allows
former presidents to select the city, building, floor, and even location on
a floor for their offices. GSA?s role is to negotiate with the building
owners the best lease, which would include rental cost. GSA officials told
us that GSA has no authority to reject a former president?s location request
and has not issued any guidance on this subject. The law does not provide
any information or guidance for GSA concerning the amount of office space
requested by a former president. According to a GSA official who was
involved with establishing former President Bush?s office, the former
president used the size of existing former presidents? offices as a guide in
determining the size of his future office. Likewise, the Chief of Staff for
former President Clinton said historical space data and advice from GSA
officials were used in estimating the size of former President Clinton?s
office.
As of June 1, 2001, the size of former presidents? offices ranged from 3,306
to 5,912 square feet. Table 1 provides information on the amount of space
utilized by former Presidents?, Bush, Carter, Clinton, Ford, and Reagan.
Table 1 also provides information on the amount of various types of space,
such as the former president?s personal office, general offices, and
conference space in each of the former presidents? offices. A lease has been
signed for the Clinton office space. Although former President Clinton moved
into his office during July 2001, as of August 7, 2001, construction of the
interior and furnishing of this space had not been completed. Total Federal
Cost of
Former Presidents From Fiscal Years 1977 Through 2000 Was About $370 Million
Historical Space Data Provide Guidance for Amount of Office Space; Office
Sizes Vary
Page 10 GAO- 01- 983 Former Presidents
Table 1: Former Presidents Office Space a Former presidents Space usage Ford
Carter Reagan b Bush Clinton
President?s office 610 1,018 555 698 1,106 Spouse office 0 496 0 0 0 General
office 1,560 2197 3,607 3,223 3,880 Conference 401 0 c 0 d 336 442 Kitchen/
pantry 0 f 164 60 198 49 Other 735 348 1,690 g 119 112
Total 3,306 4,223 5,912 4,574 5,589
a Actual measurement of space, in usable square feet, made by GSA at our
request. b Former President Reagan?s office is relocating, with an expected
reduction in space to about 2, 450 square feet. c The Carter Center provides
a conference room at no cost to GSA.
d The office has some space that was previously used as conference space but
is presently designated as reception/ office space and is included in the
office category. e Kitchen/ pantry located in the Secret Service space.
f Includes a mailroom of about 140 square feet. g Includes a secure
corridor, hallway, and elevator lobby. Source: GSA.
The office of former President Reagan was in the process of relocating. The
current location has been used since he left office in 1989. According to
his Chief of Staff, this move is being done because the former president no
longer requires as much space as is currently occupied. Because of the
former president?s medical condition, the new office will not contain an
office for the former president?s personal use. The new office will be
reduced in size from about 5,900 to about 2,450 usable square feet. GSA
signed a lease for the space on July 3, 2001, and relocation is expected to
take place during September 2001. In addition to his current office, about
1,700 additional square feet of space was used for a short period of time
during 1989 and 1990 as a mailroom. The space was located in another
building and was required because of the large amount of mail that was being
received.
Former Presidents Ford and Bush have had only one primary office since their
terms of office ended. The office size for former President Ford has not
changed. Former President Bush?s office eliminated about 1,300 square feet
of unneeded office space in 1994, about 1 year after he first occupied
Page 11 GAO- 01- 983 Former Presidents
his office. About 119 square feet of storage space was added during 1999.
The storage space is located on another floor in the building.
Both former Presidents Ford and Bush maintain summer offices in other
locations. Former President Ford?s primary office is located in Rancho
Mirage, CA., and his summer office is in Vail, CO. Former President Bush?s
primary office is located in Houston, TX, and his summer office in
Kennebunkport, ME. GSA does not pay any rental costs for the two summer
offices; the former presidents pay the costs for the space. Their primary
offices remain open and operational throughout the year. GSA?s primary costs
for the two summer offices are the per diem and travel cost of staff who
relocate for the summer months to staff those offices. Only two staff
members are allowed to be on travel at government expense at the same time.
The per diem and travel costs for the Ford and Bush summer offices for
fiscal year 2000 were $36,247 and $35,607, respectively.
Former President Carter?s office is located at the Carter Presidential
Center, in Atlanta GA. According to GSA and Carter Center officials, former
President Carter?s office has resided at the Center since the Center opened
in 1986. Prior to that time, the office was located in the Russell Federal
Building, which is also located in Atlanta. According to information
provided by GSA, the square footage of the Carter Center office is about 18
percent smaller than that of the Russell building location.
According to GSA officials, except for the office of former President
Carter, all the space occupied by each of the offices of former presidents
is paid for by GSA. 16 As shown in Table 8, for fiscal year 2000, GSA?s
rental charge to former President Bush was $144,000, former President Carter
$89,283, former President Ford $105, 099, and former President Reagan
$256,671. As of August 7, 2001, former President Clinton?s office was not
finished. His estimated annual rent payment to GSA for fiscal year 2002, is
expected to be about $354, 000. According to a GSA official, the fiscal year
2003 rental rate will be adjusted to reflect any amortization of interior
construction costs not accounted for in the fiscal year 2002 rental charge.
All the former presidents? offices are located in leased space, including
16 The rent payments for the former presidents? offices are paid from Former
Presidents Act appropriations and transferred into the Federal Buildings
Fund to reimburse GSA for the lease costs and administrative and security
fees. GSA Generally Pays
All Costs for Office Space
Page 12 GAO- 01- 983 Former Presidents
former President Clinton?s office. GSA is the lessee for all office space
used by the former presidents, and the former presidents are, in essence,
tenants. Former President Carter, who maintains his office at the Carter
Presidential Center, utilizes some additional office space that is provided
by the center at no cost to the government. For example, a conference room
and some office space are available for his use. The Center also provides an
apartment that is located next to his personal office. In addition to the
former president?s office space, the Secret Service maintains offices near
each former president?s office. GSA negotiates space for the Secret Service,
as part of the lease for each former president?s office. The Secret Service
pays rental costs for its space to GSA.
