B-117876, APRIL 16, 1954, 33 COMP. GEN. 470

B-117876, APRIL 16, 1954, 33 COMP. GEN. 470

STORAGE - HOUSEHOLD EFFECTS - MILITARY, NAVAL, ETC., PERSONNEL - NOT INCIDENT TO TRANSPORTATION UNDER PARAGRAPH 8007-6, JOINT TRAVEL REGULATIONS, STORAGE OF HOUSEHOLD EFFECTS OF MEMBER OF UNIFORMED SERVICES ORDERED TO TEMPORARY DUTY WITHOUT RETURN TO OLD STATION IS LIMITED TO STORAGE IN GOVERNMENT OWNED FACILITIES, OR TO TEMPORARY STORAGE IN COMMERCIAL FACILITIES, SUBJECT TO CHECK AGE IN THE MEMBER'S PAY ACCOUNT SHOULD SUCH ORDERS NOT BE FOLLOWED BY ORDERS ASSIGNING A NEW PERMANENT STATION. THE PURPOSE OF PARAGRAPH 8005-1 (4), JOINT TRAVEL REGULATIONS, IS TO AUTHORIZE LOCAL HAULING (INTRACITY) OF HOUSEHOLD EFFECTS OF MEMBERS OF THE UNIFORMED SERVICES INCIDENT TO PERMANENT CHANGE OF STATION WHERE NO ENTITLEMENT TO TRANSPORTATION OF HOUSEHOLD EFFECTS EXISTS BECAUSE THE FORMER PERMANENT STATION AND THE NEW STATION ASSIGNED, OR THE HOME SELECTED BY THE MEMBER UPON RETIREMENT OR BY MEMBER'S DEPENDENTS UPON DEATH, ARE IN THE SAME METROPOLITAN AREA, AND THEREFORE UNDER THE SAID SECTION INTRACITY DRAYAGE MAY NOT BE CONSIDERED SHIPMENT SO AS TO AUTHORIZE TEMPORARY STORAGE OF HOUSEHOLD EFFECTS INCIDENT TO SUCH DRAYAGE. WHEN THE HOUSEHOLD EFFECTS OF A MEMBER OF THE UNIFORMED SERVICES HAVE BEEN PLACED IN TEMPORARY COMMERCIAL STORAGE INCIDENT TO PERMANENT CHANGE OF STATION ORDERS UNDER CONDITIONS WHICH PROPERLY MAY BE CERTIFIED BY APPROPRIATE AUTHORITY HAVING KNOWLEDGE OF THE FACTS AS ENTITLING THE OWNER TO SUCH STORAGE, CHECK AGE OF MEMBER'S PAY ACCOUNT FOR STORAGE CHARGES INCURRED PRIOR TO THE MODIFICATION OR CANCELLATION OF THE INITIAL ORDERS IS NOT REQUIRED. WHEN, INCIDENT TO PERMANENT CHANGE OF STATION ORDERS, THE HOUSEHOLD EFFECTS OF A MEMBER OF THE UNIFORMED SERVICES ARE PLACED IN STORAGE AT THE POINT OF ORIGIN SOLELY UPON OWNER'S RESPONSIBILITY WITH INTENTION OF MAKING SHIPMENT UNDER SUCH ORDERS, AND NO SHIPMENT IS EFFECTED, NO PART OF SUCH STORAGE MAY BE REGARDED AS TEMPORARY STORAGE AT GOVERNMENT EXPENSE, IRRESPECTIVE OF MEMBER'S INTENTIONS AT TIME OF STORAGE. WHEN, INCIDENT TO PERMANENT CHANGE OF STATION ORDERS, THE HOUSEHOLD EFFECTS OF A MEMBER OF THE UNIFORMED SERVICES ARE PLACED IN STORAGE AT POINT OF ORIGIN BECAUSE OF CONDITIONS EXISTING AT THE CONTEMPLATED DESTINATION WHICH ARE KNOWN TO, AND MAY BE CERTIFIED TO, BY APPROPRIATE AUTHORITY AS WARRANTING TEMPORARY STORAGE, AND NO SHIPMENT ACTUALLY IS MADE BECAUSE THE CONDITIONS AT DESTINATION, IN FACT WERE NOT TEMPORARY, ANY ADVANCES ON ACCOUNT OF SUCH STORAGE SHOULD BE CHECKED IN OWNER'S PAY ACCOUNT. WHEN, INCIDENT TO PERMANENT CHANGE OF STATION ORDERS, THE HOUSEHOLD EFFECTS OF A MEMBER OF THE UNIFORMED SERVICES ARE PLACED IN STORAGE AT POINT OF ORIGIN BECAUSE CONDITIONS AT THE PREDETERMINED DESTINATION WARRANTING TEMPORARY STORAGE AT GOVERNMENT EXPENSE REQUIRE DELAY IN SHIPMENT, AND SHIPMENT TO SUCH DESTINATION SUBSEQUENTLY IS MADE, THE FACT THAT THE CONDITIONS WHICH NECESSITATED STORAGE DID NOT ABATE WITHIN SIX MONTHS (MAXIMUM TEMPORARY STORAGE PERIOD) WOULD NOT OPERATE TO DEPRIVE OWNER OF THE MAXIMUM TEMPORARY STORAGE AUTHORIZED BY THE JOINT TRAVEL REGULATIONS.

