SuStainaBiLitY MattERS
 
 

 

 

 

 

 

U.S. General Services Administration 

Public Buildings Service 

Office of Applied Science 

1800 F Street, NW 

Washington, DC 20405 

For more information: 

www.gsa.gov 
SuStAiNABiLitY MAttERS
 
U.S. General Services Administration 

2008 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Table of conTenTs 1 meSSAGe from the ActinG AdminiStrAtor 

3 meSSAGe from the commiSSioner 

4 introdUction 

8 the case for Sustainability 

CASE StuDY: SAN FRANCiSCO FEDERAL BuiLDiNg, SAN FRANCiSCO, CALiFORNiA 

34 the Greenest Alternative 

CASE StuDY: HOWARD M. MEtzENBAuM u.S. COuRtHOuSE, CLEvELAND, OHiO 

52 cost, Value, and Procurement of Green Buildings 

CASE StuDY: EPA REgiON 8 HEADquARtERS, DENvER, COLORADO 

sTraTegies 

74 energy efficiency 

CASE StuDY: BiSHOP HENRY WHiPPLE FEDERAL BuiLDiNg, FORt SNELLiNg, MiNNESOtA 

100 Site and Water 

CASE StuDY: NOAA SAtELLitE OPERAtiONS FACiLitY, SuitLAND, MARYLAND 

118 indoor environmental Quality 

CASE StuDY: ALFRED A. ARRAj u.S. COuRtHOuSE, DENvER, COLORADO 

140 materials 

CASE StuDY: CARL t. CuRtiS MiDWESt REgiONAL HEADquARtERS, OMAHA, NEBRASkA 

156 operations and maintenance 

CASE StuDY: jOHN j. DuNCAN FEDERAL BuiLDiNg, kNOxviLLE, tENNESSEE 

182 Beyond GSA: the Greening of America 

	 CONvERSAtiONS AND REFLECtiONS: BOB BERkEBiLE, FAiA, AND BOB FOx, AiA 

194 moving forward: the challenges Ahead 

	 

204 GSA Leed BUiLdinGS 

211 AcknoWLedGementS 
 

 

 

 

tHE HuMAN RACE
 

iS CHALLENgED MORE tHAN EvER BEFORE
 

tO DEMONStRAtE OuR MAStERY—
 

NOt OvER NAtuRE,
 

But OuRSELvES.
 

rachel carson 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Guiding Principles for federal 

Leadership in high-Performance 

and Sustainable Buildings: 

• employ integrated design Principles 

• optimize energy Performance 

• Protect and conserve Water 

• enhance indoor environmental Quality 

• reduce environmental impact 

of materials 

Message froM The acTing adMinisTraTor 

For more than 30 years, the general Services Administration (gSA) has set 

the standard for sustainable, high-quality workplaces that improve productivity, 

revitalize communities, encourage environmental responsibility and promote 

intelligent decision making with respect to energy use. 

Sustainability has been an evolving theme for gSA beginning with energy 

efficiency initiatives, resulting from the oil embargo, in the early 1970s. 

gSA, working with the Centers for Disease Control and Prevention, helped 

develop many of the building protocols for healthy indoor air quality. in the 

early 1990s, gSA created the first-ever program for reducing the toxicity of 

cleaning products. in 2001, gSA was the first Federal agency to join the 

u.S. green Building Council, and continues to play an active role to this day. 

gSA’s successes—from 30% energy use reduction at 12% less cost than 

private sector buildings to 24 LEED-rated buildings in six years—stem from 

the seamless integration of sustainable design principles into the design, 

construction and renovation of our buildings and build-to-suit leases through 

gSA’s Design Excellence program. From requirements through construction, 

occupancy and use, gSA is committed to following the guiding Principles for 

Federal Leadership in High-Performance and Sustainable Buildings. 

Changing mindsets to embrace a whole building integrated design approach 

is a challenge, but this collaborative process allows creative solutions that 

are economical, environmental and innovative. gSA has just begun that, both 

internally and with the consultant teams we hire. in doing so, we will continue 

our impressive record of sustainability excellence and achievement. 

david L. Bibb 

Acting Administrator, u.S. general Services Administration 

gSA Senior Environmental Official 

1 sustainability matters 
above:	 PeAce Arch LAnd Port of entry 

BLAine, WAShinGton 2 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Sustainability Goals: 

• Sustainable design practices in 

all major projects 

• reduce energy use by 30% 

in 10 years 

• exceed AShrAe energy standards 

by at least 30% 

• reduce fossil fuel-generated energy 

by 55% now and 100% by 2030 

Message froM The coMMissioner 

gSA’s Public Buildings Service (PBS)—landlord for the civilian Federal 

government—has an opportunity and a responsibility to lead by example and 

to demonstrate how to create sustainable buildings by intelligently integrating 

energy efficiency and environmentally sound decisions into building designs 

while still creating places where people can work effectively. 

Sustainability in building design, construction, and operation, is fundamental 

to and indivisible from our core agency mission of providing superior workplaces 

for Federal customer agencies at best value to the American taxpayer. We want 

to be part of transforming the building industry so that “green” is the only way 

of doing business. 

this book provides examples of our progress toward sustainability to date. 

it is meant to inspire the people who work for and with gSA to surpass—not 

just continue—the excellent work PBS has already accomplished in meeting 

the sustainability goals of the Federal government. 

We celebrate the accomplishments recognized in this book, but merely 

continuing this good work will fall short of our needs. the Energy Policy Act 

of 2005, the President’s Executive Order 13423, “Strengthening Federal 

Environmental, Energy and transportation Management,” and the Energy 

independence and Security Act of 2007 have each raised the performance bar. 

Our task is increasingly difficult and the new goals will be tough to achieve. 

PBS builds buildings to last a century. integrating sustainability into all of 

our activities will leave a legacy for America that will outlast our buildings. 

i urge all of us to embrace these ideas and enhance them through our actions. 

david L. Winstead 

Commissioner, Public Buildings Service 

	 3 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

inTroducTion 

gSA presents this resource as an aid to improve current practices and to 

encourage continuing innovations that create and maintain sustainable work 

environments. Whatever mission a Federal agency may have, this publication 

presents an integrated approach, illustrated with numerous and various 

examples, that will improve buildings and workplaces and achieve legislative 

and executive mandates: at best value to taxpayers and without compromising 

the quality of life of future Americans. 

the book begins by setting the stage for sustainability in the Federal 

government. the second chapter, “the greenest Alternative” highlights the 

importance of the preservation of existing resources and the sustainability 

of not building at all. the third chapter addresses the value proposition 

and practical procurement practices for green buildings. the following five 

chapters offer proven examples of processes and techniques gSA can and 

should be implementing. the strategies address the broad panoply of a 

building’s lifecycle—from choosing a site through operations, maintenance 

and renovation. 

Each chapter’s content is illustrated by case studies of gSA facilities that 

emphasize the knowledge and strategies presented therein. in aggregate, 

they highlight the creativity, diligence and understanding of asset managers, 

project managers, property managers, and realty professionals. their success 

should inspire project teams to solve the new challenges we face, and improve 

each building through an integrated approach from the earliest phase. 

 
 

 

 

 

 

 

 

 

 

 

 

 

 

the book’s concluding chapters acknowledge the green movement external to 

the Federal government, its influencers and gSA’s continuing and emerging 

efforts to participate in and, in fact, lead by deed and example. 

As seen in the following charts, the world is taking notice of the urgency 

before us. global scale environmental changes demand an examination of 

current practice and a vision for the future. it is in this context that gSA 

must make operational and design decisions to continue to meet the 

mission-related needs of customer agencies. 

Changing standard practices always involves risk. But the examples 

herein contain ideas and strategies that can reduce energy consumption, 

discourage resource depletion, increase productivity, and create healthy 

work environments. this is the legacy we at gSA wish to leave behind— 

buildings of today that incorporate our hopes for tomorrow. 

	 5 sustainability matters 
 

 

 

–

–

– –

1.0 200
 

150
 

0.5 100
 

50
 

0 191 

50
 

0.5 100
 

1850 1900 1950 2000
 

YEAR
 

ChAngE in TEmpERATuRE (oC)

1990 A

 

 

 

 

 

 

For the past 150 years, sea levels have mirrored 

rising surface temperature. 

Changes in global surfaCe temperature and sea level 

global Average 

Surface Temperature 

global Average 

Sea Level 

verage 

ChAngE in SEA LEvEL (mm) 

DATA FRom ThE inTERgovERnmEnTAL pAnEL on 

CLimATE ChAngE FouRTh ASSESSmEnT REpoRT— 

CLimATE ChAngE 2007: SYnThESiS REpoRT 

 
 

1,000 YEARS Ago 500 YEARS Ago 1900 ToDAY 

30 

340 

320 

300 

280 

20 

 

 

 

 

 

 

From 1800 to the present, carbon dioxide (Co2) 

has soared above previously recorded levels. 

growth in Carbon dioxide levels 

ATmoSphERiC CARbon DioxiDE (ppm) 

DATA FRom ThE CARbon DioxiDE inFoRmATion 

AnALYSiS CEnTER AT oAk RiDgE nATionAL LAboRAToRY 

bASED on AnTARCTiC iCE CoRES AnD, AFTER 1800 AD, 

FRom mAunA LoA obSERvATionS 

7 sustainability matters 
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The Case for Sustainability
 

sustainability and the federal government 

the challenge—to make 

federal buildings more 

sustainable—begins in a 

context of hundreds of 

thousands of diverse buildings, 

serving unique purposes, and 

owned by numerous agencies, 

with significant environmental 

impacts and the opportunity 

for improvement. 

FRom The Federal CommiTmenT To 

Green BuildinG: experienCes and 

expeCTaTions, 2003, oFFiCE oF ThE 

FEDERAL EnviRonmEnTAL ExECuTivE 

left:	 ThE REpETiTivE inTERpLAY oF SunShADES, 

LighT ShELvES, AnD RECESSED winDowS 

ConTRoLS DAYLighT AT ThE okLAhomA CiTY 

FEDERAL buiLDing. 

The Federal government’s environmental footprint is enormous. As the owner 

of nearly 450,000 buildings with more than 3 billion square feet of floor 

space—an area larger than the state of Nevada—the Federal government has 

both the responsibility and the unique opportunity to reduce its impact on the 

environment. Through the sustainable design, construction, operation, and 

maintenance of Federal buildings, our government can reduce the emission of 

greenhouse gases, curtail energy costs, contribute to national security by 

reducing our dependence on foreign energy sources, improve working conditions 

for its millions of employees, and perhaps most importantly, serve as a model 

for the private sector. 

Arriving at this holistic view of sustainability has taken decades—now the 

challenge is to apply its universal principles to the individual missions of every 

governmental agency. 

Also, green building and issues of sustainability have come to bear on policy 

decisions made outside the environmental arena. Energy security has become 

increasingly important to the Federal government, and in particular the 

Department of Defense—itself responsible for more than half of the government’s energy use. It was a concern of the Energy Independence and Security 

Act of 2007 and the subject of current legislative proposals. As far back as the 

oil embargo of the mid-1970s, agencies understood that reducing dependence 

on foreign oil was as much a military as an economic strategy, and that energy 

conservation could play a major role in that effort. Just as importantly, by 

spending less money on energy, the government will have more funds available 

to meet its core missions. The adoption of environmentally sound design, 

building, and maintenance practices not only makes sense for the planet, 

it also makes sense for the Federal budget and for our national security. 

9 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

The Case for Sustainability 

The U.S. General Services Administration is, therefore, committed to 

sustainable design defined by five overarching goals: 

1 Using an integrated team approach to design, construct and operate its 

buildings, 

2 Reducing the total life-cycle ownership cost of facilities, 

3 Improving energy efficiency, water conservation, and reducing material 

consumption, 

4 Providing safe, healthy, and productive built environments, 

5 Promoting excellence in environmental stewardship. 

A Short history of gSA and Sustainable practices 

GSA’s energy program began like that of many Federal agencies—as a response 

to the energy crisis of the early 1970s. Unlike the general public, however, 

whose interest in conservation waned once the crisis passed, GSA’s interest in 

sustainability grew throughout the decade. As a result, when oil prices began 

to spike again in the early 1980s, the agency was prepared. In addition to 

numerous energy-saving initiatives involving the lighting, heating, and cooling 

of its facilities, GSA also promoted water-saving programs, environmentally 

beneficial landscaping, and incorporated guidelines established by the 

Environmental Protection Agency (EPA) for the use of recycled-content and 

environmentally preferable building materials. The design of mechanical 

systems included economizers and heat recovery equipment, saving energy as 

well as enhancing indoor air quality through an increased use of outside air. 

Recognizing the impact of a healthy workplace on employee satisfaction and 

productivity, GSA developed green cleaning policies as early as 1992. 

10 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

u.s. buildings aCCount for: 

39% of total energy use 

12% of total water consumption 

8% total electricity consumption 

38% of all carbon dioxide emissions 

0% of total non-industrial waste 

CompiLED bY EpA gREEn buiLDing 

woRkgRoup 2004 

Over time, individual “best practices” within the agency were included 

in GSA’s Facilities Standards for the Public Buildings Service, the most 

comprehensive and progressive set of building standards then in existence. 

In essence, GSA had implemented a comprehensive sustainable design 

strategy for new buildings in advance of any policy directive. 

Furthermore, GSA created a strategy for the adoption of the principles of 

sustainable design, focusing on three specific goals: 1) commitment at the 

strategic level; 2) integration into current standards and processes; and 

3) gaining the support of GSA associates through training and education. 

The goal was a challenging one, and involved the design, implementation, 

and seamless integration of a sustainable design program into the day-to-day 

business practices and processes of the Public Buildings Service. 

In the late 1990s a series of Executive orders focused on “greening” the 

government laid the foundation for many of the Federal environmental policies 

in place today. Executive Order (EO) 13123 “Greening the Government through 

Efficient Energy Management,” signed in June of 1999, was the first to 

mention sustainable design. That order charged an interagency team, led by 

GSA and the Department of Defense, to define precisely what sustainable 

design and development principles would mean to the Federal government. 

The resulting six principles guided the future development of the Whole 

Building Design Guide, which emphasizes a holistic, sustainable approach to 

facilities design, construction, and maintenance. Sustainable design became an 

umbrella term encompassing all of the best environmental building strategies. 

11 sustainability matters 
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wbdg is a web based portal 

providing government and 

industry practitioners with 

access to up to date guidance 

toward sustainability. 

whole building design guide 

As they began the monumental task of upgrading criteria documents for 

the naval Facilities Engineering Command in 1997, the members and staff 

of the Sustainable buildings industry Council (SbiC) and its then Chairman, 

visionary architect and educator, Don prowler, first conceived of the on line 

resource, the whole building Design guide (wbDg). After nearly two years of 

development, the site was turned over to the national institute of building 

Sciences. it has since become the primary web based portal for architects and 

engineers in government and industry to gain access to up to date information 

on a wide range of buildings related guidance, criteria and resources. 

Design objectives, the website s first section, focuses on eight critical aspects 

for designing, delivering and operating almost any building: accessibility, 

aesthetics, cost effectiveness, functionality, historic, productivity, safety and 

security, and sustainability. Sustainability became the first of these to be fully 

developed. The original outline for the sustainability section emerged as SbiC 

worked with gSA, DoD, DoE and EpA to write the Sustainability principles 

called for in Executive order 13123. 

now updated regularly by committees of Federal agency representatives, 

the various sections of the wbDg have expanded to cover additional design 

criteria, always emphasizing an integrated whole building approach. more 

than 1 million documents are downloaded each month from the site and over 

10 million visits are expected in 2007. Access to the site is free to all. 

12 inFo: whole building Design guide – www.wbdg.org/sustainable 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

guiding prinCiples: 

i. Employ integrated Design principles 

• integrated Design 

• Commissioning 

ii. optimize Energy performance 

• Energy Efficiency 

• measurement and verification 

iii. protect and Conserve water 

• indoor water
 

• outdoor water
 

iv. Enhance indoor Environmental Quality 

• ventilation and Thermal Comfort 

• moisture Control 

• Daylighting 

• Low-Emitting materials 

• protect indoor Air Quality during Construction 

v. Reduce Environmental impact of materials 

• Recycled Content 

• biobased Content 

• Construction waste
 

• ozone Depleting Compounds
 

Following these early initiatives, GSA continued to develop and implement 

sustainable policy into the 21st century. The Energy Policy Act of 2005 

formally established the wording of EO 13123 as national policy, requiring 

all Federal agencies to apply sustainable design principles to the siting, 

design and construction of all new facilities if life-cycle cost effective. 

GSA, in partnership with the Departments of Defense and Energy and through 

the Interagency Sustainability Working Group, worked to pool the strength of 

the three agencies to support Federal construction requirements that mandated 

the incorporation of sustainable design strategies. The group identified the 

most commonly used, financially feasible and measurable strategies with the 

intention that a Memorandum of Understanding (MOU) between participating 

agencies would make them de facto standards for Federal construction. 

The office of the Federal Environmental Executive adopted the resulting 

document and its signing became a highlight of the first White House Summit 

on Sustainable Federal Buildings held January 24-25, 2006. Nineteen 

agencies signed the MOU on the first day. Exactly one year later President Bush 

signed Executive Order 13423, “Strengthening Federal Environmental, 

Energy and Transportation Management,” establishing the MOU and its 

“Guiding Principles for Federal Leadership in High Performance and 

Sustainable Buildings” as formal Federal policy. 

As Congress and the American people continue to learn of how buildings 

contribute to climate change, energy efficiency has taken on an even greater 

significance. During the 2007 Congressional session, legislators introduced 

26 pieces of legislation with the potential to affect Federal energy and 

sustainable design programs. The Energy Independence and Security Act of 

2007 (EISA 2007) is the result that codified many of the goals of EO 13423, 

and for the first time set targets for the reduction of fossil fuel-generated energy 

used by buildings. 

13 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

The Case for Sustainability 

gSA LEED buiLDingS 

SoCiAL SECuRiTY 

ADminiSTRATion (SSA) AnnEx 

WOODLAWN, MD 

LEED NC rated: Nov 19 2002 

CERTiFiED 

Sustainable Sites 4 14 

Water Efficiency 2 5 

Energy and Atmosphere 8 17 

Materials and Resources 5 13 

Indoor Environmental Quality 5 15 

Innovation and Design 2 5 

2 69 

gREEn FACTS 

25% energy usage reduction 

using thermal ice storage 

41% materials locally manufactured, 

reducing transportation impacts 

77% reuse of existing building shell 

gSA and LEED® 

In 2000, in order to objectively measure the success of its sustainable design 

achievements, GSA decided that all capital projects from 2003 on—the next 

funding cycle—would be assessed using the U.S. Green Building Council’s 

(USGBC) Leadership in Energy and Environmental Design (LEED) rating system. 