Based upon the information provided by GSA officials, rental rates paid by
GSA for former presidents? offices generally are similar to rental rates
charged for comparable office space located near the former presidents?
offices. The cost per square foot of space for former presidents Bush and
Carter was within the range, and the rate for former President Reagan?s
office was slightly below. Although, the rental rate for former President
Ford, was about 6 percent higher than the highest comparable rental rate,
the firm that provided the rental information at the request of GSA stated
that suitable space for use by a former president might not exist. In its
report, the firm stated that the space for which they provided information
was applicable for typical agencies but not necessarily a former President.
Former President Clinton?s space is about 4 percent more costly than other
federally leased space in the same building but located on a lower floor.
According to a GSA official, the higher floor location was the most
significant factor for the higher cost.
The amount of rent that GSA charges each of the offices of former presidents
is determined in the same way GSA determines rent it charges federal
agencies in space it controls. The former presidents? office rent is based
upon GSA?s lease costs (what it pays the building owner), plus amounts to
cover GSA administrative and security costs. GSA charges rent monthly. The
rental cost are paid from GSA?s Former Presidents Act appropriation and
deposited into the Federal Buildings Fund. GSA uses the Federal Buildings
Fund, subject to congressional limitations, to pay lease costs, building
operating costs and capital expenses.
Table 2 provides information on the rental cost of each of the former
president?s offices for fiscal year 2000 and what GSA officials believe
Office Rental Costs
Generally Similar to Comparable Properties
Page 13 GAO- 01- 983 Former Presidents
would be the current cost of comparable space at other locations near each
of the former presidents offices.
Table 2: Fiscal Year 2000 Rental Cost for Offices of Former Presidents and
GSA?s Current Estimated Cost of Comparable Space
Former president and location of office
Fiscal year 2000 rental
cost a Usable square feet b
Cost per usable square
foot GSA?s estimated
comparable cost c
Bush Houston, TX $144,000 4,574 $31.48 $34.91 to $37.93 Carter Atlanta, GA
89,283 4, 223 21.14 $18.14 to $33.05 Ford Rancho Mirage, CA
105,099 3, 306 31.79 $22.81 to $29.94 d Reagan e Los Angeles, CA 256,671 5,
912 43.42 $44.84 to $64.93 a Rent paid by former presidents to GSA includes
the lease cost GSA pays to the building owners plus
GSA administrative and security costs. b Actual measurement of space made by
GSA at GAO?s request.
c The comparable rental cost provided by GSA officials has been increased by
GSA?s 8 percent administrative fee and 13 cents per- square foot security
fee. d GSA hired a private firm to conduct a market survey of available
properties. That firm provided rental
rate information on seven properties. However, in its report it stated that
there is very little existing space that is of the quality or is suitable
for the use of a former president?s office. The report also stated that
while the properties included in its report would be ?? valid for a typical
agency office lease, ? we are not comfortable that a suitable quality office
building exists for the proposed use.? e On July 2, 2001, GSA signed a lease
for space to house former President Reagan?s new office. A
total of about 2,450 square feet will be used for the former president?s
office. The estimated annual rental payment to GSA by the former president
will be about $139,000, or about $56.73 per square foot.
Source: GSA.
Former President Clinton?s office is not included in table 2 because his New
York City office was not opened until July of 2001. Although the office was
opened in July, interior construction was not completed until August 2001.
GSA?s rental payment to the building owner, per usable square foot, is
expected to be about $59.71. Former President Clinton?s annual rental cost
for fiscal year 2002 is currently estimated to be about $354,000. This
amount includes GSA?s lease cost and its administrative and security costs.
According to a GSA official, the fiscal year 2003 rental rate will be
adjusted to reflect any amortization of interior construction costs not
accounted for in the fiscal year 2002 rental charge. Also according to the
official, the current square foot rental rate that GSA is paying the
building owner is similar to the rate negotiated for the Social Security
Page 14 GAO- 01- 983 Former Presidents
Administration on another lease in the building and awarded the same day as
the former president?s office lease (April 17, 2001). The rental rate per
square foot for the Social Security office, which is located on a lower
floor, is about $57.18. The Clinton rental rate is about 4 percent higher.
According to a GSA official, the higher floor location was the most
significant factor for the higher cost. Also, according to the official, no
other comparable properties exist in the area.
Once GSA has negotiated a lease for space, an office?s layout must be
developed, constructed, and furnished with desks, telephones, computers, and
other equipment. The amount of interior construction depends upon the
condition of the leased space and the planned layout: it might already be
configured so that only minor modifications are necessary, or the space
could require extensive work. If interior construction is necessary, GSA
tries, as part of its negotiation with the building owner, to persuade the
owner to pay for some of the construction costs. For example, as part of the
lease cost, the owner may provide an allowance of $5 per square foot.
According to GSA officials, the condition of the commercial leasing market
at the time GSA negotiates with the owner determines, to some extent, what
the rent and build- out allowance will be. If quality space is in short
supply, GSA officials said that rental rates go up and allowances offered or
provided by building owners go down.