ASSISTANT COMPTROLLER GENERAL WEITZEL TO THE SECRETARY OF THE NAVY, APRIL 16, 1954:

REFERENCE IS MADE TO YOUR LETTER OF NOVEMBER 25, 1953, REQUESTING DECISION AS TO WHETHER TEMPORARY STORAGE OF HOUSEHOLD EFFECTS OF MEMBERS OF THE UNIFORMED SERVICES IS AUTHORIZED UNDER THE VARIOUS CIRCUMSTANCES SET FORTH IN AN ENCLOSED LETTER DATED JULY 7, 1953, FROM THE CHIEF, BUREAU OF SUPPLIES AND ACCOUNTS.

THE QUESTIONS POSED BY THE CHIEF OF THE BUREAU OF SUPPLIES AND ACCOUNTS ARE IN CONNECTION WITH THE DECISION OF THIS OFFICE DATED MARCH 27, 1953, B -113278, 32 COMP. GEN. 410, ON WHICH IT WAS HELD THAT PARAGRAPH 8006-1 OF THE JOINT TRAVEL REGULATIONS, ISSUED PURSUANT TO THE AUTHORITY CONTAINED IN SECTION 303 (C) OF THE CAREER COMPENSATION ACT OF 1949, 63 STAT. 814, MUST BE INTERPRETED AS AUTHORIZING TEMPORARY STORAGE OF HOUSEHOLD EFFECTS AT PUBLIC EXPENSE ONLY WHEN NECESSARY IN CONJUNCTION WITH ONE OR MORE OF THE SEVERAL STAGES OF TRANSPORTATION SET OUT IN SAID REGULATIONS, SUCH NECESSITY TO BE CERTIFIED TO BY PROPERLY DESIGNATED AUTHORITY HAVING KNOWLEDGE OF THE FACTS AND CIRCUMSTANCES, BEYOND CONTROL OF THE OWNER OF THE EFFECTS, UNDER WHICH THEY WERE STORED, WHICH CIRCUMSTANCES WOULD NOT INCLUDE, AMONG OTHER THINGS, A MERE REQUEST BY AN OWNER THAT HIS EFFECTS BE PLACED IN STORAGE PENDING SUCH FUTURE DISPOSITION AS HE MAY DESIRE.

THE CONCLUSION THAT THE REGULATIONS IN QUESTION MUST BE INTERPRETED AS STATED WAS BASED ON THE FUNDAMENTAL RULE THAT REGULATIONS OF EXECUTIVE DEPARTMENTS MUST NOT BE INCONSISTENT WITH LAW. THE CITED STATUTE CLEARLY DID NOT AUTHORIZE TEMPORARY STORAGE AS A SERVICE SEPARATE AND DISTINCT FROM TRANSPORTATION, BUT ONLY AS AN INCIDENCE OF TRANSPORTATION. THIS SEEMS OBVIOUS SINCE STORAGE OF HOUSEHOLD EFFECTS DENOMINATED SIMPLY AS TEMPORARY STORAGE, WHILE DEFINITELY INTENDED TO BE TRANSITORY OR FOR A LIMITED TIME ONLY, REMAINS UNCERTAIN AS TO DURATION, AND CAN BE MADE CERTAIN IN ANY GIVEN CASE ONLY UPON THE HAPPENING OF THE MAJOR RELATED EVENT, THAT IS, THE TRANSPORTING OF SUCH EFFECTS FROM OLD TO NEW STATION, OR BETWEEN OTHER POINTS, IN CONNECTION WITH AN ORDERED CHANGE OF STATION.

