If I have an officer in a building; can he issue orders? Or is he counted as being in a vehicle and therefore unable to tell his men what to do?

The common sense side of me says he should be able to; no officer in his right mind stands out in the open when there's a bunker available and they still issue tactical orders to their men/women.
The GW RAW side of me reads it as a 'no' since the above and GW don't sit well together.