If the costs of the construction exceed the allowance provided by the owner,
GSA and the former president, as the tenant, are responsible for the
additional costs. Such costs can be charged against the former president?s
account in one lump- sum, or GSA can amortize the cost as part of the rent
over some period of time. We found that at least two of the former
presidents? offices, using Transition Act funds, chose the lump- sum payment
to pay for part of their office interior construction costs. We could not
determine if similar payments were made for the other three former
presidents? offices, because records were not readily available. However,
based upon discussions we had with GSA officials, we believe it is likely
that this method was chosen as well. Using the funds on a lumpsum basis
keeps the rent costs lower than if those costs were amortized and collected
as part of the monthly rent. In the GSA lease files for former Presidents
Bush and Clinton, we found documentation stating that the former presidents
authorized the use of their transition funds for this purpose. According to
a GSA budget official, this is an allowable expenditure of Transition Act
funds because they can be used for office space. According to the budget
official, it was his experience that this was the preferred method. Former
President Bush authorized $134,500 and Transition Act Funds Are
Authorized for Former Presidents Use for Initial Interior Space Construction
and Furnishing of Space
Page 15 GAO- 01- 983 Former Presidents
former President Clinton authorized $415, 000 of their Transition Act funds
for the construction of their offices interior space. Former President
Clinton?s total transition budget was $1,525,000, of which about $878,000
was obligated as of June 30, 2001.
Once the interior construction is finished, the office needs to be furnished
with desks, chairs, computers, telephone systems, and so forth. According to
a GSA budget official, either Transition or Former President Act funds can
be used for this purpose because both acts allow for those types of
expenditures. Subsequent purchases of furniture or equipment may be paid for
from either Transition or Former Presidents Act funds, depending on the
timing of the acquisition.
During our examination of former Presidents? Bush, Carter, Ford, and Reagan
offices, we did not identify any special amenities or build- out features
that we believe would not be found in similar commercial office space.
Construction of former President Clinton?s office was only partially
complete at the time of our visit to his office on August 7, 2001. We
inspected each former president?s office complex and did not see anything
that might be considered in excess of what would be found in quality office
space elsewhere. Walls were generally painted, no wallpaper, and the
furniture was generally government issue. According to GSA officials, a
former president is allowed interior space that is comparable to the quality
of space provided to an executive department head. Since the former
president?s pension is based upon the salary of a cabinet official, it is
reasonable to expect that the office quality would be comparable. We visited
two cabinet officer offices as part of this assignment, and on previous
occasions we have visited offices such as an U. S. Attorney?s office and
judicial chambers. Based upon our observations, we do not believe that the
former presidents? offices exceed the GSA standard. While former President
Clinton?s office was not yet completed when we visited, the completed work
was not expected to include anything that appeared to exceed GSA?s standard
or what we observed in the offices we visited for comparative purposes.
GSA?s New York Region Director of Property Acquisition and Realty Services
said the quality of former President Clinton?s planned office would be
equivalent to a federal official such as a U. S. Attorney or federal judge.
Each former president?s office had what we considered to be a good outside
view. Three of the offices, former Presidents Bush, Reagan, and Clinton, are
located on the top floor of their respective buildings. In our opinion, each
provides good panoramic views. Former President Ford?s Former Presidents?
Office Space Has No Special Amenities or Build- Out Features but Provides
Good Exterior Views
Page 16 GAO- 01- 983 Former Presidents
office is a one- story house and former President Carter?s is located on the
second floor of the Carter Center. Each of those two offices, we believe,
also has good exterior views. Former President Ford?s view is of a golf
course, and former President Carter?s view consists of part of the Carter
Center grounds.
We asked GSA officials if a higher floor location or a good exterior view
could command a higher rental rate. They said that while everything
regarding real estate is negotiable, it would be reasonable to assume that a
high- floor office with a good view or an office with a good view in general
could be expected to command a higher rental rate. Because so many factors
influence what the final rental rate would be, such as the supply and demand
for office space, GSA officials could not provide a definitive incremental
rental amount generally associated with a higher floor location or an office
with a good view. However, according to a GSA official involved with the
lease for former President Clinton?s office space, a higher elevation could
command as high as a 10 percent premium.
Each former president receives federal funding for an office staff. Former
presidents? office staff ranged from 6 to 19 persons, including full- and
part- time paid members and volunteers and interns. Although staffs can
receive federal compensation, they are not considered federal employees.
They are, however, eligible for certain federal benefits such as retirement
and health insurance. In addition to receiving federal compensation, most
staff members also receive additional compensation from the former
presidents, their foundations, and/ or their spouses? foundations. According
to representatives of the former presidents?, no staff members conducted
political fund- raising.
The Former Presidents Act allows each former president to select a staff
that is only responsible to him in the performance of their duties. An
annual allowance of $150,000 is provided for the first 30 months beginning
July 20th of the year in which the term of office of the former president
expired and $96,000 annually thereafter. According to officials from GSA?s
Office of General Counsel, while the staff receives federal compensation,
they are not classified as federal employees. However, the staff may
participate in several federal employee benefits programs, such as
retirement and health insurance. Table 3 provides information on the number
of staff within the offices of former Presidents Bush, Carter, Clinton,
Ford, and Reagan. Former Presidents
Staff Generally Receive Compensation From Federal and Nonfederal Sources and
Are Reportedly Not Engaged in Political Fund- raising Staff Allowance
Page 17 GAO- 01- 983 Former Presidents
In addition to receiving federal compensation, most of the former
presidents? staffs reportedly receive compensation from nonfederal sources
according to representatives of the former presidents. This additional
compensation came directly from the former presidents and/ or from one of
their or their spouses? foundations. In return, the staff perform their
normal former presidents? office duties, assist the former president with
personal matters, or assist the foundation with former presidential
activities or a combination of the three. For example, the head of one
former president?s office receives compensation from the federal government,
the former president, and his foundation. That person?s duties include
managing the office, dealing with issues such as preventing the
commercialization of the former president?s image, assisting the foundation
with setting up meetings and conferences dealing with issues that took place
during his presidency, and serving as the library?s freedom of information
representative. Table 3 provides information on the total amount of
compensation received by the office staff of former Presidents Bush, Carter,
Ford, and Reagan and the sources of that compensation. Table 3 also provides
limited information on former President Clinton?s staffing plans. Staffs
Receive Compensation
From Nonfederal Sources
Page 18 GAO- 01- 983 Former Presidents
Table 3: Former President?s Office Staff and Compensation Paid With Funds
From the Former Presidents Act a
Former President Types of staff Ford Carter Reagan Bush Clinton b
Full- time paid 4 94612 Part- time paid 1 0130 Volunteers c 1 2136 Interns c
0 1221
Total 6 12 8 14 19
Total amount of federal salaries $95,732 $93,864 $94,316 $95,644 $0 Total
amount of nonfederal salaries
$87,550 $314,837 $150,000 $363,000 $0 d
Total compensation $183,282 $408,701 $244,316 $458,644 $0
a Staff numbers are current as of June 1, 2001, and compensation reflects
total for fiscal year 2000. As of June 1, 2001, former President Clinton?s
staff was being paid by Transition Act funds. Former President Act funds
became available to pay his staff salaries on July 20, 2001. As of June 30,
2001, former President Clinton has obligated about $562,000 for personnel
salaries and benefit costs. b Based upon an estimate provided by the Chief
of Staff of former President Clinton. The permanent
office was not fully established at the time of our review. c Based upon a
daily average. Former President Clinton?s office is expected to utilize
volunteers and
interns, but the exact number of these individuals has not yet been
determined. d According to the Chief of Staff of former President Clinton,
some staff compensation will be paid by the former president and his
presidential foundation. Source: Offices of former Presidents and GSA.