THE CLAIM CONSIDERED IN THE DECISION OF MARCH 27, 1953, CONCERNED HOUSEHOLD EFFECTS WHICH, UPON RELEASE OF THE OWNER FROM ACTIVE DUTY ON DECEMBER 20, 1946, WERE PLACED IN STORAGE HERE IN WASHINGTON, D.C., WHERE THEY REMAINED FOR ALMOST SIX YEARS OR UNTIL SEPTEMBER 12, 1952, WHEN THEY WERE HAULED TO THE OWNER'S RESIDENCE INCIDENT TO ORDERS OF AUGUST 20, 1951, DIRECTING HIM TO REPORT TO THE COMMANDER, MILITARY SEA TRANSPORTATION SERVICE, WASHINGTON, D.C., FOR ACTIVE DUTY. THIS CLAIM WAS DISALLOWED BY GENERAL ACCOUNTING OFFICE SETTLEMENT OF SEPTEMBER 25, 1952. CLAIMANT'S REQUEST FOR RECONSIDERATION OF THE SETTLEMENT WAS FORWARDED HERE THROUGH THE JUDGE ADVOCATE GENERAL OF THE NAVY BY LETTER OF NOVEMBER 20, 1952, FROM THE CHIEF, BUREAU OF SUPPLIES AND ACCOUNTS RECOMMENDING, IN SUBSTANCE, THAT SIX MONTHS OF THE SIX-YEAR PERIOD OF STORAGE BE VIEWED AS TEMPORARY STORAGE INCIDENT TO CLAIMANT'S ORDERS OF AUGUST 20, 1951, AND THAT HE BE REIMBURSED TO THAT EXTENT FOR THE EXPENSE OF STORING HIS EFFECTS SINCE HIS RELEASE FROM ACTIVE DUTY IN 1946. IN URGING ALLOWANCE OF THE CLAIM IT WAS CONTENDED THAT TO DENY TEMPORARY STORAGE EXCEPT AS AN INCIDENCE OF TRANSPORTATION WOULD INFLUENCE OWNERS TO MAKE UNNECESSARY SHIPMENTS IN ORDER TO OBTAIN STORAGE. AS AN EXAMPLE OF THIS THERE WAS PRESENTED THE HYPOTHETICAL CASE OF AN OFFICER WHO HAVING BEEN ORDERED TO MAKE A PERMANENT CHANGE OF STATION IS UNCERTAIN AT TIME OF DETACHMENT WHERE HE WANTS HIS EFFECTS SHIPPED. IT WAS URGED THAT IF SUCH AN OFFICER WERE FURNISHED TEMPORARY STORAGE AT HIS OLD STATION, IRRESPECTIVE OF WHETHER THE EFFECTS SUBSEQUENTLY WERE SHIPPED INCIDENT TO SUCH CHANGE OF STATION, THE DIFFERENCE BETWEEN THE COST OF STORAGE AND THE COST OF SHIPPING ALL OR A LARGE PART OF HIS EFFECTS WOULD BE SAVED SHOULD HE FIND UPON ARRIVING AT HIS NEW STATION THAT HE WAS ASSIGNED FURNISHED GOVERNMENT QUARTERS, OR THAT QUARTERS AVAILABLE FOR RENT WOULD ACCOMMODATE BUT A FRACTION OF HIS HOUSEHOLD EFFECTS. IF, ON THE OTHER HAND, SUCH UNQUALIFIED TEMPORARY STORAGE AT ORIGIN WERE DENIED, THE OFFICER WOULD BE FORCED TO MAKE THE OTHERWISE UNNECESSARY SHIPMENT IN ORDER TO AVAIL HIMSELF OF STORAGE RIGHTS. AN ALMOST IDENTICAL CONTENTION IS AGAIN ADVANCED BY THE CHIEF, BUREAU OF SUPPLIES AND ACCOUNTS, IN HIS PRESENT LETTER OF JULY 7, 1953.