Recognizing that opportunities for sustainable practices existed in all building 

types, the agency began incorporating sustainable design principles into all 

aspects of its business processes. GSA updated leasing language to introduce 

green strategies and concepts, encouraged repair and alteration projects of all 

sizes to adopt sustainable design principles, and revised standard guidance and 

building processes to include sustainability requirements. 

The Office of Management and Budget (OMB) also sought ways to strengthen 

the Federal commitment to green buildings. In 2002, recognizing the enhanced 

asset value of better building design and construction, OMB revised Circular 

A-11, Section 55—Energy and Transportation Efficiency Management—to 

encourage Federal agencies to incorporate ENERGY STAR or LEED into design 

concepts for new construction and/or building renovations. 

In 2004, in response to concerns about the first costs of green buildings, 

GSA examined the costs of LEED certification for its most recent construction 

projects and found that LEED ratings could indeed be achieved within a 

standard GSA budget. In fact, the potential costs for either certified or silver 

LEED certification were below the 5% estimate variance normally associated 

with early conceptual cost estimates. As a result of a 2006 evaluation by GSA 

of sustainable building rating systems, the Administrator concluded that LEED 

remains the most credible rating system available to meet GSA’s needs. EISA 

2007 requires GSA to re-evaluate the rating systems every five years. 

14 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Enhancing the vision 

Support from the Administrator of GSA and the Commissioner of the Public 

Buildings Service (PBS), as well as training programs throughout all GSA regional 

offices continue to maintain and strengthen the entire agency’s commitment 

to sustainability. 

GSA’s long established emphasis on healthy and productive work environments 

is perfectly compatible with the principles of sustainable design, which, at times, 

calls for going beyond standard building codes. Whether within or in addition 

to existing design and construction guidelines, GSA’s goal has been to provide 

superior workplaces for Federal workers at the best value to the U.S. taxpayer. 

It is the position of GSA that this vision—in essence, to be the best public real 

estate organization in the world—is enhanced through its increased focus on all 

aspects of sustainability in buildings. 

design exCellenCe 

pbS initiated the Design Excellence program in 1994 to foster the creation of Federal 

buildings of enduring value and to ensure the continued viability of gSA’s existing portfolio. 

The program engages the broad and diverse spectrum of America’s most creative designers, 

engineers, and artists to deliver buildings that embody the finest design quality and enhance 

the communities in which they are built. Through its national Register of peer professionals, 

Design Excellence uses the expertise of distinguished private-sector design, art, and 

construction professionals to assist gSA’s 11 regions in creatively meeting the facility needs 

of Federal customers with buildings that gSA can effectively and efficiently own and operate. 

in 200, recognizing the importance of sustainable design, gSA added 15 of America’s most 

knowledgeable voices in this area to its peer review register. 

15 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

The Case for Sustainability 

integrated Design 

Delivery and management of buildings that accomplish the multiple goals of 

sustainability cannot reasonably result from processes that focus on single 

systems and short-term goals. From the beginning of any project, all the parties’ 

need to be involved in a structured process that ensures that the result will 

deliver performance that meets all the parties needs. The building tenants and 

their customers; the building operators; the entire design and delivery team; all 

bring crucial understanding of different aspects of building performance. 

One key to such change is an integrated design process. This is not a difficult 

concept to understand or to embrace, but, at times has proven difficult to 

practice. Nonetheless, it is the first step toward changing entrenched processes 

that tend to deliver the same limited results. 

The design charrette can be the mechanism that overcomes these obstacles 

and starts the communication process between the team members, building 

users, and project management staff. As such, it is important that all relevant 

decision makers participate. The charrette, viewed as a creative burst of energy 

that builds momentum for a project and sets it on a course to meet project 

goals, can transform a project from a static, complex problem to a successful, 

buildable plan. Usually, it is an intensely focused, multi-day session that uses 

a collaborative approach to create realistic and achievable design ideas that 

respond holistically to the issues at hand. 

1 
 17 sustainability matters

 above: ThE CApTion inFoRmATion goES hERE FoR 

ThE phoTo AT LEFT

 

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RESuLT 

CLiEnT 

The client wanted to 

optimize use 

of natural light 

in the new office building 

while containing costs. 

The result was a high-performance 

building at a lower cost, annual energy 

The architect proposed 

high performance glazing 

for the windows to 

maximize light coming into 

the building and control 

heat loss. 

ARChiTECT 

savings, and naturally lighted interior 

spaces for the building occupants. 

The mechanical engineer 

suggested smaller mechanical 

units because the building 

would be in a cooling mode 

most of the year and the 

electric light fixtures would 

be a source of heat. 

mEChAniCAL EnginEER 

The Electric utility 

Representative offered 

substantial rebates for high 

performance glass, energy 

efficient light fixtures, and 

daylight sensors. 

ELECTRiC uTiLiTY 

REpRESEnTATivE 

The electrical engineer 

suggested using fluorescent 

lamps with light sensors to 

modulate the electric light in 

proportion to available natural 

light, and then calculated 

the annual savings. 

ELECTRiCAL EnginEER 

The contractor surmised 

that the glazing 

and the lights with sensors 

would substantially increase 

the project budget. 

ConTRACToR 

After calculating the cost 

of the smaller mechanical 

units, the contractor 

determined that this 

integrated solution would 

reduce the total project cost. 

ConTRACToR 

CoLLAboRATivE
 

CREATiviTY
 

the Charrette proCess 

 

 

 

 

 

An example of the factors at play in an actual 

project, and how the presence of key players 

in one room at one time in a charrette fostered 

rapid communication and decision making. 

ExAmpLE bY nAThAn gooD, AiA, iiDAA, Ch2m hiLL 17 sustainability matters 
-

-

-

-

-

-

national Average 

0 

10% 

20% 

30% 

40% 

50% 

REDuCTion in uSE

-33% 

3% 

-13% 

Energy use Co2 Emissions water use maintenance Costs 

50% 

42% 

-2% 

-40% -39%

-45% 

-53% 

40% 

30% 

20% 

27% 

10% 

national Average 

increase in 


user Satisfaction
 

 

 

 

 

 

 

The top performing buildings in each 

metric deliver significantly better 

results than the national average. 

performanCe of gsa buildings Compared to national averages 

Top Third of 

Studied buildings 

Average of 

Studied buildings 

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Key findingsCompared to national averages, 

buildings in this study have: 

2% less energy use 

(5 kbtu/sf/yr vs. 88 kbtu/sf/yr) 

13% lower maintenance costs 

($2.88/sf vs. $3.30/sf) 

33% fewer Co2 emissions 

(19 lbs/sf/yr vs. 29 lbs/sf/yr) 

27% higher occupant satisfaction 

measuring Results 

GSA recently completed a comprehensive post-occupancy evaluation of 


12 of its sustainably designed buildings in order to answer the question, 


“Does sustainable design deliver?” The evaluation of these buildings was 

comprehensive, including environmental performance, financial metrics, 

and occupant satisfaction. No previous U.S. study has taken such a holistic 

approach to building performance. The buildings studied all incorporated 

sustainable design criteria to varying degrees, with seven receiving LEED 

ratings. The study compared the energy performance, operating cost, and 

water use of the GSA buildings against the average performance of U.S. 

commercial buildings. 

Results show that an integrated approach to sustainable design—addressing 

environmental, financial, and occupant satisfaction issues in aggregate— 

improves building performance. Taken together, the GSA buildings in the 

study produce 33% lower carbon emissions than the national average. They 

use 26% less energy and 3% less domestic water. On average, their occupants 

are 27% more satisfied than U.S. commercial building occupants. However, 

the two LEED Gold buildings in the study, which best reflect an integrated 

sustainable design approach, performed markedly better, using 34% less 

energy and 54% less domestic water than the national average, and their 

occupants report 34% greater satisfaction. 

Findings such as those documented by this study validate the efforts and 


achievements of green building initiatives, providing sometimes needed 


incentives for clients and their design teams to take on sustainable design 


challenges. By undertaking this study, and hopefully others like it, GSA 


encourages the needed practice of measuring results.
 

19 sustainability matters 
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C a s e s t u d y : i n t e g r at e d d e s i g n 

San Francisco Federal Building 

a model of sustainable design 

one of gSA s newest federally constructed office buildings, opened in 2007 

in San Francisco, exemplifies the integrated design approach essential to 

achieving sustainability. The building responds to the climatic conditions of 

its site, the functional and operational needs of its owner, and the workplace 

productivity needs of its tenants now and into the future. 

From the initial planning stages, gSA wanted the new Federal building 

to be among the nation s finest high performance, environmentally friendly 

commercial office buildings. Climate and urban context considerations 

guided the vision of a building that would not only provide a healthy 

environment for its occupants, but would also serve as a national template 

for the sustainable use of natural resources and energy. 

left:	 ThE SAn FRAnCiSCo FEDERAL buiLDing 

iS A STRiking ARChiTECTuRAL STATEmEnT 

ThAT DEmonSTRATES An inTEgRATED, 

EnviRonmEnTAL AppRoACh To DESign. 21 sustainability matters 
 

 

 

 

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San Francisco Federal Building 

building facts 

building Location: San Francisco, California 

Date of completion: 2007 

budget: $144 Million 

Size: 18 story tower with four story annex; 

652,433 gross square feet 

integrated design 

The effort required to meet sustainable design and energy efficiency goals 

had an impact on nearly every aspect of the project, beginning with the make 

up of the design team, and extending to the selection of building materials 

and tenant space requirements. It also required an unprecedented level of 

cooperation between team members and client representatives from the earliest 

phases of schematic design through the final phases of furnishing the interior. 

In 2000, GSA selected the design team led by architect Thom Mayne and 

his firm, Morphosis, with Ove Arup providing engineering and the Smith Group 

(architect of record) as key team members. Their winning proposal called for 

an 18 story, $144 million structure with 605,000 rentable square feet, which 

promised to be an enduring model of sustainable design on many levels. 

Ove Arup, a global design and business consulting firm responsible for the 

project s structural, mechanical, and electrical engineering, was already 

involved at the schematic design kickoff necessary for integrated solutions, 

but, an unusual arrangement since architects traditionally bring engineers 

in much further along into the design process. Their early involvement paid 

large dividends, allowing the team to fully exploit the project s potential for 

energy efficiency and to optimize the use of sustainable materials before 

architectural concepts were fixed. This early collaboration cultivated the 

whole building, integrated design approach. 

In this case study, we highlight many of the facets of the process which led 

to the total building solution: neighborhood, energy efficiency, structure, 

performance studies, workplace innovations, metrics and measurement. While 

every individual aspect is interesting, it is how they combined and influenced 

each other that is the story. 

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neighborhood 

The San Francisco Federal Building (SFFB) is located across from GSA s 

historic U.S. Court of Appeals and is on axis with San Francisco s Civic 

Center. The South of Market neighborhood is a socially and economically 

diverse area known for its three and four story light industrial, commercial 

and residential buildings. 

As the building design took shape, an intense dialogue between GSA, its 

design team and neighborhood advocates helped all stakeholders better 

understand both the opportunities and the design challenges before them. 

The slender tower along the northeast boundary frames the beautifully 

detailed façade of the Court of Appeals, juxtaposing the Beaux Arts building 

with the SFFB s contemporary architecture and creating a large public 

plaza. Federal employees and neighborhood residents alike are able to take 

advantage of the open plaza and the café with outdoor dining, as well as the 

conference center and child care center inside. This sensitivity to the urban 

setting and to the neighborhood respects the lower buildings to the south, 

while the tower anticipates the greater density and monumental buildings 

of the Civic Center across Market Street. 

In short, the SFFB design team sought not only to use the natural advantages 

of the site wind, sun, and light to create a more sustainable and productive 

place to work, but also to revitalize a long neglected site without overwhelming 

the unique character of the neighborhood. 

above:	 ThE noRThwEST FACE oF ThE FEDERAL buiLDing 

AS viEwED FRom ThE CiviC CEnTER pLAzA. 

23 sustainability matters 
San Francisco Federal Building

 

 

 

 

 

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San Francisco Federal Building 

Energy Efficiency 

From the outset, the project team aimed for a building of uncompromised 

architectural vision, and a demonstration that energy efficiency is possible 

on a standard ($240/square foot) construction budget. The SFFB is projected 

to use fewer than 25,000 Btu per square foot per year for naturally ventilated 

portions of the tower, less than one third as much energy as the average office 

space in GSA s portfolio. 

By creating an 18 story tower, the designers were able to take advantage 

of the site s dependable northwest prevailing winds and San Francisco s 

year round mild climate to help cool the building. Thus the design allows 

a majority of the office space to rely on operable windows, rather than air 

conditioning, for year round cooling, resulting in the construction of our 

nation s first naturally ventilated, high rise commercial building since 

World War II. Moreover, since the local zoning code imposes a height limit 

of 120 feet on any structures to the north, the design not only ensured that 

the SFFB would stand as an icon on the skyline, but also that no future 

construction would block the cooling breezes. 

The narrow 66 foot floor plate of the tower allows daylight to serve as 

the primary illumination for 80% of the workspace, a fiscally sound and 

sustainable achievement in an office environment where electric lighting 

typically represents 18% of total energy use. An undulating perforated metal 

screen on the southeast façade and vertical glass fins on the northwest façade 

of the tower are designed to control sunlight. Each makes a bold architectural 

statement while serving to dissipate the unpleasantness of direct sun and 

reduce solar heat gain without restricting natural light. On each floor of 

offices, controls automatically dim or turn off electric lighting as natural 

light fills the space, thus reducing energy use and minimizing heat loads. 

24 
25 sustainability matters 

above: vERTiCAL gLASS FinS on ThE noRThwEST 

SiDE DiRECT CooLing oCEAn bREEzES inTo 

ThE buiLDing. 

right: A pERFoRATED STAinLESS STEEL SCREEn 

on ThE SouThEAST SiDE FoRmS A SEConD 

Skin FiLTERing SunLighT EnTERing ThE 

buiLDing. 
 

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San Francisco Federal Building 

Structure 

The SFFB s whole building, integrated design approach aims to provide not 

only optimal performance throughout the building s life cycle, but also return 

significant and recurring cost savings through reduced operating costs. 

The structure s form derived principally from its energy design, particularly 

its natural ventilation also includes other strategic elements: 

• Desk height windows that can be opened or closed by employees 

• Upper level windows controlled by electronic temperature monitors 

•	 Trickle vents and finned tube convectors near the floor that provide 

small amounts of ventilation and heat for cold days 

• Wall panels and file storage that are six inches off the floor and do not 

exceed 52 inches in height to allow natural airflow 

The building is made of concrete, rather than steel, which is integral to 

the energy strategy. The exposed ceiling slab functions as a thermal mass, 

cooled by the night air and continues its work during the day by radiating 

coolness to the building occupants and absorbing heat from their activities. 

The design team developed a wave shaped slab that provides the needed 

mass without reducing either the amount of reflected light or the proper 

flow of nighttime air. 

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left:	 DESign ELEmEnTS, inCLuDing ThE unDuLATing 

CEiLing AnD ThE opERAbLE winDowS, ARE 

inTEgRAL To ThE vEnTiLATion SYSTEm. 

above:	 A pubLiC CAFé AnD A ChiLD CARE CEnTER, 

EACh CovERED wiTh pERFoRATED STAinLESS 

STEEL SCREEnS, RESiDE in ThE pLAzA FRonTing 

ThE TowER. 

The concrete mix contains a high proportion of ground granulated blast 

furnace slag, which increases the strength of and whitens the concrete, 

allowing the surfaces to reflect light without being painted. Slag, a steel 

industry by product, replaced 50% of the energy intensive Portland cement 

in the concrete, dramatically reducing the building s carbon footprint. 

The lobby floor has the appearance of terrazzo but the design team avoided 

added material by using simple polished concrete, providing a sustainable, 

durable, uncoated finish at a fraction of the cost of other flooring options. 

performance Studies 

To ensure that the natural ventilation system would provide a comfortable 

environment for the building s occupants, GSA commissioned a series of 

third party performance studies. Wind tunnel tests were used to simulate 

worse case build out on surrounding properties to make certain that sufficient 

natural ventilation could not be compromised. 

Consultants from Lawrence Berkeley National Laboratory evaluated the façade 

system and determined that building performance did not require a full 

double skin façade, resulting in a savings of $1.5 million. A design team from 

the University of California San Diego also provided a computational fluid 

dynamics analysis to help finalize the shape of the window mullions, which 

serve to deflect incoming air away from the desk and seating areas on the 

windward side of the building. 

27 sustainability matters 
San Francisco Federal Building 

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left:	 RAiSED FuRniTuRE AnD pRivATE CAbinS 

EnDing bELow ThE ConCRETE CEiLing 

EnAbLE AiR To FLow ThRough ThE oFFiCE. 

above:	 opEningS in ThE FAçADE inCLuDE SkY 

LobbiES FoR ThE Skip STop ELEvAToRS 

AnD A ThREE SToRY SkY gARDEn. 

Given the building’s complexity, the level of integration achieved among all 

parties would have been impossible with standard two-dimensional drawings. 

Therefore, the design team used three-dimensional building information modeling 

(BIM) technology, enabling the integration of information across all disciplines. 

Early digital models facilitated the study of climate and wind data and validated 

the natural ventilation scheme. As the plans evolved, BIM also facilitated team 

integration and allowed the architect to provide virtual views of the building, 

which helped GSA and its prospective tenants understand the design. Later, BIM 

was essential to refining the natural ventilation design in a three-dimensional 

simulation model, which verified its capacity to provide a comfortable indoor 

environment. Finally, as the building moved into construction, BIM became the 

groundwork for the shop drawings used to manufacture specific building elements 

and served as a guide for their installation. 

workplace innovations 

The building s innovations also extended to workplace design and challenged 

conventional views with a new model for large organizations. Open plan 

workspaces are arrayed along the building s perimeter, while private offices 

and enclosed conference rooms form an enclosed core of cabins along the 

center of each floor. These changes in conventional office design make the 

natural ventilation and daylighting far more effective. 