GSA officials informed us that there is no legal prohibition that would
preclude the former president?s staff from receiving compensation from other
sources or doing personal work for the former presidents. We are unaware of
any legal prohibition that would preclude these activities. With regard to
the former president?s staff doing personal work for him, the Former
Presidents Act provides that staffs are only responsible to the former
president in the performance of their duties.
According to all of the chiefs of staff or other representatives of the
former presidents, none of the offices have been involved with political
fundraising activities. This is consistent with GSA?s advice to the former
presidents that their staff should not use appropriated funds for partisan
political activities. In response to a request from former President Bush
for GSA?s opinion on matters relating to the operation of his office, the
GSA Administrator stated in a 1993 letter that ?neither appropriated funds
nor Political and Presidential
Foundation Fund- raising
Page 19 GAO- 01- 983 Former Presidents
federally funded office staff time may be used in support of partisan
political activities.? At the time GSA sent former President Bush this
letter, there was a specific prohibition in GSA?s appropriations act against
using funds appropriated for former presidents? allowances and office staff
for partisan political activities. 17 While this prohibition is no longer
included in GSA?s appropriations act, GSA officials informed us that as a
matter of policy it has always, even prior to the 1993 provision, advised
former presidents against using federal funds or federally funded office
staff time for partisan political activities. GSA has not issued any overall
instructions about the propriety of political fund- raising by the staff of
former presidents.
Former President Carter?s staff is, however, involved with fund- raising for
the former president?s foundation. GSA officials informed us that there is
no legal prohibition against former president?s staff participating in
fundraising activities for the former president?s foundations. We are
unaware of any legal prohibition that would preclude former president?s
staff from engaging in this type of activity.
To varying degrees, foundations associated with the former presidents or
their spouses are involved with the use of former president?s office space
and staff. In addition to staff compensation discussed above, former
presidents' foundations share office in the former presidents? offices and
provide office equipment and furnishings. GSA officials informed us that
there is no legal prohibition against the practices of sharing office space
and providing furniture and equipment that have developed between former
presidents and their foundations. We are unaware of any legal prohibitions
that would preclude this. The following is a description of the relationship
between those organizations and the current former presidents who already
have permanent offices.
According to the Chief of Staff for former President Ford, one staff member
receives compensation from the Gerald R. Ford Library and Museum and another
staff member receives compensation from the Betty Ford Center. The latter
staff member conducts normal duties for the former President and also
assists Mrs. Ford with her Center?s activities. According to the Chief of
Staff, the staff member?s computer was supplied by the Center and Mrs. Ford
pays for all office supplies required as a result
17 Public Law 103- 123, 107 Stat. 1226, 1266 (1993). Presidential
Foundations
Involved With the Offices of Former Presidents
Former President Ford
Page 20 GAO- 01- 983 Former Presidents
of her Center?s activities. Neither Mrs. Ford, the Library, nor the Center
maintains offices at the former president?s office.
Former President Carter?s office is located at the Carter Presidential
Center and space is rented from the Center. According to the Carter Center?s
Director of Administrative Services, all of the office staff that work on
former President Carter?s activities are employed and paid by the Carter
Center. However, under a contract between GSA and the Center, GSA pays
$80,000 to the Center to provide administrative support for the office of
the former president. Those funds are then used to cover a portion of some
employee?s salaries. The Director also stated that all of the other staff
only receive Carter Center funds. During fiscal year 2000, one employee who
was located in Plains, GA, worked for the office and received compensation
from both the government and the Carter Center. That employee retired last
year. Employee titles are also different. Where as other former presidents
have chiefs of staff, former President Carter?s personal assistant?s title
is the Executive Assistant to the Chairman. Former President Carter is the
Carter Center?s chairman.
Some of the space utilized by the Carter Center?s Executive Director and his
assistant is paid for by GSA. According to the Director, he is actively
involved with the office of former President Carter by traveling with the
former president, accepting awards on his behalf, handling some of the
former president?s correspondence, and working with the former president?s
staff. Mrs. Carter is assigned an office in the office of former President
Carter. The Director of Administrative Services stated that the former
president decided to provide an office for his wife in his former
president?s office because they both work jointly on most activities
involving the former president. GSA officials informed us that there is no
legal prohibition against this, and we are unaware of any such prohibition.
The Director also stated that GSA does not pay for some space that is used
exclusively by the former president, such as a conference room and some
office space. The Carter Center also provides an apartment for the former
president. The apartment is located next to the former president?s personal
office in the Carter Center. According to the Director, the Carter Center
provided most of the equipment and furniture used by the former president?s
staff.