IN VIEW OF THE COMPARATIVELY SHORT PERIOD OF STORAGE WHEN RELATED TO THE LENGTH OF THE TOUR OF DUTY NORMALLY INVOLVED IN A PERMANENT CHANGE OF STATION, ANY CONTENTION THAT TEMPORARY STORAGE, EVEN IF PERMISSIBLE UNDER THE STATUTE, WOULD SERVE IN MORE THAN A RELATIVELY FEW CASES AS A SUBSTITUTE FOR TRANSPORTATION, RATHER THAN MERELY AS AN ADDITIONAL SERVICE IN CONNECTION WITH EFFECTS WHICH NONETHELESS SUBSEQUENTLY WOULD BE SHIPPED UNDER THE SAME CHANGE OF STATION ORDERS, WOULD APPEAR TO BE OF DOUBTFUL MERIT. HOWEVER, BE THAT AS IT MAY, AS WAS INDICATED IN THE DECISION OF MARCH 27, 1953, AND PREVIOUS DECISIONS OF THIS OFFICE, RECEIPT OF CHANGE OF STATION ORDERS ALONE IS NOT SUFFICIENT TO ENTITLE AN OFFICER TO SO- CALLED TEMPORARY STORAGE OF HIS EFFECTS AT GOVERNMENT EXPENSE. NEITHER IS MERE TRANSPORTATION OF AN OFFICER'S EFFECTS FOLLOWING ORDERS TO MAKE A PERMANENT CHANGE OF STATION SUFFICIENT TO ENTITLE HIM TO SUCH STORAGE. THERE FIRST MUST ARISE A NECESSITY FOR TEMPORARY STORAGE ATTRIBUTABLE TO CONDITIONS, BEYOND THE CONTROL OF THE OWNER, PREVAILING DURING THE COURSE OF TRANSPORTING THE EFFECTS FROM QUARTERS AT THE OLD STATION, OR OTHER LOCATION, TO QUARTERS AT THE NEW STATION, OR OTHER DESTINATION. THUS, IT SEEMS APPARENT THAT THE OFFICER IN THE HYPOTHETICAL CASE OUTLINED ABOVE WHO WAS ASSIGNED FURNISHED QUARTERS, OR REQUIRED DELIVERY OF BUT A SMALL PART OF HIS EFFECTS AT HIS QUARTERS, WOULD NOT BE ENTITLED TO TEMPORARY STORAGE OF HIS EFFECTS AT GOVERNMENT EXPENSE, IRRESPECTIVE OF WHETHER HE STORED THEM AT HIS OLD STATION OR FIRST SHIPPED THEM TO HIS NEW STATION FOR STORAGE THERE. ALSO, AS TO SHIPMENT OF EFFECTS FOLLOWING A CHANGE OF STATION UNDER CONDITIONS WHICH PRECLUDE USE OF SUCH EFFECTS BY THE OFFICER OR HIS DEPENDENTS, IT MAY BE STATED THAT THE UNIFORMED SERVICES ARE NOT WITHOUT RESPONSIBILITY IN THE MATTER OF HOUSING MEMBERS AND THEIR DEPENDENTS. PRESUMABLY CONDITIONS CONCERNING THE AVAILABILITY OF GOVERNMENT QUARTERS OR OTHER HOUSING AT THE STATION TO WHICH ASSIGNED ARE KNOWN OR CAN BE ASCERTAINED AT THE MEMBER'S OLD STATION. HENCE, IT SEEMS REASONABLE TO ASSUME THAT WHERE THE OFFICER'S SITUATION IS SUCH THAT NO BENEFIT WOULD RESULT FROM TRANSPORTING HIS EFFECTS, AUTHORITY FOR SHIPMENT AT PUBLIC EXPENSE AS INCIDENT TO SUCH CHANGE OF STATION WOULD BE ADMINISTRATIVELY WITHHELD UNDER THE PROVISIONS OF PARAGRAPH 8150-1, JOINT TRAVEL REGULATIONS. IN THE LIGHT OF THE FOREGOING, THE QUESTIONS WILL BE ANSWERED IN THE ORDER PRESENTED.