Additionally, the office tower is served by a skip stop elevator system 

stopping only every third floor. The design not only reduces waiting time 

but also aims to encourage use of the wide and conveniently located stairways 

to promote occupant interaction and fitness. 

29 sustainability matters 
 

 

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San Francisco Federal Building 

metrics and measurement 

To verify that the commissioned building would achieve a real world 

performance similar to that predicted by computer models, GSA measured 

temperature conditions in the unoccupied, un commissioned building prior 

to occupancy. After occupancy, GSA will re measure the same conditions 

to ensure the predicted improvement in comfort and working conditions 

are realized. 

One of the few early concerns, in fact, came from results showing that interior 

illumination levels, as a result of the design s emphasis on daylighting, were 

considerably higher than those found in conventionally lighted offices. This 

knowledge enabled GSA to prepare the future tenants for the degree of change. 

Because the performance modeling was unusually detailed, the building 

will provide GSA a unique opportunity, not only to evaluate how the building 

performs, but also to evaluate the performance of sophisticated modeling 

techniques. Post occupancy evaluation will focus on five areas: energy 

savings; indoor environment including employee comfort, satisfaction and 

engagement; social networks and communications; and, occupant health 

and well being. 

30 
 

left: A FouR -SToRY AnnEx ConTAinS An 

ADDiTionAL 100,000 SQuARE FEET oF 

oFFiCE SpACE. 

above: DRAmATiC SkYLighTS EnLivEn ThE ChiLD CARE CEnTER wiTh LighT AnD CoLoR. 

right: A pRoTECTED pLAY AREA FoR ThE ChiLDREn 

iS CovERED wiTh A CuShionED, RECYCLED 

RubbER SuRFACE. 31 sustainability matters 
 

 

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San Francisco Federal Building 

refleCtions on the proCess 

At every stage of the building s development and construction, projected 

levels of financial and contractual performance have been or are being 

verified by multiple independent analyses. These analyses demonstrate that 

the SFFB, built at a total cost comparable to conventional commercial office 

buildings, will become a model of sustainable design principles. 

The GSA team s progressive thinking, passion, and commitment allowed the 

strong initial design concepts of the design team to be carried through to 

completion. The extraordinary integration of expert consultants, spearheaded 

by a design architect who strove for innovation and sustainable design 

excellence, was central to the project s success. 

The SFFB uses techniques and systems appropriate for its location and its 

use. The specific strategies implemented in the building in particular the 

use of natural ventilation are not readily transferred to some less salubrious 

geographic locations. The project s design goals and methods, rather than the 

technical solutions, are applicable for all projects: an insistent commitment 

to energy efficiency, a focus on sustainable design excellence, the provision of 

a healthy working environment, the reduced use of natural resources, and the 

use of an integrated design approach to achieve these goals all these are the 

future of excellent design. 

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shown:	 mATERiAL SimpLiCiTY iS 

ARTiCuLATED bY boTh DAYLighT 

AnD ELECTRiCALLY LiT pEnETRATionS 

in ThE EnTRAnCE LobbY. 
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The Greenest Alternative
 

reThinking The need To build 

in 2001, robert probst, also known 

as the “father of the cubicle” for his 

“action office” design of the late 

1960’s, labeled the current use of 

the cubicle as “monolithic insanity.” 

The greenest alternative is to not build at all. This catches many building 

owners and designers off guard. How can organizations meet their workplace 

needs without constructing a building? Alternatives do exist—renovating 

existing facilities, interior retrofits, reorganizing work processes, reusing 

resources and materials—with potentially enormous benefits for owners, 

occupants and the environment. 

The Modern Workplace 

The nearly universal adoption of modern office technology—fax machines, 

laptops, cell phones, and pda’s—introduced unprecedented mobility into 

the nation’s workforce. Even so, though the nature of work has changed over 

the last two decades, many offices continue to be built out with the same late 

1960’s design assumption that “one size fits all,” an outmoded workplace 

concept. 

As a result of the modern workforce’s increasing mobility, and the growth of 

more strategic, knowledge-based work—by its nature less routine and more 

collaborative workplace strategies that rely on single individual places are 

unlikely to effectively support modern work practice. Work is no longer a 

solitary pursuit, performed exclusively in an office. 

Perhaps the most dramatic change over the last decade has been the 

decrease—from 34% in 1997, to only 8% in 2007—in traditional nine to 

five workdays spent exclusively in the office. Workers today have more flexible 

schedules and job demands that regularly take them away from their desks. 

	 left:	 The	governmenTs	of	Canada	and	The	UniTed	 

sTaTes	deCided	To	bUild	a	single	shared	porT	
 

of	enTry	raTher	Than	Two	aT	sweeT	grass,	
 

monTana– CoUTTs,	alberTa.
 

35	 sustainability	matters 
TiMe Space uTilizaTion (TSu) Survey daTa

At work, but 

not at desk

At desk

OccupAncy

08:00 09:00 10:00 11:00 12:00 13:00 14:00 15:00 16:00 17:00

100%

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

TIME

at	work,	but	

not	at	desk

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During individual client engagements, researchers observed and documented 

the many ways employees actually use their workspaces in terms of occupancy 

and task parameters. The survey data show the use of space over time of 

organizations and provides an objective counterpoint to the ways employees 

think they are using their spaces. 

• Workspaces are temporarily unoccupied 23% of the time on average 

• Work tasks are consistent throughout the day, with a modest lunch dip 

• Computer work is the dominate activity while at the desk—approximately 

half the time 

• Desks are vacant up to 60% of the time, even at times of the highest 

occupancy! 

This last startling statistic poses the question, where are these workers? 

They are on site but away from their desks, at agency client offices, or 

traveling—in other words, doing their jobs the way work is done in the 

21st century and using the full range of modern tools. 

Typically, workforces have a mistaken idea of how they actually use their 

workspaces. In general, GSA found that they use their workstations about 

half as much, and in different ways, than they think. 

These findings regarding actual space usage should prompt a reexamination 

of traditional programming procedures that rely on self-reported space 

requirements and use. Most organizations need to consider replacing much 

of their “fixed” space with “flexible” space in order to accommodate the new, 

more mobile work style of the modern office worker. 

	 37	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

The Greenest Alternative 

The SuSTainabiliTy QueSTion 

There will always be a place for closed offices, open workstations and 

demountable partitions that characterize a well-designed workplace. However, 

the layout must be consciously designed, and informed by an understanding 

of modern work styles in order to serve the organization well. Many furniture 

manufacturers are responding to the more mobile workforce with components 

and designs that are not only more sustainable, but far better suited for the 

way work is done today. Nevertheless, for some organizations, the reality that 

30–50% of their workstations will be vacant for large parts of the day will beg 

the (sustainable) question: Is this really a beneficial use of resources? 

These findings also lead to the conclusion that building more space should 

not always be the first answer to meeting an organization’s workplace needs. 

As an alternative, desk sharing and conference room scheduling procedures 

can greatly reduce the amount of office space an organization requires, and 

at the same time, increase the flexible, varied use of that space. All of these 

factors affect the amount and type of space, furnishings, finishes and electric 

lighting that an organization needs, which directly relates to resource use. 

Hewlett Packard, for example, has been able to reduce its total portfolio use 

of space by over 30% through the re-alignment of space to reflect the working 

habits of a mobile workforce. 

38 
 

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John	C.	KlUCzynsKi	federal	bUilding 

ChiCago,	illinois 

leSS iS More 

in	June	2006,	gsa	leveraged	workplace	20•20	tools	and	guidelines	to	renovate	 

two	floors	of	Chicago s	timeless	mies	van	der	rohe designed	John	C.	Kluczynski	 

federal	building	for	the	great	lakes	region,	public	buildings	service.	workplace	 

consultants	conducted	in depth	analyses	of	the	organization	and	its	work	 

patterns	through	interviews,	focus	groups,	surveys	and	cultural	analysis.	as		 

a	result,	they	optimized	the	interior	environment	to	fit	the	way	the	agency		 

works	while	also	maximizing	environmental	goals.	 

The	analysis	identified	a	widely	held	desire	to	increase	interpersonal	 

communication	while	breaking	down	organizational	stovepipes.	The	resulting	 

design	created	egalitarian	and	nimble	work	settings	by	combining: 

• stunning	corner	views,	reserved	for	group	spaces	 

• low	partitions	and	increased	individual	work	surfaces	 

• rapidly	reconfigurable	standard sized	offices	and	meeting	rooms	 

• glazed walled	private	offices	throughout,	located	away	from	windows	 

• open,	well appointed	reception	and	break	room	areas	as	gathering	destinations 

post occupancy	surveys	confirm	that	the	new	plan	 strikes	the	right	balance. 	 

flexible	configurations	contributed	significantly	to	the	reduction	in	total	space	 

consumed	and	lowered	churn	costs	to	a	bare	minimum. 

gsa	also	reclaimed	over	16,000	square	feet	of	inefficient	file	storage	space	by	 

investing	in	a	managed	1260	square	foot	high density	system	that	centralized	 

all	regional	document	and	supply	management	services.	not	only	do	the	 

occupants	use	space	more	efficiently	and	better	control	their	files	and	supplies,	 

but	resulting	savings	(14,000	square	feet	at	$32	per	square	foot),	equate	to	 

$450,000	per	year,	or	enough	to	finance	the	system	support,	file	management,	 

copy	and	mail	operations,	and	plotting	needs	of	the	growing	agency.	 

	 above:		 The	inTerior	layoUT	and	design	refleCTs	 

The	findings	of	The	 deep	dive 	analysis.	 

	 39	 sustainability	matters 
 

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inTernal	revenUe	serviCe	CampUs	 

Kansas	CiTy,	missoUri 

FlexibiliTy: The neW Model 

The	recently	opened	irs	campus	in	Kansas	City,	missouri,	is	the	result	of	a		 

master	planning	effort	between	irs	and	gsa	to	create	service	centers	reflecting	 

the	changing	work	processes	and	the	new	reality	of	electronic	tax	return	filings.	 

The	primary	goal	for	this	facility	is	to	increase	efficiency	and	cost	effectiveness		 

in	the	tax	collection	process	and	specifically	to	aid	in	the	servicing	of	individual	 

taxpayer	returns.		 

The	new	irs	campus	preserves	a	475,000	square	foot	historic	post	office	and	 

integrates	a	600,000	square	foot	addition	facility	into	the	existing	urban	fabric	 

reinforcing	the	vitality	of	the	midtown	Kansas	City	location.	The	project	not	only	 

received	historic	preservation	tax	credits	but	a	leed	certification.		 

what	really	makes	this	project	a	model	for	building	only	what	is	needed	is	the	way	 

it	accommodates	the	fluctuation	between	3,000	full time	employees	and	up	to	 

5,000	additional	seasonal	workers,	depending	upon	the	tax	cycle.	in	another	era	 

with	different	perceptions	of	environmental	and	financial	stewardship,	it	is	likely	 

that	the	building	might	have	been	built	for	8,000	leaving	60%	of	the	desks	 

unoccupied	during	the	off season. 

given	the	challenge	of	designing	for	a	changing	workforce,	irs,	gsa	and	two	 

Kansas	City	architectural	firms bnim	and	360	architects collaborated	with		 

the	winning	developer,	pershing	road	development	Company,	to	create	an	 

addition	featuring	three	processing	wings	connected	by	a	 main	street 	spine		 

and	a	series	of	courtyards.	during	those	parts	of	the	year	when	a	seasonal	 

workforce	is	not	required	and	the	wings	are	not	being	used,	they	can	be	closed		 

off	and	shut	down,	dramatically	cutting	utility	usage.	The	highly	flexible	solution	 

accommodates	seasonal	changes	in	work	loads	as	well	as	changes	in	processes,	 

programs	and	technology	over	time. 

40 
 

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shared	porT	of	enTry	 

sweeT	grass,	monTana CoUTTs,	alberTa	 

Why build TWo When one Will do? 

in	1996,	when	the	U.s.	and	Canadian	governments	signed	the	shared	border	 

accord,	separate	building	projects	for	the	sweet	grass,	montana Coutts,	alberta,	 

border	crossing	had	already	been	planned,	each	within	a	few	hundred	feet	of	the	 

other.	instead,	the	accord	allowed	the	two	governments	to	consolidate	the	projects	 

into	one	building,	conserving	construction	materials	and	minimizing	life cycle	costs	 

through	reduced	maintenance	and	utility	expenses	over	the	building s	lifespan.		 

The	design	and	administrative	challenges,	however,	associated	with	building	one	 

border	crossing	instead	of	two	were	exceptionally	challenging.	everything	from	 

currency	exchange	rates	for	subcontractor	payments	to	locker	rooms	for	the	 

construction	crews eventually	located	in	the	U.s.	for	both	american	and	Canadian	 

personnel	because	the	possession	of	firearms	is	not	permitted	in	Canada had	to	 

be	carefully	considered.	 

gsa	and	the	Canada	Customs	&	revenue	agency	along	with	the	design	firm	of	 

felchlin	and	diamond	executed	the	project	using	a	design build	process,	which	 

allowed	the	joint	venture	to	reclaim	the	nearly	one year	delay	that	had	resulted	 

from	the	decision	to	abandon	the	individual	U.s.	and	Canadian	projects.	 

The	project	fulfilled	its	objectives	of	capital	cost	reduction	and	demonstration	of	 

internationally	cooperative	environmental	stewardship.	sweet	grass/Coutts	is	the	 

first	border	station	to	achieve	leed	certification,	even	though,	at	the	time	of	the	 

building s	design,	gsa	did	not	yet	require	leed	for	new	all	construction	projects.	 

	 41	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

The Greenest Alternative 

“historic preservation is the 

ultimate form of sustainable 

development. by encouraging 

the reuse of older buildings 

instead of abandoning or 

demolishing them, historic 

preservation reduces the 

demand for environmentally 

costly new building materials 

and lessens the amount of 

waste dumped in our landfills. 

it also protects and celebrates 

the social and cultural 

resources that define and unite 

us as americans, and ensures 

that they will survive to enrich 

our communities and our lives 

for generations to come.” 

riChard	moe,	presidenT,	 	 

The	naTional	TrUsT	for	 

hisToriC	preservaTion 

uSing WhaT you have 

As we consider the need to build, we must think about the environmental 

impact of the manufacture and transport of the materials, energy used, and 

pollution generated by the construction of a new structure. This is not to say 

that building new is never necessary. A new structure provides a fresh 

opportunity for the user by focusing on a new construction budget. We often 

do not consider the environmental impact of new buildings, and thus fail to 

account for the total cost of ownership. Green building design strategies and 

the rethinking of outdated work patterns can minimize these costs, thus 

providing functional space while reducing the environmental footprint. The 

appeal of the “clean slate” of a new facility is undeniable; the truth is that 

such a slate may not be so clean after all. 

Preservation of our existing building stock is the greenest alternative of all. 

For GSA the construction of a new building generally involves the demolition 

of an existing building on an urban site, generating a considerable amount of 

waste. Unfortunately, some buildings are no longer functionally viable and a 

decision may be made to tear them down; however, that decision cannot be 

made lightly and must include not only the financial impacts of the decision 

but also the social and environmental impacts—it is a balance of often 

competing considerations. 

42 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Given that 60% of the buildings that will exist 30 years from now have 

already been built, new construction will affect only a fraction of our 

inventory of space. GSA must focus on how reusing (and continuing to use) 

existing buildings makes sense. Just as we are concerned with the earth’s 

irreplaceable natural resources, so must we learn to preserve the irreplaceable 

cultural resources that our buildings represent. Executive Orders 12072 and 

13006 encourage locating Federal facilities in city centers and in historic 

buildings, strengthening not only our communities but also the value of the 

investment in the reuse of existing buildings and infrastructure. 

Adaptive reuse strategies make it possible for existing facilities to meet 

modern office needs while eliminating the huge environmental burden of 

building anew. Redesigning existing space or fulfilling programmatic needs in 

alternative ways, including designing for mobility, may require even greater 

resourcefulness and creativity than a new building. Working with existing 

conditions, often the result of decisions made far in the past, in order to 

modernize a structure to serve present day needs, can not only make formerly 

mute spaces sing, it can also save money and reduce the strain on our 

nation’s overburdened landfills. 

	 above:		 maTerials	refleCT	The	original		 

warehoUse	fUnCTion	of	The	hisToriC	 

sCowCrofT	bUilding	in	ogden,	UTah.	 info:	 executive	order	12072:	federal	space	management,	1978 

info:	 executive	order	13006:	locating	federal	facilities	on	historic	 

	 properties	in	our	nation’s	Central	Cities,	1996 

	 43	 sustainability	matters 
 

’

- -

- -

’

-

“ ”

’

U.s.	paTenT	and	TrademarK	offiCe	 

alexandria,	virginia	 

online reServaTionS Save oFFice Space 

The	department	of	Commerce s	U.s.	patent	and	Trademark	office	(UspTo)		 

in	alexandria,	virginia,	implemented	a	work at home	program	in	1997.	designed		 

to	improve	workforce	recruitment	and	retention	and	relieve	office	overcrowding,		 

the	program	achieves	multiple	quality of life	and	environmental	goals,	including		 

a	reduction	of	the	carbon	footprint	associated	with	the	agency s	workforce.	The	 

agency,	in	turn,	benefits	from	higher	productivity,	reduced	costs,	and	greater	 

employee	satisfaction.	 

The	UspTo	telework	program	provides	employees	with	fully	equipped	workstations,	 

including	computers,	multifunction	laser	printers	and	a	high speed	data	line.		 

even	though	the	cost	of	each	home	workstation	is	approximately	$5,500,	the	 

program	saved	the	agency	a	significant	amount	of	money	by	reducing	the	need		 

for	office	space.	employees	also	have	access	to	an	online	reservation	 hoteling 	 

system	that	allows	them	to	reserve	shared	office	space	on	the	agency s	main	 

campus.	The	telework	program	has	enabled	the	UspTo	to	avoid	building	nearly	 

three	floors,	or	47,000	square	feet,	of	office	space	for	an	annual	cost	avoidance		 

of	over	$1.4	million. 

44 
 

 

 

 

 

 

 

 

 

 

 

 

For GSA, which controls some 351,900,000 square feet of existing space 

(176,400,000 of it federally owned), the opportunity for imaginative reuse is 

vast indeed. One quarter of the agency’s existing inventory is either listed on 

or potentially eligible for listing on the National Register of Historic Places. 