GSA subleases space for former President Reagan?s office from the Ronald
Reagan Presidential Foundation. The foundation once had staff located on the
same floor but in separate office space. The foundation staff has since
relocated to the Reagan Library, but according to former President Reagan?s
Chief of Staff, the foundation did utilize the conference room for Former
President Carter
Former President Reagan
Page 21 GAO- 01- 983 Former Presidents
its quarterly meetings. According to the Chief of Staff, one staff person
receives compensation from the foundation; this individual assists the
foundation in setting up conferences, such as on the Cold War, that are
associated with the former president. The foundation provided some
furniture. The Chief of Staff also stated that Mrs. Reagan supplied a
computer used by one of the staff who assists her, and she purchases her own
office supplies. Mrs. Reagan does not have an office in the office of former
President Reagan. The Chief of Staff also stated that three staff members
receive compensation from former President Reagan.
According to the Chief of Staff for former President Bush, two staff members
receive compensation from the George Bush Presidential Center Foundation.
The foundation also provided two computers and some furniture, but it has no
office space at the former president?s office. From August 2000 through
March 2001, one of its staff members was located at the former president?s
office. That staff person transcribed the personal diaries of the former
president that he dictated while he was president. One staff member assists
Mrs. Bush. According to the Chief of Staff, Mrs. Bush purchases all office
supplies necessary for her activities. Mrs. Bush does not have her own
office at former President Bush?s office. The Chief of Staff also stated
that seven staff members receive compensation from former President Bush.
Former President Clinton has established the William Jefferson Clinton
Presidential Foundation. The foundation is located in Little Rock, Arkansas.
As previously stated, the foundation will assist with the payment of office
staff salaries. According to former President Clinton?s Chief of Staff, no
other assistance from the foundation is being considered.
We received either written or oral comments from GSA, the Secret Service,
former President Carter and representatives of former Presidents Bush,
Clinton, Ford, and Reagan. GSA?s Chief Financial Officer and former
President Clinton?s Chief of Staff provided technical clarifications to our
draft report. These clarifications have been included where appropriate. The
Deputy Assistant Director of the Secret Service stated that the Secret
Service had no comment. Former President Carter and the Chiefs of Staff of
former Presidents Bush, Ford and Reagan all said that the information
pertaining to their offices was accurate.
As agreed with your office, unless you publicly announce the contents of
this report earlier, we plan no further distribution until 30 days from its
issue date. At that time, we will send copies of this report to the Chairman
Former President Bush
Former President Clinton Agency Comments and Our Evaluation
Page 22 GAO- 01- 983 Former Presidents
and Ranking Minority Members of the congressional committees with
jurisdiction over GSA and the Secret Service. We are also sending copies of
this report to the Administrator of GSA; the Secretary of the Treasury; the
Director of the Secret Service; and former Presidents Bush, Carter, Clinton,
Ford, and Reagan. We will also send copies to interested congressional
committees and make copies available to others on request.
Major contributors to this report were Ronald King, John Parulis, and Susan
Michal- Smith. If you or your staff have any questions, please contact me on
(202) 512- 8387 or at ungarb@ gao. gov.
Sincerely yours, Bernard L. Ungar Director, Physical Infrastructure Issues
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 23 GAO- 01- 983 Former Presidents
Table 4: Total Expenditures Associated With Former Presidents, Fiscal Years
1977- 2000
Fiscal year Former
Presidents Act
Secret service protection Total
1977 $378,749 $5,576,349 $5,955,098
1978 651,965 7, 936,728 8,588,693
1979 720,697 9, 072,373 9,793,070
1980 739,795 7, 563,432 8,303,227
1981 718,325 9, 741,663 10,459,988
1982 1,024,405 11,750,238 12,774,643
1983 1,028,820 10,941,419 11,970,239
1984 1,075,176 10,547,659 11,622,835
1985 1,103,933 11,416,329 12,520,262
1986 1,036,729 8,359,615 9,396,344
1987 1,055,273 9,265,491 10,320,764
1988 1,058,305 8,331,803 9,390,108
1989 1,247,848 13,472,939 14,720,787
1990 1,710,716 12,785,902 14,496,618
1991 1,815,394 12,897,617 14,713,011
1992 1,976,800 13,481,078 15,457,878
1993 2,247,506 18,945,296 21,192,802
1994 2,495,498 18,797,425 21,292,923
1995 2,072,824 20,942,654 23,015,478
1996 1,992,168 21,139,287 23,131,455
1997 2,002,882 22,746,170 24,749,052
1998 2,036,002 22,580,904 24,616,906
1999 2,023,888 23,186,699 25,210,587
2000 2,083,331 23,743,561 25,826,892 Total $34,297,029 a $335,222,631
$369,519,660
a For fiscal years 1985 through 1987, the amount shown includes Former
President Act funds used to pay the rental charge for a townhouse owned by
the federal government in Washington D. C. that was used exclusively by
former presidents when they visited the capital. Starting with fiscal year
1988, Congress eliminated the rental payments because the property was
seldom used. The charge to the Former Presidents Act account for those 3
years was $62,913, $63,627, and $53, 821 respectively.