THE FIRST QUESTION IS WHETHER UNDER PARAGRAPH 8007-6, JOINT TRAVEL REGULATIONS, A MEMBER UNDER ORDERS TO TEMPORARY DUTY WITHOUT RETURN TO OLD STATION MAY BE GRANTED TEMPORARY STORAGE OF HOUSEHOLD EFFECTS. THAT PARAGRAPH PROVIDES THAT WHEN A MEMBER IS UNDER ORDERS FROM A PERMANENT DUTY STATION TO TEMPORARY DUTY WITHOUT RETURN TO PERMANENT DUTY STATION, OR TO TEMPORARY DUTY FOR FURTHER ASSIGNMENT, HIS HOUSEHOLD GOODS WITHIN PRESCRIBED PERMANENT CHANGE OF STATION WEIGHT ALLOWANCE MAY BE PACKED, DRAYED AND PLACED IN STORAGE UNDER PARAGRAPH 8006, JOINT TRAVEL REGULATIONS, WHICH CONCERNS BOTH TEMPORARY AND NONTEMPORARY STORAGE. SINCE TEMPORARY STORAGE IS NOT AUTHORIZED INDEPENDENTLY OF TRANSPORTATION OF HOUSEHOLD EFFECTS, STORAGE UNDER SUCH ORDERS NECESSARILY IS LIMITED TO STORAGE IN GOVERNMENT-OWNED FACILITIES, OR TO TEMPORARY STORAGE IN COMMERCIAL FACILITIES SUBJECT TO CHECK AGE IN THE MEMBER'S PAY ACCOUNT SHOULD SUCH ORDERS NOT BE FOLLOWED BY ORDERS ASSIGNING A NEW PERMANENT STATION AND BY SHIPMENT OF THE STORED EFFECTS INCIDENT TO SUCH ORDERS.

THE SECOND QUESTION IS (A) WHETHER INTRACITY DRAYAGE IS CONSIDERED SHIPMENT AND (B) WHETHER THE MEMBER IS ENTITLED TO TEMPORARY STORAGE IN CONNECTION WITH AN INTRACITY MOVE UNDER PARAGRAPH 8005, JOINT TRAVEL REGULATIONS, IN CONNECTION WITH A PERMANENT CHANGE OF STATION, OR UPON DEATH OF THE OWNER. DRAYAGE OF HOUSEHOLD EFFECTS AT THE OLD PERMANENT DUTY STATION, INCIDENT TO AN ORDERED CHANGE OF STATION, TO A POINT OTHER THAN A FREIGHT TERMINAL LONG HAS BEEN AUTHORIZED AS A SERVICE IN LIEU OF DRAYAGE TO A FREIGHT TERMINAL ON CONDITION THAT SUCH SERVICE WOULD NOT BE RENDERED A SECOND TIME UNDER THE SAME ORDERS. HOWEVER, SUCH DRAYAGE IS NOT CONSIDERED A SHIPMENT OF THE EFFECTS, AND HENCE DOES NOT CONSTITUTE A BAR TO SUBSEQUENT TRANSPORTATION OF THE EFFECTS TO SUCH POINT AS MAY BE AUTHORIZED BY THE CHANGE OF STATION ORDERS INVOLVED. THE APPARENT PURPOSE OF PARAGRAPH 8005-1 (4), JOINT TRAVEL REGULATIONS, IS TO AUTHORIZE SIMILAR LOCAL HAULING WHERE NO ENTITLEMENT TO TRANSPORTATION OF EFFECTS EXISTS BECAUSE THE FORMER PERMANENT STATION AND THE NEW STATION ASSIGNED, OR THE HOME SELECTED BY THE MEMBER UPON HIS RETIREMENT OR BY HIS DEPENDENTS UPON HIS DEATH, ARE IN THE SAME METROPOLITAN AREA. THIS BEING THE CASE, SUCH INTRACITY DRAYAGE LIKEWISE MAY NOT BE CONSIDERED SHIPMENT. CONSEQUENTLY, TEMPORARY STORAGE IN CONNECTION WITH INTRACITY DRAYAGE IS NOT AUTHORIZED.

THE THIRD QUESTION IS (A) WHETHER A MEMBER WHO RECEIVES PERMANENT CHANGE OF STATION ORDERS AND PLACES HIS HOUSEHOLD EFFECTS IN TEMPORARY STORAGE PENDING SHIPMENT AND WHOSE ORDERS ARE CANCELLED OR MODIFIED, RESULTING IN NO SHIPMENT BEING MADE, SHOULD BE CHECKED FOR THE STORAGE CHARGES UNDER THE INITIAL ORDERS; AND (B) IF THE ANSWER IS IN THE AFFIRMATIVE, WHETHER THE MEMBER WOULD BE ENTITLED TO REIMBURSEMENT WHEN SHIPMENT IS MADE UNDER THE NEW ORDERS. WHEN HOUSEHOLD EFFECTS HAVE BEEN PLACED IN TEMPORARY COMMERCIAL STORAGE INCIDENT TO PERMANENT CHANGE OF STATION ORDERS UNDER CONDITIONS WHICH PROPERLY MAY BE CERTIFIED BY APPROPRIATE AUTHORITY HAVING KNOWLEDGE OF THE FACTS AS ENTITLING THE OWNER TO SUCH STORAGE, CHECK AGE OF HIS PAY ACCOUNT FOR STORAGE CHARGES SO INCURRED PRIOR TO THE MODIFICATION OR CANCELLATION OF THE INITIAL ORDERS WOULD NOT BE REQUIRED.