History provides us with innumerable examples of the imaginative redesign 

of existing structures. One of the best of these, though not widely known, 

is Michelangelo’s reuse of scattered and unrelated, asymmetrical Roman and 

medieval structures to create the Campidoglio, an architectural masterpiece 

of majestic symmetry. At GSA, it’s refreshing to consider that Michelangelo 

was both a great practitioner of adaptive reuse and a civil servant! 

Federal Building and 

U.S. Courthouse, 1937 

Baker Building, 1946 

Annex, 2004 Connector, 2004 

Public Library, 

1899 

gsa	reUsed	Three	hisToriC	bUildings	along	wiTh	new	ConsTrUCTion	 

To	CreaTe	The	federal	Complex	in	erie,	pennsylvania	 	 45	 sustainability	matters 
46
 
Case Study Title Goes Here

’

 

c a S e S T u d y : T h e g r e e n e S T a lT e r n aT i v e 

Howard M. Metzenbaum U.S. Courthouse 

hiSTorically preServed, FuncTionally iMproved, 

environMenTally advanced 

rather	than	increasing	the	size	of	the	newly	constructed	Carl	b.	stokes		 

U.s.	Courthouse	in	Cleveland,	ohio	to	accommodate	the	bankruptcy	courts,	 

gsa	decided	to	renovate	the	city s	monumental	metzenbaum	Courthouse,	 

and	to	use	the	remaining	space	to	consolidate	several	federal	tenants	from	 

leased	spaces	scattered	around	the	city.	The	resulting	renovation	is	a	 

brilliant	accommodation	of	both	the	preservation	of	the	original	courthouse,	 

built	in	1910,	and	the	requirements	of	modern	jurisprudence.	This	 

remarkable	achievement	has	resulted	in	more	than	14	awards	for	design,	 

historic	preservation,	engineering	and	environmental	stewardship. 

	 47	 sustainability	matters 
 

 

 

 

 

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Howard M. Metzenbaum U.S. Courthouse 

gsa	leed	bUilding 

howard	m.	meTzenbaUm	 

U.s.	CoUrThoUse 

CLEvELAND, OH 

LEED NC rated: Apr 19 2006 

CerTified	 

Sustainable Sites 6 14 

Water Efficiency 4 5 

Energy and Atmosphere 3 17 

Materials and Resources 6 13 

Indoor Environmental Quality 7 15 

Innovation and Design 3 5 

29 69 

green	faCTs 

32%	water use reduction 

95%	reuse of historic building shell 

green housekeeping 

procedures employed 

Often the most effective strategy for sustainability is to creatively redesign 

currently occupied space. In the case of this Cleveland landmark, the 

designers successfully introduced modern functionality into the existing 

historic footprint. Central to their strategy was the adaptation of the original 

five level courtyard into functional space, repurposing it as far more than 

just a lightwell. 

The courtyard now houses the security screening area, which was not only 

designed to blend beautifully with the original architecture, but did not 

require the use of space on the highly sought after first floor. It also allows 

more logical and safer movement within the building by using a portion 

of the courtyard s former volume for new circulation balconies. Finally, to 

prevent heating and cooling loss through the walls and windows surrounding 

the courtyard, an impressive glass skylight now caps the space, dramatically 

reducing the building s energy use. 

The historic nature of the structure made it necessary for the design team, 

Westlake Reed Leskosky Architects, to balance the sometimes conflicting 

needs of modern convenience with the preservation of the building s original 

grandeur. Toward that end they tucked mechanical chases and risers into no 

longer used chimneys. They removed the drop ceilings that had been built 

to contain ductwork for the 1960 s era air conditioning, and in the process, 

revealed the original ceilings, including one with ornate plasterwork. The 

architect s mechanical engineer also succeeded in locating a demand control 

ventilation system in the attic. This ingenious solution solves the design 

problem of placing modern equipment and improves the mechanical function 

48 
	 above:		 a	hisToriC	Ceiling	disCovered	dUring	 

renovaTion	adorns	a	JUdge ’s	Chamber.	 

	 right:		 seCUriTy	feaTUres	are	inTegraTed	inTo		 The	bUilding	bridging	The	hisToriC	lobby	 

and	a	new	aTriUm.	 

	 49	 sustainability	matters 
 

 

 

 

 

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’ 

 

 

 “ 

 ” 

 

 ’ 

Howard M. Metzenbaum U.S. Courthouse 

firsT	floor	plan 

seCTion	 

by introducing more outside air into the building when concentrations of 

CO2 reach undesirable levels. The strategy not only reduced costs but also 

created a more comfortable productive workplace. 

The project reinstalled restored murals and rebuilt an original chandelier to 

accommodate low energy lamps. Other reused materials include hardware, 

grills, wood doors, glazed brick, and marble from the basement to patch floors 

and wainscots. 

GSA s renovation of the Metzenbaum Courthouse proves that buildings 

designed and built in the past can gain new life through the application 

of the same thought, concern and ingenuity that produced them. The great 

nineteenth century English architecture critic, John Ruskin, said, When we 

build, let us think that we build forever. Recognizing both the beauty of 

the past and the needs of the present, GSA has, more than a century later, 

heeded Ruskin s advice. 

50 
	 51	 sustainability	matters

	 left:		 as	seen	in	seCTion,	enClosing		 

The	aTriUm	CapTUred	5,000	sqUare	 

feeT	of	new	inTerior	spaCe. 

	 right:		 The	new	aTriUm	improves	CirCUlaTion		 effiCienCy	ThroUghoUT	The	bUilding.	 
52 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement 

of Green Buildings 

The CosTs of Building green 

How much does it cost to build green? To this day, despite our increased 

awareness of the impacts that the construction, operations, and maintenance 

of buildings can have on our environment, almost every discussion of green 

eventually turns to costs. There is a persistent perception that sustainably 

designed buildings cost more than conventional. While that may have been 

true once, today the evidence shows that a green building does not need to 

cost more than a conventional one. 

In the 1990’s, as the design and construction of green buildings began to 

gain momentum, many nonstandard building materials and technologies did 

have additional costs associated with their selection, installation, and use. 

As awareness of our impact on the environment grew, however, the market 

quickly evolved to provide a variety of energy-efficient and cost-effective 

green building materials, and designers accordingly overhauled their product 

libraries and specifications to include them. At the same time, contractors 

learned how to use the new materials, master new construction techniques, 

and employ integrated processes and quality control measures necessary to 

deliver high-performance green buildings that do not necessarily come with 

a green premium. However, rising standards and expectations for today’s 

buildings have undoubtedly created more complex design problems, 

increasing the challenge to design teams to deliver green buildings within 

conventional budgets. Today, the exponential growth in the expertise of design 

teams coupled with the continually falling costs of environmentally preferable 

materials has resulted in buildings more routinely being delivered green with 

little or no measurable cost premium. 

	 left:		 A	dAylight	filled	“mAin	street”	connects		 

wings	of	the	building	in	A	new	leAsed	 

fAcility	for	the	irs	in	KAnsAs	city,	missouri. 	 53	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement of Green Buildings 

A developer’s view 

PotomAc	yArd,	Arlington,	VirginiA 

“developing	places	to	live	and	work	 

requires	taking	a	look	at	the	big	picture...	 

a	picture	that	is	bigger	than	some	 

developers	realize. 

“by	teaming	with	lead	tenant,	the		 

u.s.	environmental	Protection	Agency	
 

(ePA),	crescent	resources,	llc	and		
 

the	construction	team	aimed	to		
 

create	architecturally	distinctive,		
 

first-class	designs	that	would	promote	
 

environmental	sustainability	and	reflect	
 

the	values	of	the	ePA,	among	other	
 

future	government	tenants.”
 

crescent	resources,	llc 

gsA’s	green	strategy	cost	studies 

In 1996, GSA began to look at the cost implications of green buildings with 

its first green project, the Alfred A. Arraj U.S. Courthouse in Denver, Colorado. 

The then-PBS Commissioner challenged the project team to create a showcase 

green building, providing an opportunity for the government to lead the nation 

in the infancy of this emerging discipline. A panel of nationally recognized 

experts on environmental design identified nearly 150 green building strategies to reduce the environmental impact of the courthouse and grouped them 

into low-, medium- and high-cost categories. 

The greening of the Denver courthouse helped the agency answer the critical 

question, how much additional funding is necessary to make a project green? 

A follow-up Green Buildings Cost Study drew upon the strategies identified 

by the panel and identified actual cost implications. While implementing 

all of the strategies would result in a substantial increase in cost, it was 

advantageous for design teams to only consider those that would provide 

the best overall benefit for the lowest initial cost. This approach found that, 

at the time, an increase of 2.5 to 7% in a project budget could produce a 

good, green building at optimal value. This reinforced the idea that only by 

examining options in their totality—rather than each individually—will a team 

find the optimal value. 

In 1998, as a result of this analysis, GSA increased the budget estimates in 

its General Construction Cost Review Guide (GCCRG) by 2.5% across the 

board in order to accommodate sustainable design solutions. However, by 

2000 sustainable design strategies had already become so fully integrated 

into the Facilities Standards for the Public Buildings Service that building 

green no longer required special cost considerations. 

54 
gsA leed ConsTruCTion 

CosT impACTs 

as	compared	to	cost	factors		 

related	to	estimating	Accuracy		 

and	to	design	contingency 

10.0% design	 

contingency 

	 9.0% 

	 8.0% 

	 7.0% 

	 6.0% 

	 5.0% estimating	 

Accuracy 

	 4.0% 

	 3.0% 

Previous		 

gsA	budget	 	 2.0% 

Allocation	for		 

sustainability 	 1.0%	 

		0 

–1.0% certified					silver						gold 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

the	cost	of	leed	 

Because the original increase in the GCCRG was put in place before LEED was 

fully developed as a rating system, GSA conducted another study in 2004 to 

determine the cost of LEED certification. The GSA LEED Cost Study examined 

the additional costs, if any, of developing green facilities using LEED 2.1. The 

study looked at two building types—a new mid-rise Federal courthouse and a 

mid-rise Federal office building modernization. These building types reflected 

a significant percentage of GSA’s planned capital projects at the time. 

The study determined incremental costs for green by comparing GSA’s 

requirements, reflected in the construction cost table, to changes required 

to achieve LEED credits. The courthouse project analysis considered low- and 

high-cost scenarios for certified, silver and gold levels of LEED certification 

and the results ranged from a reduction in cost to a premium of 8.1%. It is 

interesting to note the estimated construction cost impacts for the certified or 

silver LEED scenarios fall well below both the 5% expected estimating accuracy 

and 10% design contingency carried by projects in the concept phase. 

The Federal building modernization analysis had similar results but reflected 

scopes of work based on full or partial façade replacement. Soft costs were 

identified from firms with actual experience on GSA sustainably designed projects 

providing anecdotal information on the additional time required to achieve LEED. 

It should be noted, however, that the GSA LEED Cost Study addressed first costs 

only, without examining potential benefits or cost-benefit relationships. 

info:	 gsA	leed	cost	study	–	www.wbdg.org/ccb/gsAmAn/gsaleed.pdf 	 55	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement of Green Buildings 

Additional	research	and	results 

GSA was not the only entity of the Federal government concerned with 

the value of sustainable design. The Federal Energy Management Program 

(FEMP) and the Interagency Sustainability Working Group (ISWG) initiated 

another early research effort on the cost of green buildings. Their research 

document, The Business Case for Sustainable Design in Federal Facilities, 

completed in 2004, examined the economic, social, and environmental 

benefits of sustainable design. The report provides significant financial 

evidence, from both research findings and case studies, that sustainable 

design is not only good for the environment, but is also a smart business 

choice. Benefits include annual energy, water, and O&M cost savings, lower 

churn (reconfiguration) costs, higher resale value, lower liability, reduced 

environmental impact, and increases in the productivity, safety, security, 

health, and well-being of building occupants. 

Davis Langdon, a consulting firm offering cost planning and sustainable 

design management services, published a study, Examining the Cost of Green 

in 2004, followed by Cost of Green Revisited, an updated version in 2007. 

The conclusions of both reports were nearly identical; in short, there are so 

many cost factors in construction today that it is nearly impossible to detect 

any statistically significant difference between the cost of conventional and 

green buildings. The report examined the budgets for 221 projects over a 

span of 10 years. Eighty-six of them had pursued various levels of LEED 

certification. The resulting data suggest that green building aspects tend to 

have a lesser impact on costs than other factors and led the authors to 

conclude, “buildings cannot be budgeted based on averages.” 

info:	 the	business	case	for	sustainable	design	in	federal	facilities	–		 

	 www1.eere.energy.gov/femp/pdfs/bcsddoc.pdf 

info:	 davis	langdon	–	www.davislangdon.com/usA/research 

56 
 

 

dAvis lAngdon CosT CompArison sTudy cost	of	construction	Per	squAre	feet	in	dollArs

800 

700 

600 

500 

400 

300 

200 

100 

0 

Projects 

leed	certified,		 

gold,	and	silver	 

construction 

non-certified	 

construction 

dAtA	source:		
 

Cost of Green revisited,	2007	 	 57	 sustainability	matters
 
58
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:	 A	design/build	APProAch	wAs	used		 

for	the	u.s.	census	heAdquArters	 

in	suitlAnd,	mArylAnd.	 

	 top:	 the	u.s.	courthouse	in	seAttle	 

incorPorAted	green	strAtegies	 

through	A	trAditionAl	design/bid/ 

build	contrAct.	 

	 above:	 using	A	cm	@	risK	contrAct	enAbled	 

the	morse	courthouse	in	eugene,	 

oregon,	to	AchieVe	A	leed	gold	 

rAting	within	budgeted	costs.	 

green Building proCuremenT sTrATegies 

The common theme to successful green procurement is to structure the 

procurement to capitalize on the combined knowledge of the team (designer, 

builder, developer, lessor and government). Prescriptive contracts are 

problematic in any complex procurement, and especially so in green 

procurement for new buildings or major renovations. Seeking the best value 

begins before the procurement and should continue through project execution. 

Success is achieved through technically solid and imaginative solutions 

evaluated by competent and open-minded government teams. Performancebased specifications—measurable and linked to contract terms that provide 

incentives to achieve the outcomes—are more likely to succeed than rigid 

specifications for particular materials or design solutions. Although this 

section does not fully describe the several procurement methods currently 

in use, it makes suggestions for each that should enhance the likelihood of 

excellent results. 

new	construction 

Design/bid/build, also referred to as “traditional” delivery, has been the 

standard method of procuring GSA-owned buildings since competitive bidding 

regulations were established in government procurement laws. Missed 

opportunities to incorporate the expertise of construction companies in the 

evaluation of design alternatives are a sustainability downside to this method, 

because the design and construction process is separated by procurement. 

The solution to this potential problem is to keep the design team involved in 

the inevitable evolution of the design during the construction phase. 

	 59	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement of Green Buildings 

Design/build and bridging design/build are newer delivery methods used by 

GSA. The key to success on design/build delivered projects in GSA has been 

the ability of project delivery teams to work collaboratively toward achieving 

the project’s sustainable design goals, and to not sacrifice life-cycle costeffective design features in favor of lower first costs (construction costs) as 

key design decisions are made. It has proven essential in design/build 

delivered projects to clearly define sustainable design goals, expectations and 

requirements in the request for proposals (RFP). 

Much like design/build, Construction Manager as Constructor (CM @ Risk, 

or CMc) has more recently been used as an alternative delivery method to 

control costs better in the pre-construction phases of GSA projects. GSA 

teams that have used CMc often favor it over design/build because the 

architect-engineer is independent of the CMc, thus providing greater flexibility 

and collaboration in evaluating and pricing out sustainable/green building 

features during design phases. 

leasing 

GSA’s lease construction projects have earned not only the greatest share of 

LEED ratings, but also the highest LEED ratings. As early as 2000, GSA realty 

specialists began using LEED requirement compliance to help ensure that 

tenants receive quality work environments that meet GSA sustainable design 

mandates without raising the cost of the leases. Typical procurement language 

requires a LEED rating at the certified or silver level. Soon developers began 

to exceed the new mandates, providing GSA with buildings that achieved gold 

60 
	 shown:		 the	leAse	for	the	600,000	squAre	foot	 

irs	cAmPus	in	KAnsAs	city,	missouri,	 

required	leed	certificAtion. 	 61	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement of Green Buildings 

LEED ratings. This is further evidence that the cost of building green can be 

managed within market budgets; developers would not be exceeding GSA 

standards if they could not construct projects profitably. 

Private sector developers, in fact, have learned to juggle initial costs and 

operating costs to deliver projects that not only meet sustainability objectives, 

but with rents at or below market rates. Some developers have also learned to 

leverage lower operating costs—achieved through energy efficiency, use of 

daylight, and more durable materials—to more effectively market these 

buildings for leasing both to the private sector and to the government. 

GSA has used both incentive and penalty clauses in its contracts. In two 

cases, GSA included a clause in leases that allowed it to deduct a $250,000 

penalty on one project or 10% of the annual rent payments on the other if the 

lessors did not deliver a silver LEED rating. In both instances, the completed 

buildings achieved LEED Gold and the leases were awarded at or below 

market rates. 

Some of GSA’s most prominent leases—and even some smaller ones—use a 

two-stage procurement method resulting in a design/build project with the 

potential of achieving a greener building. This short-listing method provides 

a far more efficient competition between those best qualified for the project. 

In-depth discussions, covering every aspect of the proposals, are held with 

each finalist in order to determine which promises the most innovative 

solutions to the project’s design challenges. 