Source: GSA and Secret Service officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 24 GAO- 01- 983 Former Presidents
Table 5: Expenditures Under the Former Presidents Act, Fiscal Years 1977-
2000 Fiscal year
Former presidents Widows Total
1977 $316,168 $62,581 $378,749
1978 590,002 61,963 651,965
1979 660,697 60,000 720,697
1980 693,394 46,401 739,795
1981 676,125 42,200 718,325
1982 979,405 45,000 1,024,405
1983 1,006,420 22,400 1,028,820
1984 1,052,276 22,900 1,075,176
1985 1,080,933 23,000 1,103,933
1986 1,012,604 24,125 1,036,729
1987 1,034,273 21,000 1,055,273
1988 1,037,329 20,976 1,058,305
1989 1,226,884 20,964 1,247,848
1990 1,688,611 22,105 1,710,716
1991 1,794,670 20,724 1,815,394
1992 1,956,300 20,500 1,976,800
1993 2,226,106 21,400 2,247,506
1994 2,474,298 21,200 2,495,498
1995 2,050,324 22,500 2,072,824
1996 1,970,972 21,196 1,992,168
1997 1,981,582 21,300 2,002,882
1998 2,014,595 21,407 2,036,002
1999 2,002,374 21,514 2,023,888
2000 2,061,731 21,600 2,083,331 Total $33,588,073 $708,956 $34,297,029
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 25 GAO- 01- 983 Former Presidents
Table 6: Expenditures Under the Former Presidents Act, by Former President,
Fiscal Years 1977- 2000 a Fiscal year Nixon Ford Carter Reagan Bush Total
1977 $215,923 $100,245 $0 $0 $0 $316,168
1978 229,323 360,679 0 0 0 590,002
1979 282,990 377,707 0 0 0 660,697
1980 318,213 375,181 0 0 0 693,394
1981 300,418 323,390 52,317 0 0 676,125
1982 311,313 296,188 371,904 0 0 979,405
1983 291,868 331,184 383,368 0 0 1,006,420
1984 317,525 350,366 353,063 0 0 1,020,954
1985 317,469 360,995 339,556 0 0 1,018,020
1986 307,679 328,267 313,031 0 0 948,977
1987 360,990 343,182 276,280 0 0 980,452
1988 403,601 351,161 282,567 0 0 1,037,329
1989 390,557 359,441 324,027 152,859 0 1,226,884
1990 407,202 336,785 352,200 592,424 0 1,688,611
1991 420,611 409,956 367,899 596,204 0 1,794,670
1992 436,739 411,840 407,934 699,787 0 1,956,300
1993 448,603 454,145 388,256 746,058 189,044 2,226,106
1994 396,901 433,539 406,673 665,973 571,212 2,474,298
1995 0 453,235 411,214 619,954 565,921 2,050,324
1996 0 430,088 394,825 605,607 540,452 1,970,972
1997 0 432,121 408,277 608,886 532,298 1,981,582
1998 0 437,639 398,937 614,028 563,991 2,014,595
1999 0 437,328 399,765 611,236 554,045 2,002,374
2000 0 510,357 397,635 599,649 554,090 2,061,731 Total $6,157,925 $9,005,019
$7,029,728 $7,112,665 $4,071,053 $33,376,390
a Does not included cost associated with D. C. townhouse. (See table 4 note)
Cost was charged to overall account and not to individual former presidents.
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 26 GAO- 01- 983 Former Presidents
Table 7: Expenditures Under the Former Presidents Act, by Former Presidents?
Widows, Fiscal Years 1977- 2000
Fiscal year Mrs. Johnson Mrs. Truman Mrs. Eisenhower
Widows postage Total
1977 $20,000 $20,000 $20,000 $2,581 $62,581
1978 20,000 20,000 20,000 1, 963 61,963
1979 20,000 20,000 20,000 0 60,000
1980 20,000 20,000 2, 000 4,401 46,401
1981 20,000 20,000 0 2,200 42,200
1982 20,000 20,000 0 5,000 45,000
1983 20,000 0 0 2, 400 22,400
1984 20,000 0 0 2, 900 22,900
1985 20,000 0 0 3, 000 23,000
1986 20,000 0 0 4, 125 24,125
1987 20,000 0 0 1, 000 21,000
1988 20,000 0 0 976 20,976
1989 20,000 0 0 964 20,964
1990 20,000 0 0 2, 105 22,105
1991 20,000 0 0 724 20,724
1992 20,000 0 0 500 20,500
1993 20,000 0 0 1, 400 21,400
1994 20,000 0 0 1, 200 21,200
1995 20,000 0 0 2, 500 22,500
1996 20,000 0 0 1, 196 21,196
1997 20,000 0 0 1, 300 21,300
1998 20,000 0 0 1, 407 21,407
1999 20,000 0 0 1, 514 21,514
2000 20,000 0 0 1, 600 21,600 Total $480,000 $120,000 $62,000 $46,956
$708,956
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 27 GAO- 01- 983 Former Presidents
Table 8: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 2000
Cost Category Ford Carter Reagan Bush Widows Total Pensions
Benefits for former presidents pensions $155,700 $155,700 $155,700 $155,700
$20,000 $642,800 Office Staff
Personnel benefits $22,182 $5,903 $23,652 $34,348 $0 $86,085
Personnel compensation 95,732 93,864 94,316 95,644 0 379,556 Subtotal
$117,914 $99,767 $117,968 $129,992 $0 $465,641 Office
Equipment $24,528 $0 $0 $12,978 $0 $37,506
Equipment rental 0 0 00 00 Other services 6,225 15,374 14,306 18,199 0
54,104
Postage 16,116 15,114 10,267 14,007 1, 600 57,104
Printing 50 865 8,075 12,057 0 21,047
Rental payments to GSA 105,099 89,283 256,671 144,000 0 595,053
Supplies and materials 20,865 1, 120 22,780 10,226 0 54,991
Telephone 20,992 20,412 13,882 9, 307 0 64,593
Transportation of things 1, 622 0 00 01,622 Travel 41,246 0 0 47,624 0