THE FOURTH QUESTION IS (A) WHETHER A MEMBER WHO PLACES HIS EFFECTS IN TEMPORARY STORAGE WITH EVERY INTENTION OF MAKING SHIPMENT UNDER PERMANENT CHANGE OF STATION ORDERS, BUT UPON THE EXPIRATION OF SIX MONTHS DOES NOT DO SO BECAUSE OF UNAVAILABILITY OF HOUSING OR OTHER CIRCUMSTANCES BEYOND HIS CONTROL, SHOULD BE CHECKED FOR THE 6-MONTHS' STORAGE; AND (B) WHETHER, IF SO CHECKED AND SHIPMENT EVENTUALLY IS MADE, HE WOULD BE ENTITLED TO REIMBURSEMENT FOR THE INITIAL 6-MONTHS' STORAGE. WHERE HOUSEHOLD EFFECTS ARE PLACED IN STORAGE AT POINT OF ORIGIN SOLELY UPON THE OWNER'S OWN RESPONSIBILITY, AND NO SHIPMENT IS EFFECTED, NO PART OF SUCH STORAGE MAY BE REGARDED AS TEMPORARY STORAGE AT GOVERNMENT EXPENSE, IRRESPECTIVE OF HIS INTENTIONS AT TIME OF STORAGE. WHERE EFFECTS ARE PLACED IN STORAGE AT POINT OF ORIGIN SOLELY UPON THE OWNER'S RESPONSIBILITY, AND NO SHIPMENT IS EFFECTED, NO PART OF SUCH STORAGE MAY BE REGARDED AS TEMPORARY STORAGE AT GOVERNMENT EXPENSE, IRRESPECTIVE OF HIS INTENTIONS AT TIME OF STORAGE. WHERE EFFECTS ARE PLACED IN STORAGE AT ORIGIN BECAUSE OF CONDITIONS EXISTING AT THE CONTEMPLATED DESTINATION WHICH ARE KNOWN TO AND MAY BE CERTIFIED TO BY APPROPRIATE AUTHORITY AS WARRANTING TEMPORARY STORAGE, AND NO SHIPMENT ACTUALLY IS MADE BECAUSE THE CONDITIONS AT DESTINATION, SUPPOSEDLY TEMPORARY SO AS TO WARRANT TEMPORARY STORAGE AT ORIGIN, IN FACT WERE NOT TEMPORARY, ANY ADVANCES ON ACCOUNT OF SUCH STORAGE SHOULD BE CHECKED IN THE OWNER'S PAY ACCOUNT. WITH RESPECT TO THE OPINION EXPRESSED BY THE BUREAU OF SUPPLIES AND ACCOUNTS THAT SUCH CHECK AGES AND THE PROCESSING OF CLAIMS WILL BE ADMINISTRATIVELY COSTLY AND CUMBERSOME, IT IS NOT BELIEVED THAT, UNDER PROCEDURES DESIGNED TO FURNISH TEMPORARY STORAGE ONLY WHERE NECESSARY AS INCIDENT TO TRANSPORTATION OF HOUSEHOLD EFFECTS, THE NEED FOR CHECK AGE WILL ARISE WITH SUCH FREQUENCY AS TO BE UNDULY BURDENSOME. WHERE EFFECTS ARE PLACED IN STORAGE AT ORIGIN BECAUSE CONDITIONS AT THE PREDETERMINED DESTINATION WARRANTING TEMPORARY STORAGE AT GOVERNMENT EXPENSE REQUIRE DELAY IN SHIPMENT, AND SHIPMENT TO SUCH DESTINATION SUBSEQUENTLY IS MADE, THE FACT THAT THE CONDITIONS WHICH NECESSITATED STORAGE DID NOT ABATE WITHIN SIX MONTHS WOULD NOT OPERATE TO DEPRIVE THE OWNER OF THE MAXIMUM TEMPORARY STORAGE AUTHORIZED BY THE REGULATIONS.