62 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

AT The penTAgon: 

16-pAge performAnCe 

requiremenTs 

in	the	continuing	evolution	toward	 

true	performance-based	requirements,	 

all	of	the	technical	language	for	the	 

architectural	and	building	systems		 

of	wedges	2–5	are	included	in	a		 

16-page	solicitation.	missing	are	the	 

“how-to”	instructions	typical	of	 

former	solicitations,	which	limited	the	 

contractor’s	creativity	and	innovation	 

in	achieving	the	specified	results.		 

to	fully	gauge	how	significant	this	 

step	is,	consider	that	in	1997	the	 

technical	requirements	for	the	 

construction	of	wedge	1,	acquired	 

under	the	design/bid/build	method,	 

and	representing	only	25%	of	the	 

square	footage	of	the	total	acquisition,	comprised	more	than	3,500	 

pages	of	the	solicitation. 

	 left/top:		 the	dePArtment	of	trAnsPortAtion	 

heAdquArters	in	wAshington,	dc,		 

resulted	from	A	two-stAge	leAse	 

Procurement	thAt	included		 

A	Post-AwArd	detAiled	design.	 

	 left:		 the	ePA	leAse	At	PotomAc	yArd	in		 

Arlington,	VirginiA,	included	A	PenAlty	 

clAuse	to	ensure	A	minimum	leed	silVer	 

certificAtion;	it	AchieVed	gold.	 

innovative	Procurement	 

The Pentagon Renovation Team developed a unique incentive clause for their 

construction contract awarded in 2000. At quarterly sustainability reviews, 

the project manager evaluated the contractor’s performance against a number 

of factors, including use of environmentally preferable materials, construction 

waste management, and energy-efficient solutions. The team received the 

contracted amount if it met the project expectations. A specified percentage 

bonus was available if the team exceeded the goals. The entire construction 

team became focused on making sure they earned the bonus for each quarter. 

energy	savings	contracts	 

Two types of contracts allow agencies to accomplish energy projects for 

their facilities without up-front capital costs. The Chairman of the Council 

on Environmental Quality, establishing Executive Branch policy, has required 

all agencies to increase their use of ESPCs and UESCs. 

energy	saving	Performance	contract	(esPc)	 

Energy Saving Performance Contracts can help the government leverage 

private sector investment in projects through the use of energy services 

company (ESCO). ESPCs make it possible for agencies to undertake more 

and larger efficiency improvements than their budgets might otherwise allow. 

The ESCO contractor begins by conducting a comprehensive energy audit 

at the facility and identifies improvements that will save energy. Next, the 

contractor designs and constructs a project that meets the agency’s needs 

and arranges financing to pay for it. The ESCO guarantees that the 

	 63	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cost, Value and Procurement of Green Buildings 

improvements will generate energy cost savings sufficient to pay for the 

project over the term of the contract, which can run up to 25 years. In return, 

the government pays the contractor over the agreed number of years amounts 

that cannot exceed the guaranteed savings in any year until the improvements 

have been paid off, including interest. Any negotiated performance period 

services provided by the contractor, such as measurement and verification 

(M&V) and maintenance, are also paid for by the government over the term 

from within the guaranteed savings. After the contract ends, all additional 

cost savings accrue to the agency. The ESPC can also be combined with 

government-funded renovations, either through the ESPC contract, or in 

conjunction with it. 

utility	energy	service	contract	(uesc)	 

Utility Energy Service Contracts are similar to ESPCs, except the electric or 

gas utilities serving the agency’s site performs the work. With a UESC, the 

utility arranges financing to cover all or a portion of the capital costs of the 

project and is repaid over the contract term from the cost savings generated 

by the energy-efficiency measures. These contracts can either be negotiated 

directly by the agency, placed through an existing “area-wide agreement” 

the utility has with GSA, or established through a “basic ordering agreement.” 

	 above:		 the	fdA	cAmPus	in	white	oAK,	mArylAnd,	 

included	An	esPc	to	ProVide	A	 

cogenerAtion	PlAnt.	 

64 
 

“

“

“

— - -

—

“

”

working wiTh gsA To geT greener Buildings 

the	u.s.	environmental	Protection	Agency	believes	that	its	partnership	with		 

gsA	produces	better	leases	and	better	buildings,	which	provide	highly	functional,	 

quality	workspaces	with	significantly	reduced	environmental	impacts.	 

ePA	supports	gsA	by	clearly	defining	our	space	needs,	functional	requirements,	 

and	environmental	performance	standards	prior	to	acquisition;	by	asking	gsA		 

to	structure	each	major	procurement	to	maximize	results;	and	by	requesting	 

information	on	current	market	conditions	including	the	benefits	and	costs	of		 

new	construction	versus	leasing	space	in	existing	buildings.	 

together,	the	two	agencies	consider	appropriate	acquisition	approaches.	the	 

source	selection	process whether	a	design	competition	for	a	new	build to suit	 

lease	or	a	best	value	to	the	government	lease	evaluation requires	more	work		 

than	a	standard	low	cost	procurement,	but	we	strongly	believe	these	approaches	 

produce	innovative,	higher	quality	and	greener	buildings. 

my	guess	is	that	not	all	clients	come	to	gsA	with	the	same	passion	or		 

background	as	ePA.	i	encourage	gsA	project	managers	and	gsA	acquisition		 

staff	to	take	the	time	to	educate	these	clients	and	pass	on	the	passion	for	 

excellence	in	environmental	performance	and	great	workspaces.	ePA	has	learned	 

a	tremendous	amount	from	gsA	over	the	years,	and,	in	some	ways,	i	believe		 

ePA	has	helped	gsA	expand	its	horizons	and	comfort	zone.	it	has	been	a	long	 

and	productive	partnership,	and	one	that	will	continue. 	 

bucky	green	 

chief,	sustainable	facilities	Practices	branch	 

u.s.	environmental	Protection	Agency 

	 above:		 the	science	And	technology	center	in	 

KAnsAs	city,	KAnsAs,	is	A	gsA	leAse	for	 

ePA	thAt	exceeded	sustAinAbility	goAls	 

to	AchieVe	A	leed	gold	rAting.	 	 65	 sustainability	matters 
66
 

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C A s e s T u d y : C o s T, vA l u e A n d p r o C u r e m e n T 

EPA Region 8 Headquarters 

seTTing A sTAndArd for susTAinABle design 

in	2004	a	significant	lease	procurement	in	downtown	denver	captured	the	 

interest	of	many	of	the	nation s	major	developers	and	top	architects	and	 

engineers.	the	project,	a	new	250,000	gross	square	foot,	state of the art	 

regional	headquarters	for	ePA,	called	for	class	A	space	that	reflected	ePA s		 

core	mission	of	protecting	the	environment.	complete	with	retail	space,		 

security	standards	for	a	level	iV	facility	and	leed	silver	certification		 

(at	a	minimum),	the	lease	became	the	most	sought	after	construction		 

project	in	the	region. 

	 left:		 building	orientAtion	Along	with	horizontAl		 

And	VerticAl	fins	helPs	to	oPtimize	the	energy	 

PerformAnce	of	the	ePA	heAdquArters	in	 

denVer,	colorAdo.	 	 67	 sustainability	matters 
 

 

 

 

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EPA Region 8 Headquarters 

gsA	leed	building 

ePA	regionAl		 

heAdquArters 

DENVER, CO 

LEED NC rated: Sep 17 2007 

gold	 

Sustainable Sites 9 14 

Water Efficiency 4 5 

Energy and Atmosphere 9 17 

Materials and Resources 7 13 

Indoor Environmental Quality 6 15 

Innovation and Design 5 5 

40 69 

green	fActs 

		40%	water use reduction 

100%	green power supplied 

by facility 

				1st	 planted roof in 

downtown Denver 

Collaboration between EPA and GSA resulted in a detailed solicitation for 

offers (SFO) that incorporated both the essential elements of a government 

lease and the specific program requirements of the tenant agency. To speed 

the procurement process and to take advantage of Denver s slow construction 

market, GSA decided to select a site before soliciting design proposals. The 

chosen site, on the 16th Street Mall in the Lower Downtown Historic District, 

is near public transit and urban amenities in keeping with GSA s and EPA s 

sustainable design goals. 

Two-sTep sourCe seleCTion proCess 

The first phase in the selection process, a competition, drew interest from over 

40 development teams who were evaluated on the basis of the proposed team 

members, their qualifications, financial strength and past experience on 

similar projects. The teams had to demonstrate successful experience within 

the last five years in delivering LEED rated buildings or using widely 

recognized green building design criteria in projects of similar size and 

scope. Price was not considered during the first phase of the selection 

process, and the government selected five teams to proceed to the next step. 

In phase two, the process required a conceptual design package that included a 

site plan, typical floor plans, representative elevations, sections, a narrative of the 

HVAC and other systems, material selections, and a rendering. The solicitation 

also requested details related to sustainable design and energy efficiency. 

Evaluation criteria for this phase reflected EPA s particular preferences, 

weighted as follows: sustainability, 25%; design, 20%; workplace, 20%; 

building operations, 20%; and price, 15%. The offerors were responsible for 

funding, preparing, and submitting LEED registration and documentation and 

understood that failure to meet a silver LEED rating would result in a one time 

68 penalty of $250,000, to be deducted from the rental payments. In addition, 
	 shown:		 the	two	l 

-shAPed	sections	surrounding		 

the	Atrium	hAVe	A	bricK	fAçAde	to	mAintAin	 

the	scAle	of	neighboring	buildings	in	the	 

historic	wArehouse	district.	 	 69	 sustainability	matters 
 

 

 

 

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EPA Region 8 Headquarters 

the facility was to meet ENERGY STAR certification within 14 months of 

reaching 95% occupancy. 

The second phase also included three interactive sessions between the 

selection panel and the short listed project teams. The first involved a review 

of the project s objectives, the second required a formal presentation by 

each team, followed by written feedback from EPA and GSA, and the third 

was a two hour presentation covering the design requirements in the SFO. 

A contracting officer from GSA participated throughout the process to ensure 

that all parties adhered to government regulations. 

This type of procurement can be very beneficial to the government; however, 

in order to provide the developer with accurate cost estimates, architects and 

engineers frequently feel it necessary to design in more detail than is asked 

for by the solicitation. The effort requires a substantial commitment of time 

and resources as much as $500,000 for the Denver EPA procurement. 

One way to reduce the cost of both competition and delivery is to rely more 

heavily on performance specifications. There is significant support for perfor 

mance specifications in government contract law and developers generally 

prefer performance contracts rather than a prescriptive approach. According to 

Marshall Burton of Opus: The government...should allow us to do what is best 

for the project, within the requirements of the performance specification... 

posT-AwArd TeAmwork 

In August 2004, GSA awarded the lease to Opus Northwest, LLC. They had 

previously delivered a LEED rated facility on another GSA lease construction 

project, the Department of Transportation facility in Lakewood, Colorado, which 

70 
 

 

 

 

 

 

 

 

 

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“ ”

	 left:		 file	cAbinets	instAlled	beneAth		 

windows	ProVide	occuPAnt	Access		 

to	dAylight	And	Views.	 

	 top:		 A	20,000	squAre	foot	modulAr	green		 

roof	is	the	first	in	denVer.	 

	 above:		 A	Projecting	 cornice 	ProVides		 

A	sunscreen. 

achieved LEED Silver. Opus would serve as both developer and contractor, with 

Zimmer Gunsul Frasca (ZGF) as the design architect. ZGF recommended Syska 

Hennessy as project engineers, based on previously successful collaborations. 

In order to ensure that the goals of the project were not compromised, GSA 

and EPA worked with the developer to negotiate project team and buildings 

system changes that arose after the contract was awarded. Some of the 

proposed structural and mechanical system changes resulted in potential cost 

savings for Opus, and the two agencies worked together to negotiate contract 

modifications. GSA and EPA also both hired technical consultants to provide 

review assistance and a representative from EPA s Sustainable Facilities 

Branch reviewed contract documents throughout the process to ensure that 

they respected EPA s priorities. 

Biweekly meetings of the entire team began immediately after the award 

and continued throughout the project. Design changes to meet requirements 

of the Lower Downtown Design Review Board and GSA s security setbacks 

reflected the team s ability to balance performance with construction cost, 

sustainability and security. 

Communication was key to managing the changes as well as the integrated 

design process. For example, the building features horizontal sunshades and 

vertical fins, recommended by security consultants rather than laminated 

glass, and by the designers to control solar gain and glare while maintaining 

access to daylight inside. After detailed modeling and analysis, the depth of 

the shades and fins were reduced, optimizing both security and daylighting 

performance and resulting in lower first costs. 

	 71	 sustainability	matters 
EPA Region 8 Headquarters 

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 ’ 	 far	left:		 fAbric	clouds,	designed	And	crAfted		 

by	A	sAilmAKer,	diffuse	dAylight	entering	 

the	nine -story	glAss -filled	Atrium.	 

	 left:		 wAter	feAtures,	locAl	stone,	And	bAmboo	 

surfAces	creAte	An	inViting	gAthering	 

sPAce	in	the	Atrium.	 

A model of susTAinABle design 

Opus proposed a gold LEED rating with their offer, even though the SFO only 

required silver. Although the SFO included a LEED scorecard listing EPA s 

targeted credits and points, it did not prescribe exactly how to achieve the silver 

rating an example of a performance based approach. The team, however, was 

required to submit an updated scorecard with new energy calculations at 

each phase of the project to ensure that goals were being met. 

In the end, the Denver EPA headquarters received a LEED Gold certification 

and has set the sustainable design standard for all new EPA facilities nation 

wide. A thoughtful procurement process and an integrated team approach 

resulted in a host of innovative sustainable design strategies, including: 

• photovoltaics mounted above a section of the green roof, 

• cloud like forms, constructed by sailmakers, which diffuse daylight 

throughout the atrium, 

• underfloor air distribution for all offices above the third floor, 

• dual flush toilets as well as waterless urinals despite skeptical 

city officials! 

• the first green roof in Denver. 

The cost of the 10 year, fully serviced lease came to $32.22/rentable square 

foot, including all utilities, janitorial services, landscaping, maintenance, snow 

removal, and security. While somewhat more expensive than the cost of EPA s 

former location, the agency is more than satisfied with its new high performance 

facility. Others seem to be as well. More than 1,800 people toured the building 

within the first four months, underlining EPA s commitment to sustainability 

through education. 

	 73	 sustainability	matters 
74
 

Energy Efficiency
 

thE PowEr of Saving EnErgy 

The efficient use of energy is at the heart of GSA’s drive for sustainability. 

Increased energy efficiency not only saves U.S. taxpayers’ money, it also 

reduces our country’s dependence on foreign oil and reduces the impact of 

GSA assets on the environment. Given that more than three-quarters of the 

electricity and one-third of the total energy in the U.S. are used to heat, 

cool, and operate buildings, the potential benefit for both energy and cost 

savings is significant. Given the Federal government’s enormous real estate 

holdings, modest improvement in energy efficiency, including those achieved 

without sacrificing the comfort or health of its tenants, can result in a 

significant, strategic reduction of our country’s need to import energy. Finally, 

as part of the Federal government’s continually expanding program to reduce 

greenhouse gases, energy efficiency has the power to greatly reduce our 

impact on the environment. Consumption is one part of greenhouse gas 

control; the other is how the energy is produced. Toward these ends, GSA 

focuses both on reducing energy demand and exploring alternative sources of 

energy supply. 

EnErgy DEmanD rEDuction 

Reducing energy through reducing demand involves numerous strategies, 

some dating back decades and others more recently evolved. 

Efficiency	Targets	 

GSA began setting energy reduction targets in response to the energy crisis 

in the early 1970s. Even after the price of petroleum had stabilized, GSA 

continued its efforts, and between 1985 and 2005 achieved a 30% reduction 

in energy consumption. In fact, GSA’s utility costs have been consistently 

lower than those in the private sector. In 2006, the agency reduced the 

	 left:		 ThE	WaynE	L.	MorsE	U.s.	CoUrThoUsE	in		 

EUgEnE,	orEgon,	pErforMs	30%	bETTEr		 

Than	ThE	rEqUirEMEnTs	of	ashraE	sTandard	 

90.1-1999.	 	 75	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Energy Efficiency 

overall energy consumption of its Federal inventory by another 4.7%, 

compared to 2003 levels, in response to the goals set in the Energy Policy Act 

of 2005 (EPAct 2005), the latest in a series of acts, beginning in 1978 that 

have set Federal policies for energy use reduction. The agency achieved this 

reduction by direct investment in energy and water conservation opportunities 

coupled with the concerted efforts of its property managers and tenants. 

Today, Executive Order 13423, Strengthening Federal Environmental, Energy, 

and Transportation Management, the Energy Independence and Security Act of 

2007 (EISA 2007), and EPAct 2005 govern GSA’s targets. On new construction 

projects, EPAct 2005 directs Federal agencies to ensure that all new Federal 

buildings exceed the building energy-efficiency standard (ASHRAE Standard 

90.1-2004) by at least 30%, if life-cycle cost effective. 

The ASHRAE standard does not dictate how to achieve the 30% reduction 

beyond a limited set of mandatory requirements, such as sealing leaks in the 

building envelope and air duct systems. Thus, each design team and Federal 

agency is free to achieve the mandated energy savings as it sees fit. For the 

purposes of calculating the 30% savings, energy consumption includes space 

heating, space cooling, ventilation, service water heating, and lighting, but 

does not include receptacle and process loads. 

EISA 2007 requires that new Federal buildings and major renovations of 

Federal buildings shall be designed so that the fossil fuel-generated energy 

consumption is reduced by 55% in 2010 and 100% by 2030. Under this law, 

the comparison is with commercial buildings, as measured in the Commercial 

76 
 

 

 

 

 

 

 

 

 

 

 

Buildings Energy Consumption Survey, conducted by the Energy Information 

Agency in 2003. Further, EISA requires that Federal agencies only lease space 

in buildings that have earned the EnERGy STAR label. 

All the discussion above refers to new construction; however, existing buildings 

offer the best opportunities for energy reduction. Both EPAct 2005 and Executive 

Order 13423 set significantly higher conservation targets for the agency’s 

portfolio of buildings—triple the previous reduction goals. Given that GSA has 

already reduced the energy consumption in its inventory by over 30% since 1985, 

these new goals will be challenging and will require taking every opportunity—in 

both major and minor renovations—to achieve the maximum energy reduction. 

The Executive Order, for example, requires that renovations must reduce the 

energy cost to 20% less than the 2003 baseline. 

Other salient EPAct 2005 provisions: 

• Requires advanced metering 

• Authorizes the use of ESPCs for all agencies through 2016 

• Requires purchase of only EnERGy STAR or FEMP designated products, 

if available, and only premium efficiency motors as approved by DOE 

• Specifies the increased use of recovered mineral content in concrete in 

all procurements 

• Codifies goals for renewable energy purchases 

	 77	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Energy Efficiency 

GSA measures energy consumption in all its buildings for which the 

government pays the utility bill. Every agency has flexibility in how it will 

achieve the aggregate, agency-wide reduction targets. Because energy costs 

and building conditions vary widely throughout the country, GSA uses both 

annual regional targets and specific building targets for all new construction 

and renovation. 

Energy	standards	&	Codes	 

Most new construction in the U.S. already meets local minimum energy 

code requirements, but there is ample room for improvement. Per capita 

energy use in California and new york, for example, is approximately half 

the national average due to stringent codes, rigorous enforcement and 

statewide incentives. Such codes contribute to achieving sustainability goals 

first by saving energy, second by reducing the need for power plants and 

thus the use of those natural resources that produce electricity, and third, 

by reducing emissions into the atmosphere. 