88,870
Subtotal $236,743 $142,168 $325,981 $268,398 $1,600 $974,890 Total $510,357
$397,635 $599,649 $554,090 $21,600 $2,083,331
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 28 GAO- 01- 983 Former Presidents
Table 9: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 1999
Cost Category Ford Carter Reagan Bush Widows Total Pensions
Benefits for former presidents pensions $151,800 $151,800 $151,800 $151,800
$20,000 $627,200 Office Staff
Personnel benefits $23,131 $5,479 $22,749 $34,178 $0 $85,537
Personnel compensation 95,801 93,864 91,529 94,773 0 375,967 Subtotal
$118,932 $99,343 $114,278 $128,951 $0 $461,504 Office
Equipment $2,319 $0 $0 $26,813 $0 $29,132
Equipment rental 0 00 0 0 0
Other services 4,276 11,425 8, 846 8,545 0 33,092
Postage 7, 805 17,414 9, 106 13,879 1, 514 49,718
Printing 0 1, 480 14,484 18,027 0 33,991
Rental payments to GSA 76,938 92,388 274,361 139,279 0 582,966
Supplies and materials 20,266 5, 589 22,173 12,173 0 60,201
Telephone 21,178 20,326 15,135 9, 907 0 66,546
Transportation of things 0 0 1,053 34 0 1,087
Travel 33,814 0 0 44,637 0 78,451 Subtotal $166,596 $148,622 $345,158
$273,294 $1,514 $935,184 Total $437,328 $399,765 $611,236 $554,045 $21,514
$2,023,888
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 29 GAO- 01- 983 Former Presidents
Table 10: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 1998
Cost Category Ford Carter Reagan Bush Widows Total Pensions
Benefits for former presidents pensions $150,950 $150,950 $150,950 $150,950
$20,000 $623,800 Office staff
Personnel benefits $23,227 $5,152 $23,083 $35,048 $0 $86,510
Personnel compensation 95,795 93,864 95,391 95,491 0 380,541 Subtotal
$119,022 $99,016 $118,474 $130,539 $0 $467,051 Office
Equipment $15,211 $0 $12,812 $28,800 $0 $56,823
Equipment rental 0 00000 Other services 5,677 12,680 18,565 10,986 0 47,908
Postage 7, 148 15,869 10,003 13,386 1, 407 47,813
Printing 1,192 6,904 14,173 19,896 0 42,165
Rental payments to GSA 74,846 89,251 258,782 134,372 0 557,251
Supplies and materials 8,667 2,603 17,162 11,821 0 40,253
Telephone 16,575 21,664 11,509 16,054 0 65,802
Transportation of things 0 04060 0406 Travel 38,351 0 1,192 47,187 0 86,730
Subtotal $167,667 $148,971 $344,604 $282,502 $1,407 $945,151 Total $437,639
$398,937 $614,028 $563,991 $21,407 $2,036,002
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 30 GAO- 01- 983 Former Presidents
Table 11: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 1997
Cost Category Ford Carter Reagan Bush Widows Total Pensions
Benefits for former presidents pensions $148,400 $148,400 $148,400 $148,400
$20,000 $613,600 Office staff
Personnel benefits $20,880 $4,788 $22,817 $34,867 $0 $83,352
Personnel compensation 95,136 93,961 95,645 93,051 0 377,793 Subtotal
$116,016 $98,749 $118,462 $127,918 $0 $461,145 Office
Equipment $10,037 $14,819 $16,446 $14,689 $0 $55,991
Equipment rental 1,229 0 0 0 0 1,229
Other services 3,430 12,151 15,366 13,916 0 44,863
Postage 6, 711 17,305 11,401 12,956 1, 300 49,673
Printing 2,336 4,433 10,103 1, 319 0 18,191
Rental payments to GSA 74,949 89,373 269,243 134,557 0 568,122
Supplies and materials 10,661 4, 880 14,086 7, 981 0 37,608
Telephone 18,563 18,167 5, 137 17,122 0 58,989
Transportation of things 0 0 097097 Travel 39,789 0 242 53,343 0 93,374
Subtotal $167,705 $161,128 $342,024 $255,980 $1,300 $928,137 Total $432,121
$408,277 $608,886 $532,298 $21,300 $2,002,882
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 31 GAO- 01- 983 Former Presidents
Table 12: Expenditures Under the Former Presidents Act, by Cost Category, by
Former President and Widows, Fiscal Year 1996
Cost Category Ford Carter Reagan Bush Widows Total Pensions
Benefits for former presidents pensions $148,400 $148,400 $148,400 $148,400
$20,000 $613,600 Office Staff
Personnel benefits $23,087 $4,747 $23,308 $36,652 $0 $87,794
Personnel compensation 96,000 92,942 91,217 112,019 0 392,178 Subtotal
$119,087 $97,689 $114,525 $148,671 $0 $479,972 Office
Equipment $4,536 $1,304 $0 $7,198 $0 $13,038
Equipment rental 960 0 0 0 0 960
Other services 6,708 5,314 11,206 4, 926 0 28,154
Postage 6, 189 25,213 15,149 18,351 1, 196 66,098
Printing 511 1,440 17,419 9, 868 0 29,238
Rental payments to GSA 74,949 89,373 269,242 134,557 0 568,121
Supplies and Materials 6,768 6,504 18,740 8, 851 0 40,863
Telephone 17,474 19,588 10,090 13,160 0 60,312
Transportation of things 0 0 836 605 0 1,441
Travel 44,506 0 0 45,865 0 90,371 Subtotal $162,601 $148,736 $342,682
$243,381 $1,196 $898,596 Total $430,088 $394,825 $605,607 $540,452 $21,196
$1,992,168
Source: GSA officials.
