THE GENERAL ACCOUNTING OFFICE (GAO) FINDS THAT THE LACK OF AN ENTERPRISING GOVERNMENT CONSERVATION PROGRAM STEMS LARGELY FROM THE DEPARTMENT OF ENERGY'S (DOE'S) FAILURE TO INITIATE A PROGRAM. LACK OF ADMINISTRATIVE COMMITMENT AND SUPPORT FOR A STRONG PROGRAM, AND FEDERAL AGENCY RESISTANCE TO DOE'S ATTEMPTS TO ESTABLISH A MEANINGFUL PROGRAM ALSO ARE PROBLEMS. THE DOE HAS NEITHER DEVELOPED ENERGY CONSERVATION PLANS FOR BUILDINGS AS REQUIRED BY LEGISLATION AND EXECUTIVE ORDERS NOR USED FEDERAL GUIDELINES IN DEVELOPING OVERALL ENERGY CONSERVATION PLANS. DOE'S FEDERAL ENERGY MANAGEMENT PROGRAM CANNOT HANDLE A COMPREHENSIVE PROGRAM BECAUSE OF INSUFFICIENT RESOURCES AND ORGANIZATIONAL PROBLEMS. ALTHOUGH THE GOVERNMENT HAS REDUCED ITS ENERGY USE, MOST OF THESE REDUCTIONS WERE CONCEIVED IN HASTE BETWEEN 1973 AND 1974 AND HAVE BEEN LARGELY INEFFECTIVE. CONSUMPTION OF GASOLINE HAS INCREASED 18 PERCENT SINCE 1974, WHILE USE OF COAL (A MORE PLENTIFUL ENERGY SOURCE) DECREASED 27 PERCENT. THE CONGRESS SHOULD (1) ENACT LEGISLATION PLACING PRIORITY ON ENERGY USE AND MANAGEMENT; (2) REQUIRE THE PRESIDENT TO FURTHER DEVELOP, DEFINE, AND IMPLEMENT AN AGGRESSIVE FEDERAL ENERGY MANAGEMENT PROGRAM; (3) REQUIRE THE PRESIDENT TO COMPLETE ACTION ON THE ENERGY PROGRAM WITHIN 18 MONTHS AFTER LEGISLATION IS ENACTED; AND (4) PROVIDE TO DOE CENTRAL FUNDING AND CONTROL OVER ENERGY CONSERVATION FUNDS AND RESTRICT SUCH FUNDS TO ENERGY CONSERVATION USE. IN ADDITION, THE PRESIDENT SHOULD NOT WAIT FOR CONGRESSIONAL ACTION SPECIFIED IN THIS REPORT, BUT SHOULD ISSUE A NEW EXECUTIVE ORDER INCORPORATING THE ENERGY PROGRAM'S POLICY STATEMENT. AGENCY COMMENTS ON THE GAO REPORT ARE APPENDED, ALONG WITH GAO REPORT SUMMARIES. (MHP)