Codes generally offer both prescriptive and performance path criteria for 

compliance. Prescriptive criteria are easy-to-use tables containing minimum 

or maximum values, while performance paths set the end goal, which can be 

met by establishing an energy budget and balancing multiple energy-saving 

measures. For instance, if the wall insulation does not meet the prescriptive 

requirements, but the ceiling insulation exceeds them, a performance path 

method may bring the whole building into compliance with the code. 

78 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

advanced	Metering	and	demand	Load	Management	 

EPAct 2005 directs all Federal agencies to install advanced metering to 

measure electricity use in buildings. GSA, in fact, had already started 

installing advanced meters in the Washington, DC, and new york areas before 

the law required it. In the long run, advanced meters save money by managing 

power consumption more strategically. The minute-by-minute data provide 

building operators with a wealth of information that a monthly bill does not. 

Perhaps more importantly, advanced metering helps the government buy 

power at better prices, because it provides a better understanding of energy 

use patterns. Users can participate in demand reduction or load-shedding 

programs offered by utilities or grid operators, which can significantly lower 

costs either through curtailing use or on-site power generation. 

GSA uses a centralized approach to advanced meter data collection, analysis 

and reporting with a single software program and database, which not only 

simplifies these functions, but provides data with a uniform appearance to 

individual users across all regions. Perhaps more important is the analytical 

capability this provides GSA in managing building energy performance and the 

contracts for operations and maintenance. GSA’s advanced metering system 

will be integrated with its existing tracking program, Energy Usage and 

Analysis System (EUAS), thus providing a familiar reporting engine and 

creating an automated bill verification system. 

	 79	 sustainability	matters 
- -

4,500 

4,000 

3,500 

3,000 

2,500 

2,000 

1,500 

1,000 

500 

0 

WhoLE	bUiLding	poWEr	(kW) 

	 0	 1	 2	 3	 4	 5	 6	 7	 8	 9	 10	 11	 12	 13	 14	 15	 16	 17	 18	 19	 20	 21	 22	 23	 24 

$0.10	/	kWh .30 .75 .30 $0.10	/	kWh 

september	7th 

september	8th reference	day 

adr	Test	day 

TiME of day	CosT	of	ELECTriCiTy 

TiME	of	day 

demand	response	systems	not	only	save	 

electrical	costs	but	also	help	prevent	 

brown-outs	or	catastrophic	grid	failure.	 

EffEctS of an automatED DEmanD rESPonSE SyStEm 

sTUdiEs	froM	gsa’s	oakLand	fEdEraL	bUiLding 

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building	commissioning	arose		 

from	the	long	history	of	ship	 

commissioning—where	a	new		 

ship’s	“shakedown	cruise”	resulted	 

in	testing	and	fine	tuning	of	all		 

the	ship’s	systems,	particularly	the	 

mechanical	systems.	in	the	early	 

1990s,	the	industry	began	to	 

realize	the	need	for	similar	 

processes	to	test	and	validate		 

the	performance	of	buildings— 

preferably	before	the	occupants	 

move	in.	Commissioning	 

procedures	for	gsa	are	available	in		 

The Building Commissioning Guide. 

	 above:		 sysTEM	CoMMissioning	opTiMizEd	ThE	 

MEChaniCaL	sysTEM	of	ThE	saM	nUnn	 

fEdEraL	CEnTEr	in	aTLanTa.	 

Commissioning	 

Commissioning, a process that extends ideally from pre-design to project 

completion, guarantees that the design, installation, and operating procedures 

of a building’s equipment and systems are in keeping with the overall design, 

its contractual specifications, and most importantly, the tenant’s needs. 

In a process that must touch on every aspect of the project in order to be 

effective, the commissioning agent reviews and critiques the activities of 

design and construction teams. This ensures that the building’s systems 

designs are respected, reduces the likelihood of costly errors, and improves 

the efficiency and interactivity of all systems, resulting in increased tenant 

comfort and building profitability. Experience with commissioned buildings 

across the country, in fact, shows that adding rigorous commissioning to 

traditional design and construction produces buildings that are less costly, 

more energy efficient, more comfortable, and easier to maintain. 

In the case of existing buildings, the value of re-commissioning, or retrocommissioning if the building has never previously been commissioned, may 

be greater still, given the level of system inefficiency relative to today’s 

standards, the skyrocketing costs of energy, and the increased attention paid to 

the influence of the workplace on productivity. The process can be undertaken 

for its own benefit, or combined with partial or whole building renovations. EISA 

2007 requires that Federal agencies re- or retro-commission buildings every 

four years. 

When retro-commissioning is partnered with an energy-saving performance 

contract that focuses on equipment replacement and other capital improvements, a facility can greatly improve overall operations and dramatically 

reduce operating costs. 

info:	 The	building	Commissioning	guide	–	www.gsa.gov/commissioning 	 81	 sustainability	matters 
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’

—

CharLEs	E.	bEnnETT	fEdEraL	offiCE	bUiLding 

JaCksonviLLE,	fLorida 

high	energy	use	in	the	1960s	vintage	11 story,	330,000	square	foot	Charles	E.	bennett	 

federal	office	building	located	in	Jacksonville,	florida	represented	a	major	challenge		 

for	gsa	in	achieving	its	energy	management	goals.	in	2004,	as	part	of	a	$25	million	 

renovation	project,	gsa	completely	gutted	the	interior,	replacing	all	windows,	electrical	 

systems,	mechanical	systems,	and	controls.	 

The	holistic	redesign	effort	was	based	on	reducing	energy	usage	and	the	measurable		 

goal	of	achieving	an	EnErgy	sTar	rating.	gsa,	the	architects	and	engineers	used		 

an	integrated	approach	to	develop	multiple	solutions.	Energy	simulation	using	doE2	 

modeling	allowed	the	team	to	evaluate	and	compare	energy	savings	to	determine	the	best	 

value	for	the	government.	Using	this	comparison,	the	team	selected	a	design	that	included	 

web based	automation	systems	and	an	energy	and	climate responsive	hvaC	system.	 

To	ensure	their	decisions	worked	once	the	building	reopened,	commissioning	began	in	 

design	and	continued	through	construction.	This	allowed	the	team	to	address	system	 

deficiencies	early	in	the	process.	overall,	the	team s	efforts	lowered	building	energy	 

consumption	more	than	60%	in	fy	2005,	saving	23,781	Million	british	Thermal	Units	 

(MMbtu) enough	energy	to	power	208	homes	for	a	year.	The	building	received	an	 

EnErgy	sTar	label	and	a	U.s.	department	of	Energy	federal	Energy	and	Water	 

Management	award. 

82 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Life-Cycle	Cost	analysis	 

In any project, ideas compete for inclusion. The number of technologies and 

techniques that can improve existing building operations or enhance new 

design concepts vastly exceeds the likely budget for any project. Therefore, 

beginning with the earliest stage of project development, financial analytical 

tools will aid project teams in discriminating among options. GSA uses several 

layers of financial analysis to select which projects can be funded from its 

limited capital budget. A key result of the analysis is determining the most 

effective technologies to include in the project. By law, the national Institute 

of Standards and Technology (nIST) documents the techniques the government uses to perform this analysis. The Building Life-Cycle Cost Program, 

developed by nIST, provides computational support for the analysis of capital 

investments in buildings. 

Energy	Modeling	 

Energy modeling offers architects and designers an opportunity that was 

unimaginable only a few decades ago—the ability to foresee the effect of design 

decisions on energy efficiency long before construction begins. This capability 

allows designers to consider several approaches to design, siting, and massing, 

and to understand the energy consequences and potential costs of each. 

The most effective use of energy modeling begins early—at the concept 

stage. Energy modeling does not require a finished set of plans in order to 

be effective, and is most useful before designs are finalized. While it is, of 

course, impossible to predict the actual energy needs of an incomplete 

info:	 building	Life-Cycle	Cost	(bLCC)	programs	 	 83	 sustainability	matters 

	 	http://www1.eere.energy.gov/femp/information/download_blcc.html 
 

 

 

 

 

 

 

 

Energy Efficiency 

design, it is nevertheless possible to compare the energy repercussions of 

alternate approaches. Given the project’s location, scope, and specific needs, 

energy modeling can also help designers concentrate on a project’s most 

important design variables, and how building materials affect lighting, 

heating, or cooling. GSA is currently leading efforts within the construction 

industry to document and evaluate the implementation of building information 

modeling (BIM) technologies, which assist energy performance analyses, 

as well as operational practices. 

84 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

thE control of light 

gsa	requires	the	use	of	lighting	controls	 

in	regularly	unoccupied	spaces.	 

•	occupancy	sensors	use	infrared,		 

	 ultrasonic	or	microwave	technology		 

	 and	respond	to	movement	or	object		 

	 surface	temperature,	automatically		 

	 turning	off	or	dimming	luminaires		 

	 when	rooms	are	left	unoccupied.		 

	 Typical	savings	run	from	10	to	50%,		 

	 depending	on	the	application.	 

•	Timers	are	simple	clocks	that	turn		 

	 lighting	off	on	a	set	schedule.	if		 

	 spaces	are	known	to	be	unoccupied		 

	 during	certain	periods	of	time,	timers		 

	 are	extremely	inexpensive	and	cost-		 

	 effective	devices.	 

•	daylight	sensors,	though	not	required,		 

	 should	be	considered	within	15	feet		 

	 of	windows	and	skylights.	Energy		 

	 savings	of	10	to	50%	are	possible. 

•	occupancy	sensors	make	sense	for	the		 

	 entire	building.		Modern	lighting	control		 

	 systems	can	reduce	the	whole-building		 

	 cost	of	lighting	by	30%. 

	 left:		 biM	aLLoWs	inTEgraTion	of	sysTEM		 

CoMponEnTs	WiTh	dEsign	ELEMEnTs		 

in	This	rEndEring	of	ThE	JaCkson,		 

Mississippi,	CoUrThoUsE—ThE	LargEsT		 

biM	ModEL	prodUCEd	To	daTE.	 

	 above:		 soLar	ThErMaL	CoLLECTors	arE	a		 

CosT-EffECTivE	soLUTion	for	providing		 

hoT	WaTEr	in	CoMMErCiaL	bUiLdings.	 

EnErgy SuPPly 

Sustainable energy supply strategies refer to alternative energy sources 

and their applications. 

solar	 

The sun’s heat and light provide an abundant, inexpensive source of energy 

that can be harnessed in many ways, including concentrating solar power 

systems, passive solar heating, daylighting, photovoltaic systems, solar hot 

water, solar process heat, and space heating and cooling. 

daylighting	 

Daylighting, a passive solar strategy, is the controlled admission of natural 

light into interior space to reduce or eliminate electric lighting. Given that 

electric lighting accounts for 22% of the total electricity used in commercial 

buildings, good daylighting design will lower lighting operating costs and 

reduce the energy needed to cool the building by between 10 and 20%. 

This is despite a relatively small increase in first costs for dimmable ballasts, 

fixtures, and controls—all of which will be recovered quickly and enable 

daylighting to help reduce energy consumption. 

solar	Water	heating	 

Solar water heating, a simple, reliable, and renewable energy technology is 

effective on buildings with appropriate near-south-facing roofs, or with nearby 

shade-free sites where a collector can be installed. Such systems are most 

cost-effective for buildings with high fuel costs for heating water, and constant 

	 85	 sustainability	matters 
’

Photovoltaic roof 

The	national	archives	and	records	administration	(nara)	facility	in	Waltham,	 

Massachusetts,	has	a	377-kilowatt	building-integrated	photovoltaic	system	installed	 

as	its	roof.	The	flexible,	flat	panel	photovoltaic	array	is	heat	welded	into	the	roofing	 

material	and	qualifies	as	a	“Cool	roof”	under	Epa s	EnErgy	sTar	program.	The	 

project	will	save	approximately	$204,000	and	5.55	billion	btu	annually.	it	is	now	 

producing	more	than	50%	of	the	building’s	electricity	needs. 

Solar Park 

in	2007,	at	the	denver	federal	Center,	gsa	began	constructing	a	one-megawatt	 

solar	photovoltaic	array	on	six	and	one-half	acres.	This	“solar	park”	will	save	 

$405,000	per	year	in	electrical	charges.	The	energy	obtained	from	the	solar	park	 

will	both	feed	directly	into	the	regional	grid	and	will	be	used	at	the	center.	it	has		 

a	positive	return	on	investment	after	just	11	years. 

86 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

“i’d put my money on 

the sun and solar energy. 

what a source of power! 

i hope we don’t wait ’til 

oil and coal run out before 

we tackle that.” 

ThoMas	Edison 

	 

	 

	 

top:		 EvaCUaTEd	TUbE	CoLLECTors	ConTain	METaL	 

pLaTEs	To	CapTUrE	and	TransfEr	soLar	 

EnErgy	for	hEaTing	WaTEr.	 

above:		 CrysTaLLinE	phoTovoLTaiC	panELs	arE	onE		 

of	Many	opTions	avaiLabLE	for	TUrning	 

sUnLighT	inTo	ELECTriCiTy. 

yearly (not absent in the summer) and weekly (using solar heat every day) 

water-heating loads. Typical best practice, or that which most effectively 

minimizes life-cycle cost, is a system design that meets 100% of the load on 

the sunniest day of the year (and thus approximately 70% of the annual load). 

solar	cells/photovoltaics	(pv)	 

Solar cells, also known as photovoltaics (PV), convert sunlight directly into 

electricity, using semiconducting materials similar to those used in computer 

chips. Because thin film solar cells use layers of semiconductor materials only 

a few micrometers thick, it is possible for solar cells to be bonded to roofing 

materials, offering the same increased protection and durability. 

Cost-effective renewable opportunities depend on a number of factors, 

including the utility rate and rate structure, available incentives, and whether 

the state renewable portfolio standard includes a solar set-aside (thus creating 

a solar REC [Renewable Energy Credit] market). A potential site must also 

consult with its serving utility to determine if the electricity generated in 

excess of local needs can be sold back to the utility at reasonable rates. 

PV installations provide an extremely low maintenance, long-lived source of 

power. The first commercial PV panel installed more than 50 years ago is 

still producing power. 

	 87	 sustainability	matters 
 

 

’

 

 

’

-

-

2002: firSt fEDEral BuilDing 

to uSE 100% winD EnErgy 

The	binghamton	federal	building		 

in	new	york	state	is	the	first	 

federal	facility	in	the	nation	 

powered	by	100%	wind	energy.		 

The	power	flows	directly	from		 

a	new	wind	turbine	installed	at		 

the	fenner	Wind	farm	in	the		 

town	of	fenner,	new	york.	This	 

project	not	only	demonstrated		 

gsa s	commitment	to	energy	 

independence	and	environmental	 

stewardship	but	also	helped	to		 

spur	economic	growth	of	a	new	 

industry	in	a	small	community	 

economy.	 

StatuE of liBErty 

PowErED By winD 

in	2006,	gsa	awarded	a	contract	to	 

supply	the	national	park	service s	 

statue	of	Liberty	and	Ellis	island	 

with	electricity	generated	from		 

100%	wind	resources.	The	three 

year	contract	will	supply	approxi 

mately	28	million	kilowatt	hours		 

of	renewable	energy	to	the	two	 

landmark	sites.	The	statue	of	 

Liberty	is	not	only	a	beacon	of	 

freedom	to	the	rest	of	the	world,		 

but	also	a	welcome	sign	of	the	 

future	in	renewable	energy. 

88 
 

 

 

 

 

 

lanDfill gaS hEat 

in	fy	2003,	nasa’s	goddard	 

space	flight	Center	(gsfC)	 

became	the	first	federal	facility		 

to	heat	its	buildings	with	landfill	 

gas.	The	6	million	tons	of	waste	 

held	by	the	sandy	hill	Landfill	in	 

bowie,	Maryland,	generates	about	 

2,300	cubic	feet	per	minute	of	 

landfill	gas,	which	will	supply	80%	 

or	more	of	the	energy	needed	to	 

heat	the	facility,	and	at	a	lower	 

cost	than	conventional	natural	gas.	 

in	2003,	this	initiative	saved	gsfC	 

more	than	$1	million	in	energy	 

costs	and	contributed	more	than	 

270	billion	btu	toward	the	federal	 

renewable	energy	goal.	since	the	 

previous	source	of	heating	was	 

natural	gas,	there	was	no	increase	 

in	greenhouse	gas	production.	 

Wind	 

A clean, inexhaustible, energy resource, wind is one of the fastest-growing 

means of generating electricity in the world. The United States, the world’s 

largest producer of wind-generated energy, currently generates more than 

10,000 megawatts of electricity—or enough to power 2.5 million average 

American homes—and industry experts predict that with proper development, 

wind energy could eventually provide 20% of all U.S. energy needs. Small wind 

systems also have potential as distributed energy resources. Distributed energy 

resources refer to a variety of small, modular power-generating technologies that 

can be combined to improve the operation of the electricity delivery system. 

biomass	 

Although wood is still the largest biomass energy resource, other sources include 

food crops, grassy and woody plants, residues from agriculture or forestry such as 

paper mill residue or lumber mill scrap, and the organic component of municipal 

and industrial wastes. The natural gas generated by landfills—methane—is now 

used as a source of biomass energy. Biomass as fuels can reduce our dependence 

on fossil fuels and foreign energy sources. Biofuels are, in fact, the only renewable liquid transportation fuels now available. 

A key concern, however, is that most biomass energy is produced by burning, 

thus contributing to the production of greenhouse gases. In some cases it is 

possible to harness biomass without adding to greenhouse emissions. Even 

though burning the methane will produce greenhouse gases, the methane is 

already typically being dumped into the atmosphere from landfills to guard 

against explosions. Harnessing energy in this way produces no increase in 

harmful gases. 

	 89	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Energy Efficiency 

	 above:		 ThE	fda	CaMpUs	in	WhiTE	oak,	MaryLand,		 

UsEs	a	CogEnEraTion	pLanT	for		 

ELECTriCiTy,	hoT	WaTEr,	and	sTEaM. 

geothermal	 

There are two main methods for using the earth for geothermal energy, 

neither of which burns fossil fuels or creates emissions other than water vapor. 

The first method is the geothermal power plant, which uses the natural hot 

water and steam from the earth to turn turbine generators to produce electricity. 

The second is the geothermal, or ground source, heat pump. It uses the mass 

of the earth, which maintains a relatively constant subsurface temperature. 