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 32 GAO- 01- 983 Former Presidents
Table 13: Former Presidents, Wives, Widows, and Minor Children Protected by
the Secret Service, Fiscal Years 1977- 2000
FY 1977 FY 1978 FY 1979
Mrs. Truman Mrs. Eisenhower John Kennedy, Jr. Mrs. Johnson Former President
Nixon Mrs. Nixon Former President Ford Mrs. Ford Susan Ford
Mrs. Truman Mrs. Eisenhower Mrs. Johnson Former President Nixon Mrs. Nixon
Former President Ford Mrs. Ford
Mrs. Truman Mrs. Eisenhower Mrs. Johnson Former President Nixon Mrs. Nixon
Former President Ford Mrs. Ford
FY 1980 FY 1981 FY 1982
Mrs. Truman Mrs. Eisenhower Mrs. Johnson Former President Nixon Mrs. Nixon
Former President Ford Mrs. Ford
Mrs. Truman Mrs. Johnson Former President Nixon Mrs. Nixon Former President
Ford Mrs. Ford Former President Carter Mrs. Carter Amy Carter
Mrs. Truman Mrs. Johnson Former President Nixon Mrs. Nixon Former President
Ford Mrs. Ford Former President Carter Mrs. Carter Amy Carter
FY 1983 FY 1984 FY 1985
Mrs. Truman Mrs. Johnson Former President Nixon Mrs. Nixon Former President
Ford Mrs. Ford Former President Carter Mrs. Carter Amy Carter
Mrs. Johnson Former President Nixon Mrs. Nixon Former President Ford Mrs.
Ford Former President Carter Mrs. Carter
Mrs. Johnson Former President Nixon a Mrs. Nixon a Former President Ford
Mrs. Ford Former President Carter Mrs. Carter
FY 1986 FY 1987 FY 1988
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan
Appendix I: Total Expenditures Associated With Former Presidents, Fiscal
Years 1977 to 2000
Page 33 GAO- 01- 983 Former Presidents
FY 1989 FY 1990 FY 1991
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan
FY 1992 FY 1993 FY 1994
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
FY 1995 FY 1996 FY 1997
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
FY 1998 FY 1999 FY 2000
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush
Mrs. Johnson Former President Ford Mrs. Ford Former President Carter Mrs.
Carter Former President Reagan Mrs. Reagan Former President Bush Mrs. Bush a
Protection ended on July 31, 1985, at the request of former President Nixon.
Source: Secret Service officials.
Appendix II: Scope and Methodology Page 34 GAO- 01- 983 Former Presidents
To answer the first objective, which updates the cost information contained
in our 1988 report, we obtained from GSA and Secret Service data on the
expenditures for former presidents for fiscal years 1977 through 2000. We
did not independently verify the information they provided.
To determine the size of each office and how the space is used, such as a
presidential suite, general office space, or other uses, we reviewed GSA
files, toured each of the former presidents? offices, and interviewed GSA
officials and officials representing each former president. GSA provided us
with information regarding the amount of space utilized for specific
purposes, such as the size of each former president?s personal office. As
you requested, all space measurements are reported in usable square feet.
GSA defines usable square feet as the area where a tenant normally houses
personnel and/ or furniture. It does not include any share of a building?s
support or common- use areas, such as elevator lobbies, building corridors,
or mechanical rooms. We did not independently verify the space measurements.
To determine if there was other federal space associated with the former
presidents? offices, we asked GSA officials for information about whether
other federal space was associated with the former president?s office.
To determine if the offices contain any special amenities that could affect
rental cost, we toured each of the former presidents? offices and
interviewed GSA leasing officials about factors that could affect rental
costs. Our conclusions about whether or not the offices contained any
unusual build- out items or special amenities not generally found in
commercial office space are based upon visits we made to the offices of the
Secretaries of Labor and Transportation and our audit experience dealing
with GSA space issues. GSA leasing officials provided information on the
rental cost of comparable properties. We did not independently verify that
information. We gathered information on how GSA determines its rental
charges. To determine if the former presidents? office rental rates were in
line with prevailing rental rates, we asked GSA to provide rental rates for
comparable properties located near each former president?s office. We did
not independently verify the information provided by GSA. However, we did
review the market survey GSA had contracted for in regard to locating
comparable office space for former President Ford?s office and any
information provided by GSA officials regarding comparable office space for
the other former presidents.
To determine the number of staff utilized by each office, and from which
entities the staff received compensation, we reviewed GSA files dealing
Appendix II: Scope and Methodology
Appendix II: Scope and Methodology Page 35 GAO- 01- 983 Former Presidents
with federal compensation for these staffs, interviewed staff members from
each former president?s office, and obtained compensation data on all staff
from a representative at each office. We did not obtain the source documents
or independently verify that data. To determine if the staff was involved
with political fund- raising, we asked each former president?s chief of
staff or other representative whether their staffs were involved with
political fund- raising. We did not independently verify their response.
To determine what involvement, if any, other persons or entities have had
with each of the former presidents? offices, we interviewed staff of each of
the former presidents? offices.
In addition to reviewing GSA records, we also researched applicable laws
dealing with former presidents and discussed these laws with GSA and Secret
Service officials.
We requested comments on a draft of this report from Administrator of GSA,
the Secretary of the Treasury, and former Presidents Bush, Carter, Clinton,
Ford, and Reagan. We received written comments from GSA, the Secret Service,
a Treasury bureau, former President Carter and former President Clinton?s
Chief of Staff. We also received oral comments from the Chiefs of Staff for
former Presidents Bush, Ford, and Reagan. Their comments have been
incorporated, as appropriate, in this report.
We conducted our review at the following locations: GSA offices in
Washington, D. C.; Atlanta, GA; Houston, and Ft. Worth, TX;
New York City, NY, and San Francisco, CA; Secret Services office in
Washington, D. C., and Former President Bush?s office in Houston, TX;
former President Carter?s
office in Atlanta, GA; former President Clinton?s temporary office in
Washington, D. C., and the space leased by GSA for his office in New York
City, NY, former President Ford?s office in Rancho Mirage, CA; and former
President Reagan?s office in Los Angeles, CA.
We conducted our work between March and August 2001 in accordance with
generally accepted government auditing standards.
(393017)
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