By pumping fluid through loops of pipe buried near a building, these systems 

transfer heat into buildings during the winter and out of them during the 

summer. 

Geothermal heat pumps reduce electricity use by 30–60% because the 

electricity that powers them is used only to move fluid, not to heat or cool it. 

According to joint studies by EPA and the General Accounting Office, heat 

pumps are the lowest cost/greatest benefit retrofit technology available today. 

Cogeneration	 

Cogeneration, or combined heat and power, is a method of generating 

electricity and simultaneously capturing the heat that is traditionally discarded 

as thermal energy, which is used for cooling and heating. Combined heat 

and power plants are typically three times as efficient as traditional electrical 

plants. The increased efficiency reduces emissions and lowers operating costs; 

local plants also provide for continuity of operations in the case of grid 

disruptions (blackouts). 

In 2003 GSA, working with Sempra Energy Solutions, designed a project for 

the FDA’s White Oak, Maryland, campus that improved energy efficiency, 

security, and reliability. The team awarded an ESPC to install a 5.8-megawatt 

combined heat and power (CHP) facility as part of the first phase of the 

90 
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-

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-

CUsToMhoUsE	rEnovaTion	 

porTLand,	MainE 

in	the	portland,	Maine,	Customhouse	renovation,	the	gsa	project	manager	 

directed	the	designers	to	investigate	and	run	a	building	life cycle	cost	 

comparison	on	a	geothermal	system	that	would	eliminate	the	need	for	a		 

chiller	and	boilers	and	address	a	host	of	other	issues	as	well.	The	analysis	 

demonstrated	that	the	geothermal	ground	loop	heat	pump	technology	saved	 

$80,000	(present	value)	over	the	traditional	chiller/boiler	hvaC	system	and	 

achieved	the	following	benefits:	 

•	has	a	life	expectancy	of	over	30	years,	with	low	maintenance 

•	eliminates	the	cost	and	environmental	liability	from	fuel	oil 

•	lowers	emissions	of	harmful	pollutants 

•	uses	up	to	30%	less	energy	than	the	conventional	systems 

•	reduces	mechanical	space	requirements	and	frees	up	space	for	a	gas fired		 

	 emergency	generator	where	there	had	been	no	emergency	backup 

•	provides	for	easy,	one hour,	switch	over	from	heating	to	cooling,	eliminating		 

	 typical	shoulder month	thermal	discomfort 

The	geothermal	heat	pump	system	installed	at	the	portland	Customhouse		 

is	only	the	second	such	installation	in	the	state	of	Maine.	 

	 91	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Energy Efficiency 

renewable	Energy	Credits	(rECs),	 

also	known	as	“green	certificates”	 

or	“green-e	tags,”	represent	all	of	 

the	environmental	attributes	or	 

benefits	of	a	specific	quantity	of	 

renewably	generated	electric	 

power.	rECs	are	created	when	a	 

renewable	energy	facility	 

generates	electricity	and	are	sold	 

separately	from	the	power.	rECs	 

create	cost	savings	by	spurring	 

renewable	power	generation	in	 

favorable	resource	locations,	 

regardless	of	the	location	of	the	 

ultimate	power	user.	When	gsa	 

purchases	rECs	on	behalf	of	the	 

federal	government,	the	market	 

responds	by	increasing	the	 

production	of	renewable	energy. 

campus build-out. The plant generates reliable, on-site electricity for three 

facilities on campus—a laboratory, office building, and multi-use facility. 

Heat is also recovered from the generating process to produce hot water, 

and chilled water in absorption chillers, increasing the thermal efficiency 

of the plant by 30% and significantly reducing pollution emissions. 

Furthermore, the planned expansion of the CHP system will eventually 

support 100 percent of the power needed for the entire, built-out campus. 

This will not only provide the facility with energy independence, but will 

also save the local utility the need to generate an additional 25 megawatts 

of power. The ESPC also covers installation of a photovoltaic array, lighting 

upgrades, glazing improvements, HVAC upgrades, and night set-back controls. 

Together these measures will save more than 37 million kilowatt-hours, 

$1.4 million in energy costs, and $2.1 million in operation and maintenance 

costs annually. 

renewable	power	purchases	 

There are three different methods for purchasing renewable power: Regulated 

Utility Green Pricing Programs, Competitive Renewable Power, and Renewable 

Energy Certificates (RECs). 

Regulated Utility Green Pricing Programs are voluntary plans offered by many 

utilities that allow customers to purchase renewable energy. Competitive 

Renewable Power, used in states with competitive electricity markets, allows 

Federal agencies to purchase renewable power through competitive electricity 

procurements. RECs allow Federal agencies to purchase renewable energy 

certificates in lieu of direct delivery of renewable power to a facility. 

92 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

distributed	Energy	 

Distributed energy technologies can relieve transmission bottlenecks by 

reducing the amount of electricity sent long distances along high-voltage 

power lines. A distributed energy program can be as simple as installing a 

small, stand-alone, backup electricity generator, or it can consist of a far 

more complicated electricity and thermal generation, energy storage, and 

energy management system integrated with the existing electricity grid. 

Distributed energy resources (DERs) are electric generation units (typically 

from 3 kilowatts to 50 megawatts) located within the electric distribution 

system at or near the end user. Within the electric power industry the terms 

used include distributed generation (DG), distributed power (DP), and DER. 

DERs include virtually any device that can produce electricity, from 

microturbines and fuel cells to internal combustion engines. 

DERs are used in the event of reduced frequency variations, voltage 

transients, surges, dips, or other disruptions, outages, or as a backup to 

the electric grid. They can also save costs during times when electric use 

and demand charges are high. 

	 above:	 disTribUTEd	EnErgy	Can	bE	prodUCEd		 

by	any	LoCaL	soUrCE. 

	 93	 sustainability	matters 
94
 
 

 

 

-

c a S E S t u D y : E n E r g y E f f i c i E n c y 

Bishop Henry Whipple Federal Building 

a focuSED aPProach to EnErgy EfficiEncy 

The	bishop	henry	Whipple	federal	building	has	been	the	focus	of	a	 

prolonged	and	comprehensive	effort	by	gsa	to	monitor	and	improve		 

energy	efficiency.	situated	within	the	fort	snelling	Military	reservation	in		 

hennepin	County,	Minnesota,	directly	between	st.	paul	and	Minneapolis,		 

it	has	570,248	rentable	square	feet	and	is	the	most	prominent	building		 

on	the	35 acre	federal	government	campus.	The	building	houses	regional	 

offices	for	the	department	of	veterans	affairs,	bureau	of	indian	affairs,		 

and	fish	and	Wildlife	service.	it	also	serves	as	the	national	hiring	Center		 

for	Customs	and	border	patrol/department	of	homeland	security.		 

	 left:		 a	rEdEsignEd	EnTry	and	oThEr	proJECTs		 

aT	ThE	WhippLE	fEdEraL	bUiLding	providEd	 

opporTUniTiEs	for	iMproving	EnErgy	 

EffiCiEnCy. 	 95	 sustainability	matters 
 

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Bishop Henry Whipple Federal Building 

Building facts 

building	Location: Hennepin County, 

Minnesota 

date	of	completion: 1969 

renovated: 2003 

size: 617,606 gross square feet 

Despite its age the Whipple Building was more than 30 years old when 

GSA decided to readdress its energy efficiency the building was still in good 

condition. The main components of its mechanical and electrical systems, 

however, had been in use since the building opened, and therefore had met or 

exceeded their normal life expectancy. GSA achieved a major milestone with 

the award of a Super Energy Savings Performance Contract with nORESCO in 

2002. This $3 million investment, funded through the ESPC (see Cost, Value 

and Procurement of Green Buildings chapter), resulted in lighting upgrades 

and HVAC and control system improvements. These initial steps convinced 

GSA to mount a more intense and focused approach to energy conservation, 

previously unseen in most Federal buildings. To date, results from the five 

year effort show a 20% reduction in energy consumption. 

high-impact	strategies 

This campaign, at the time unique in both its purpose and scope, started with 


a tough question: how could the combined actions of tenants and building 


management dramatically reduce energy consumption? In the summer of 


2003, a team of energy experts from GSA, the Department of Energy, and the 


Minnesota State Energy Office explored alternatives to traditional energy 


management. They identified and implemented three high impact strategies:
 

1 Design energy efficient building envelopes, 


2 Select energy efficient equipment, 


3 Improve building operations and maintenance (O&M)
 

The group concluded, however, that of the three, O&M based energy savings 


were the most elusive because they are actions, not things, and are thus 


much harder to measure and influence. The energy savings associated with 


a more efficient motor or an improved lighting system is easily determined 


through life cycle cost accounting. Once tried and proven, such changes are 


transferable to other sites, translating into immediate reductions in energy 


usage. This is not the case for O&M based conservation. 


96 
 

 

 

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iaq	and	Energy	savings 

In order to define and measure the O&M impact as quickly and efficiently 

as possible, the group installed comprehensive indoor air quality (IAQ) 

monitoring sensors throughout the building. Detailed analysis of the data, 

including carbon dioxide (CO2) levels, revealed over ventilation of the building, 

particularly when unoccupied. Temperature data showed certain areas 

overcooled in the summer and overheated during the winter. Both findings 

presented valuable energy conservation opportunities. On the other hand, 

relative humidity trends did not require additional mitigation. There were also 

no significant concentrations of carbon monoxide in the monitored spaces, 

and levels of odors and gases were relatively low. In general, these data 

indicated that occupancy related measurements like that of CO2 can be 

an adequate indicator of air quality. 

Using both the continuous IAQ data to target specific locations within the 

building for remediation and detailed energy studies of thermal processes 

measured at the fan units, the team identified energy savings opportunities 

of approximately $144,000/year more than 20% of the total annual energy 

used to heat, cool, and ventilate the building. 

Building on these basics, the team found additional savings. The largest 

of these was achieved through the control of room ventilation rates using 

continuous CO2 data and occupancy monitors. Additional savings came from 

improved temperature monitoring and control. The simple payback period 

calculated for all conservation measures ranged from 0.5 to 11.3 years; the 

weighted average payback for all measures was fewer than 2.2 years. In all, 

continuously monitoring the indoor air quality of the Whipple Building saved 

more than 20% of the energy used to heat, cool and ventilate it. 

	 above:		 nEW	vaLvEs	and	METErs	providE	bETTEr	 

ConTroL	ovEr	ThE	hvaC	sysTEM	To	opTiMizE	 

EnErgy	pErforManCE.	 	 97	 sustainability	matters 
 

 

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Bishop Henry Whipple Federal Building 

Lessons	and	recommendations	 

In order to determine if the savings at the Whipple Building could be 

replicated, GSA conducted a management study far more comprehensive 

than an energy audit. The study focused only on equipment inventories and 

operating plans. The following recommendations are thought to be applicable 

to all existing buildings: 

•	 Adopt a building performance standard contingent upon achieving a 

superior workplace. Operating criteria established to deliver this 

environment should govern estimates of the amount of energy needed 

for a specific building. 

•	 Consider stating energy usage as a function of occupancy, as well as a 

function of square feet. 

•	 Adopt energy optimization goals not absolute energy savings consistent 

with superior workplace environments. Focus national directives, regional 

goals, and building specific targets toward maximizing conservation, but 

without degrading the work environment. 

•	 Extend annual, weather normalized, regional energy goals through 2015. 

•	 Use the GSA Energy Center of Expertise and its regional energy experts to 

determine which facilities to include in calculating regional energy goals, 

and to reach consensus on facility types and weather normalization rates. 

98 
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•	 Adopt building specific energy targets. Building personnel need such 

targets to know whether they are ahead or behind their goals. 

•	 Review and amend the building operator bonus/reward system to take 

energy usage into account. 

•	 Reconfirm tenant temperature and ventilation requirements, identifying 

possible tenant incentives rent rebates, energy credits, and in kind 

benefits for single tenant, multi tenant, and multi zone spaces. 

•	 Amend O&M contracts to include an energy savings goal statement. 

For the Whipple Building, operating and maintenance expenses are projected 

to remain relatively stable, even though costs are steadily increasing, because 

the energy savings are offsetting the higher cleaning, mechanical, building 

support, and O&M administration expenses. 

The government s energy efficiency goals must always be in balance with 

an agency s primary mission a balance between well managed, reasonably 

priced space and the accomplishment of the agency missions both achieved 

at best value to the taxpayer. By this calculus, the Whipple project team 

greatly exceeded its goals. 

	 99	 sustainability	matters 
100
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water
 

SuStainable Site DeSign 

“these buildings will be here 

for hundreds of years—long 

after we [have] relocated the 

last tenant, or written the 

last report. they should be 

in the right location—that is 

our overriding responsibility.” 

GSA	Site Selection Guide 

	 left:		 The	OklAhOmA	CiTy	FederAl	BuildinG	 

emBrACeS	iTS	SiTe	wiTh	An	urBAn	PArk	 

OPeninG	FrOm	The	BuildinG	And	A	 

COurTyArd	ACCenTed	wiTh	TurF	GrASS,	 

hArdSCAPe,	And	A	wATer	FeATure.	 

Site selection and designing for “place” is key to providing new buildings that 

are iconic, respectful of taxpayer’s dollars and environmentally responsible. 

However, because the location of building sites are often set and not easily 

changed, many government projects overlook the opportunities for including 

sustainable site design objectives. Ignoring the site, its use and response to 

environmental factors, will affect building energy and water consumption, 

comfort, and tenant satisfaction. 

Site Selection 

There are political and financial implications to consider in choosing a site as 

well as customer requirements to address. GSA’s Site Selection Guide (2003) 

is a great resource that focuses on how the basic concepts of site section will 

affect the overall success of the project. 

As stated in the guide, “...site selection is a “life-cycle” decision that 

recognizes the balance among the initial cost of the real estate, the overall 

cost of executing the project, and the cost of operating the facility. It also 

recognizes the benefit (or cost) to the local community and the environment. 

While the initial cost may be a significant driver, all factors must be 

considered in order to make the right decision.” 

Transportation	and	Parking 

Site selection decisions are multifaceted. Two of the most important, but 

often overlooked criteria are access to public transportation and parking 

availability. Removing vehicles from our highways benefits the community 

and the health and well-being of commuters by improving air quality and 

removing the stress of extended daily travel. Therefore, whenever possible, 

inFO:	 GSA	Site Selection Guide	–	www.gsa.gov/siteselection	 	 101	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water 

Federal offices should be located in buildings with convenient, walkable 

access to light rail, subway and bus lines. A good rule of thumb is 

to be within a pedestrian-friendly distance of one-half mile. 

At some locations there are few, if any, alternatives to automobiles and 

parking will need to be provided. In those cases it is important to encourage 

car and van pools by providing priority parking at the facility. Other strategies 

include initiating car-sharing programs, designating preferred parking for 

hybrid cars and providing recharging stations for electric automobiles. 

It is also important to consider the neighborhood and its amenities when 

selecting a site. A facility near transit but without a range of amenities, such 

as restaurants, stores and other conveniences within walking distance, will 

increase the likelihood that people will want to drive to work. Providing secure 

storage areas and changing rooms with showers will encourage bicycle use. 

Brownfields	 

Government building sites frequently involve the remediation of land identified as a brownfield, which EPA defines as “abandoned, idled, or under-used 

industrial and commercial facilities where expansion or redevelopment is 

complicated by real or perceived environmental contamination.” 

GSA views brownfields as underutilized Federal properties that, through a 

partnership between the agency and the local community, can be reused to 

bolster revitalization efforts and remediate environmental contamination. As 

landlord and real estate agent for the Federal government, GSA understands 

that underutilized Federal real property can serve as a catalyst for urban 

revitalization when reused by localities to provide jobs, contribute to the local 

tax base, or preserve greenspace. Redeveloping former Federal property makes 

efficient use of existing infrastructure while providing an alternative to developing 

open space and contributing to urban sprawl. 102 
	 left:		 The	ePA	heAdquArTerS	in	denver,	COlOrAdO,		 

enhAnCeS	The	neiGhBOrhOOd	wiTh	SidewAlk		 

AmeniTieS	And	reTAil	SPACe	On	The	FirST	FlOOr.	 

	 above:		 The	FdA	CAmPuS	in	whiTe	OAk,	mArylAnd,	iS	lOCATed		 On	A	FOrmer	BrOwnField	SiTe	PreviOuSly	uSed	By	The	 

miliTAry	FOr	induSTriAl	And	OrdnAnCe	OPerATiOnS.	 

	 103	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water 

Optimizing	Building	and	Site	 

After selecting a site, the project team can positively affect building 

performance by taking best advantage of the site’s opportunities and 

constraints. The topography, geology and hydrology of the site will influence 

orientation and thermal massing decisions, as will the adjacent structures, 

existing trees and habitats. Solar and wind conditions can greatly influence 

the design team’s decisions and contribute to reduced energy use and 

renewable energy strategies. 

One of the most obvious approaches is using the sun, a perpetual source of 

energy, to lower utility bills. Passive solar strategies, such as glazing alternatives 

and the selection of appropriate shading devices, take advantage of the daily 

and seasonal changes in the sun’s movement to lower both energy use and 

heating and cooling costs. Design teams can employ architectural solutions that 

include building overhangs, fins, light shelves, louvers and variations in window 

depths to assist with sun control and optimize daylighting. Dense or well-placed 

vegetation such as trees and vines provide natural shading, as do geographical 

features like berms, hills and embankments. 

The	envelope	 

A key component of the exterior of a building is its envelope or skin. This 

protective layer keeps the elements out, comfort in, allows daylight and views, 

and provides the aesthetic image for buildings. The design team must pay careful 

attention to the selection of materials, moisture control management, thermal 

conductivity, and resistance, while also being attentive to the overall appearance. 

An important resource is the Building Envelope Design Guide by the National 

Institute of Building Sciences (NIBS) found on The Whole Building Design 

Guide website. Among its features are tools for computational fluid dynamics, 

104 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:	 exTeriOr	SunShAdeS	AlSO	FunCTiOn		 

AS	liGhT	ShelveS	TO	reFleCT	dAyliGhT		 

TO	inTeriOr	CeilinGS	AT	The	FdA	CAmPuS		 

in	whiTe	OAk,	mArylAnd.	 

	 top:		 lArGe	AreAS	OF	GlAzinG	ArTiCulATe		 

PuBliC	SPACe	in	COnTrAST	TO	SmAller		 

OFFiCe	windOwS	wiTh	liGhT	ShelveS	AT		 

The	dhS	leASe	in	OmAhA,	neBrASkA.	 

	 above:		 hiGh-PerFOrmAnCe	GlASS	COmBineS		 

TriPle	GlAzinG,	FriTTinG,	TinTinG	And	 

SunShAdeS	TO	OPTimize	viewS	And	enerGy	 

eFFiCienCy	FOr	The	ArrAj	COurThOuSe		 

in	denver,	COlOrAdO. 

wind modeling, and sophisticated dew point analysis. Although the guide 

includes a specific section on sustainability, it is important to remember that 

envelope decisions are integrated with and inseparable from the wholebuilding design. 

Site characteristics can help determine the building envelope. Architects 

design the building’s form and select materials for the skin to achieve the 

desired aesthetic image but also to suit the climate conditions. Insulation, 

fenestration and glazing, for example, of each solar orientation may vary 

according to prevailing winds. 

In fact, architects and engineers are realizing that wind can influence design 

and contribute to better building performance. Air movement resulting from 

pressure differentials can be used advantageously. Aerodynamic building form 

can harness air movement for ventilation and removal of heat from the 

building or even drive turbines to create electricity. Double skin façades are 

being used increasingly in commercial buildings and can affect performance 

related to wind and ventilation through the building. Computer analyses such 

as computational fluid dynamics allow modeling of airflow and temperature 

patterns to optimize the design. 

Glazing choices are among the most important decisions an architect makes. 

High-performance glazing products are now readily available with many 

combinations of U-value, visible light transmittance and shading coefficient of 

the glass. Climate considerations will often dictate whether to use double or 

triple insulating units. Beware of reflective glass as it diminishes the available 

natural light inside the building and can cause unpleasant glare on the exterior. 

inFO:	 Building	envelope	design	Guide	–	www.wbdg.org/design/envelope 	 105	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water 

Water ManageMent anD uSe 

Both inside and outside the building there are alternative strategies to manage 

water use more effectively and with less environmental impact than current 

practices, many of which make little sense from an environmental standpoint. 

For example, rainwater, wastewater and potable water are commonly all 

conveyed from the site without regard for source, cleanliness or reusability. 

Quickly moving rainwater away from buildings, while protective of the 

envelope, can contribute to erosion and introduce chemicals and pesticides 

into waterways. At the same time, cleaned and purified water is used for nonpotable purposes like irrigation and waste disposal. A better approach is to 

design site conditions that mimic the pre-development site and help restore 

natural hydrologic conditions. EISA 2007 requires that any development over 

5,000 square feet restore the site’s hydrology to pre-development conditions. 

Stormwater	management	 

Low-impact development (LID) is a sustainable stormwater management 

strategy. It is decentralized “source-control” technology that capitalizes on 

integrated design principles to create a balanced, hydrologically functional, 

beautiful, and sustainable site. The LID approach emphasizes conservation, 

impact minimization techniques, pollution prevention measures and 

controlling runoff. 

106 
 

1 

 

2 

 

3 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 A	veGeTATed	SwAle	FilTerS	wATer	TO	helP	 

reSTOre	The	PredevelOPmenT	hydrOlOGy	OF	 

The	SiTe	AT	The	SSA	TeleServiCe	CenTer	in	 

AuBurn,	wAShinGTOn.	 

	 top:		 A	unique	FeATure	OF	The	ePA	SCienCe	And	 

TeChnOlOGy	CenTer	in	kAnSAS	CiTy,	kAnSAS,		 

iS	A	10,000	GAllOn	underGrOund	TAnk	TO	 

COlleCT	rAinwATer	FOr	reuSe	in	The	COOlinG	 

TOwerS	And	TOileT	FluShinG.	 

	 above:		 A	PArkinG	AreA	OF	PermeABle	PAvemenT	AllOwS	 

STOrmwATer	TO	FilTer	inTO	The	GrOund	AT	The	 

OklAhOmA	CiTy	FederAl	BuildinG. 

Three basic strategies for comprehensive stormwater management are: 

1 Distribute stormwater to allow infiltration into the ground to replenish 

the water table while minimizing runoff into storm drains. 

2 Remove barriers to water infiltration including curbs and nonporous 

pavement. 

3 Filter, store and reuse the water that lands on-site. 

Strategies to achieve these goals include raingardens, bioswales, tree box 

filters, permeable paving, rainwater capture and planted roofs. 

Rainwater capture involves collecting rain—a natural resource—and holding 

it for future use. Cisterns, underground tanks, above-ground tanks and 

building integrated storage systems can be used to collect and store rainwater 

from either the roof or the site. Some systems use gravity while others require 

a pump. Collected water can be used as is for irrigation or filtered for flushing 

toilets. Some jurisdictions require labeling or coloring the stored water to 

prevent its use as potable water. 

Paved surfaces make up a large portion of developed sites and the use of 

permeable pavement is very effective at meeting the LID goal of stabilizing 

hydrologic conditions. Some types of alternative pavement include permeable 

asphalt, permeable concrete, grid block pavers, plastic grids, gravel, brick, 

and natural stone. These alternative pavements can be combined with 

traditional pavements to provide stormwater management, such as a parking 

lot with an asphalt driving lane and permeable parking areas. 

	 107	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water 

	 top:		 A	Green	rOOF	OF	Pre-PlAnTed	TrAyS	AdOrnS		 

An	OuTdOOr	TerrACe	AT	The	ePA	OFFiCe	AT	 

POTOmAC	yArd	in	ArlinGTOn,	virGiniA.	 

	 above:		 mulCh	mAde	FrOm	reCyCled	TireS	CreATeS	A	 

lOw	mAinTenAnCe	lAndSCAPe	AT	The	dunCAn	 

FederAl	BuildinG	in	knOxville,	TenneSSee.	 

environmentally	Preferable	landscaping	 

Environmentally beneficial landscaping guidelines that specify sustainable 

landscape management practices for conserving water are available from EPA’s 

GreenScapes program. Examples include mulching with organic matter to cool 

the soil and reduce moisture evaporation from the root area around plants and 

trees. The guide also suggests grouping plants of similar water needs together 

and irrigating the landscape by watering deeply, infrequently and slowly. 

XeriscapeTM is a set of common-sense gardening principles designed to save 

water while creating landscapes that take full advantage of indigenous plants to 

provide interest and beauty. Any selected plants must be native to the place and 

able to thrive in the area’s available rain supply, making irrigation unnecessary. 

The	Green	roof	 

For many, a planted roof is viewed as complicated to design and install. In 

reality, a planted roof is simply a ballasted roof system installed on a flat or 

low slope roof, except the ballast consists of a planting medium and plants. 

There are two basic types of planted roof, extensive and intensive. 

An extensive green roof has a planting medium that is six inches or less in 

depth, does not require irrigation and includes plant species such as sedums or 

other succulents. It is generally lightweight and applicable to new construction 

and many existing buildings. Load calculations are required to determine if 

structural reinforcement is required in existing buildings. Maintenance generally 

includes a yearly inspection, removal of debris and periodic fertilization. Modular 

systems where all the components of the planted roof are conveniently installed 

in a 2'x2' or 2'x4' tray, provide an alternative that is gaining popularity. 

Intensive green roofs are load intensive. These roofs are as deep as needed to 

allow for a variety of plants, shrubs, and trees that may require irrigation. They 

108 inFO:	 GreenScapes	–	www.epa.gov/GreenScapes 
 

–

8 

7 

reference	roof 

6 Green	roof 

5 

4 

3 

2 

1 

0 

	 APr	 mAy	 jun	 jul	 AuG	 SeP	 OCT	 nOv	 deC	 jAn	 FeB	 mAr 

APril	2001	 	mArCh	2002 

heAT	FlOw	(kwh	/	dAy) 

measurements	showed	a	significant	reduction	in		 

the	average	daily	heat	transfer	through	a	green	roof	 

compared	to	a	typical	roof	in	the	spring	and	summer. 

average Daily Heat FloW tHrougH rooF SySteMS 

The	national	research	Council	of	Canada	constructed	an	experimental	 

Field	roof	Facility	(FrF)	in	Ottawa,	Canada.	A	median	divider	separates	 

the	roof	of	the	FrF	in	two	equal	areas:	a	generic	extensive	green	roof	 

and	a	modified	bituminous	reference	roof.	Both	roof	sections	were	 

instrumented	to	allow	direct	comparison	of	their	thermal	performance. 

	 109	 sustainability	matters 
 

-

-

heAT	Flux	(w	/	m2) 

						heAT	lOSS														heAT	GAin 

40 

30 

20 

10 

0 

10 

20 

	 0:00	 3:00	 6:00	 9:00	 12:00	 15:00	 18:00	 21:00	 0:00 

Time 

Green	roof	 

reference	roof 

heat	flow	through	the	roofing	systems	on	a	summer	 

day	(july	16,	2001)	indicated	that	the	green	roof	 

reduced	the	heat	flow	through	the	roofing	system	 

significantly. 

Heat FloW tHrougH rooFing SySteMS 

The	national	research	Council	of	Canada	constructed	an	experimental	 

Field	roof	Facility	(FrF)	in	Ottawa	Canada.	A	median	divider	separates	 

the	roof	of	the	FrF	in	two	equal	areas:	a	generic	extensive	green	roof	 

and	a	modified	bituminous	reference	roof.	Both	roof	sections	are	 

instrumented	to	allow	direct	comparison	of	their	thermal	performance. 

110 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

gSa’S FirSt green rooF: 33 yearS anD going Strong 

in	1975,	the	edith	Green/wendell	wyatt	Federal	Building	in	Portland,	Oregon,	was	 

constructed	with	an	attached	below-grade	parking	garage.	rather	than	a	paved	parking		 

deck,	the	roof—an	intensive	green	roof—serves	the	community	as	a	park.	Part	of	the	 

Portland	Park	Blocks,	the	Terry	Shrunk	Plaza	is	the	size	of	a	city	block,	measuring	nearly	 

40,000	square	feet,	with	large	trees,	landscaped	areas,	a	grass	tiered	seating	area	and		 

an	amphitheater.	This	integrative	solution	provides	necessary	secure	parking	for	the	 

building,	stormwater	management	for	the	city,	public	amenities	for	the	people,	habitat		 

for	the	animals,	and	green	space	in	an	urban	center.	This	roof	has	been	an	asset	to	GSA,	 

already	exceeding	an	average	life	expectancy	with	over	33	years	of	service	without	a	leak,	 

repair,	or	any	anticipated	replacement	in	the	near	term.	 

may even include water features or areas for recreational activities. Maintenance 

will vary depending on the plant species but is similar to any landscape. 

Overall, the benefits of a planted roof include reducing stormwater runoff, 

improving water quality, reducing urban heat island effect, conserving 

energy, reducing sound reflection, creating wildlife habitat, and improving 

the aesthetics of the typical roof. An often overlooked benefit–and one 

with significant asset management impact–is the prolonged life of the roof 

membrane. Because a planted roof protects the membrane from the sun’s 

ultraviolet radiation, extreme temperature swings, and harmful pollution, 

the roofing membrane can last 50 to 100 years. 

interior	water	management	 

Increasing droughts and water scarcity are a growing global problem making 

potable water use reduction in buildings an environmental as well as an 

economic necessity. It is estimated that the Federal sector spends nearly 

$1 billion on water and sewage charges annually, much of it on potable water 

used for purposes other than drinking. There are a number of effective 

strategies available to designers and building managers. 	 111	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Site and Water 

ePact 1992 saves the united 

States over six billion gallons of 

water every day. 

restoom	Strategies	 

Restrooms offer the best opportunity for water conservation inside buildings. 

New high-efficiency single-flush toilets, for example, provide satisfactory 

performance using only 1.1 gallons per flush, significantly better than the 

1.6 gpf established by the Energy Policy Act of 1992. Dual-flush toilets, 

which offer two volumes—a full flush for solid waste and a lesser amount 

for liquid waste—are now available from all the major plumbing fixture 

manufacturers. 

Urinals by law may use up to 1.0 gpf; however, many are available in the 

market that use a half-gallon or less, and some do not use any water at all. 

Waterless urinals operate with several different technologies that eliminate the 

use of water to flush. They connect to typical drain lines but do not require 

water supply connections. Most utilize a replaceable cartridge filled with a 

lighter-than-water liquid sealant. All are odor-free if properly maintained. They 

do require different maintenance procedures from traditional installations and 

it is essential to train the custodial staff. However, with proper training, 

studies have shown that long-term maintenance costs are lower than 

traditionally plumbed urinals. 

Equipping faucets with flow restrictors is a common water-saving strategy. 

Also, infrared sensors, to control urinals, toilets, and sinks, as well as soap 

dispensers and paper towels, can reduce water or resource usage if properly 

calibrated and maintained. If not, they can waste more water than they save, 

especially with electronic motion sensors on toilets that often flush repeatedly 

or unnecessarily. New solar-powered faucets that can gather energy from any 

source, including restroom lighting, have come into the market. 

112 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 wATerleSS	urinAlS	CAn	SAve	40,000	GAllOnS		 

OF	wATer	Per	FixTure	Per	yeAr	And	lOwer	 

COSTS	iF	mAinTAined	PrOPerly.	 

	 above:		 A	wATer-SAvinG	PrOGrAm	iS	inCluded	AT	The	 

CAFeTeriA	OF	The	dePArTmenT	OF	TrAnSPOrTA-	 

TiOn	heAdquArTerS	in	wAShinGTOn,	dC.	 

Other	interior	means	and	methods	 

In addition to restrooms, food services facilities, such as cafeterias, offer 

water-saving opportunities. Many of the ENERGY STAR rated appliances are 

also water efficient. Additionally, an awareness program for cafeteria staff 

can help reduce wasteful practices. 

Changes to mechanical room equipment also may contribute to water 

conservation. Cooling towers, for example, have traditionally used a lot of 

water because mineral concentrations cause scaling on the tower slats that 

reduce efficiency. New life-cycle cost-effective models require fewer and less 

harmful chemicals and automatically monitor the concentrations. This also 

makes it possible to reuse cooling tower water for other purposes like irrigation 

or flushing toilets. 

A relatively new but viable water conservation method for commercial buildings 

is harvesting a building’s greywater, which can also be used for non-potable 

uses such as flushing waste or irrigation. Sources of greywater include sinks, 

showers, and drinking fountains as well as captured rainwater, and its use 

requires the installation of dual plumbing systems—an added expense that 

can be justified in some parts of the country. Local jurisdictions may have 

requirements about the treatment and labeling of these alternative wastewater 

sources. Additionally, it may be necessary to meter the sewage pipe to properly 

calculate sewage and water use. 

To protect the future of our nation’s water supply by promoting and enhancing 

the market for water-efficient products and services, EPA sponsors the 

WaterSense program. The WaterSense label, similar to that offered by ENERGY 

STAR, identifies and labels products and programs that meet water efficiency 

and performance criteria. 

inFO:	 waterSense	–	www.epa.gov/waterSense 	 113	 sustainability	matters 
114
 
 

- -

 

c a S e S t u D y : S i t e a n D Wat e r 

NOAA Satellite Operations Facility 

turning traDitional DeSign uPSiDe DoWn 

The	national	Oceanic	and	Atmospheric	Administration	(nOAA)	Satellite	 

Operations	Facility,	a	208,000 square foot	building	located	on	15.6	acres	 

within	the	Federal	Center	in	Suitland,	maryland,	features	both	a	bold	design	 

and	a	leed	Gold	rating.	The	facility	is	a	prime	example	of	the	way	in	which	 

a	sustainable	site	strategy	can	save	money	and	provide	a	striking	setting	for		 

the	building. 

		 left:		 underGrOund	PArkinG	And	A	lArGe	Green	rOOF	 

GreATly	reduCe	The	AmOunT	OF	imPermeABle	 

SurFACeS	AT	The	SiTe	OF	The	nOAA	SATelliTe	 

OPerATiOnS	CenTer.	 	 115	 sustainability	matters 
 

 

 

 

 

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 ’ 

 

 

 ’ 

 

 

 

 

 - 

 

 

 

 

 

 

 - - 

 “ ” 

 

 

 

GSA	leed	BuildinG 

nOAA	SATelliTe		 

OPerATiOnS	FACiliTy 

SUITLAND, MD 

LEED NC rated: Oct26 2007 

GOld	 

Sustainable Sites 10 14 

Water Efficiency 3 5 

Energy and Atmosphere 6 17 

Materials and Resources 5 13 

Indoor Environmental Quality 11 15 

Innovation and Design 5 5 

 40 69 

Green	FACTS 

	 84%	site area restored with 

 native and adaptive plants 

99.9%	non equipment roof - 

 areaplanted 

100%		landscape is not irrigated 

NOAA Satellite Operations Facility 

The design team of Morphosis and EYP worked through an integrated design 

process and developed a scheme based on several underlying goals. First, 

given that the site was part of a naturally wooded and grassy area, the team 

sought to hide as much of the building as possible in order to reduce its visual 

impact. Second, the team wanted to improve the work environment of the 

employees by locating all on a single floor, in contrast to the multi level 

workspace of the agency s previous World War II era building. Finally, the 

team wished to accommodate the satellite operations, its employees, and the 

necessary technology in an elegant and integrated form. 

As the site design progressed, the team became aware of the project s extensive 

requirements for stormwater management. If built in a typical fashion, the 

size of the facility and its 340 parking spaces would cover a good portion of the 

site, and require a large and expensive stormwater remediation plan including 

the construction of a retention pond, enlargement of drain connections under 

a local road and measures to protect an on site stream. Such an approach would 

expend too large a share of the project budget for site remediation and would, 

therefore, compromise or detract from the space requirements and level of 

technology needed within the facility. 

The program for the Satellite Operations Facility called for both general office 

space, and a highly technical satellite control and operations center. Had it 

been designed in the standard way, the architects would have located the 

offices in a multi story, above ground building with the satellite control rooms 

relegated to a black box structure, most likely underground. Instead, the 

team turned the traditional scenario upside down and placed the office space 

underground and the satellite operations within a slender horizontal bar above 

116 
 

 

 

 

 

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 - - 

 

 

 - - 

 ’ 

 

 

 

 

 

 

 

 - 

 

 

	 top:		 SkyliGhTS	dOT	The	Green	rOOF	TO	BrinG	 

dAyliGhT	inTO	The	OFFiCe	SPACe	BelOw.	 

	 above:		 TwenTy -Three -FOOT	CeilinGS,	SkyliGhTS	And	 

GlASS -wAlled	COurTyArdS	mAke	The	OPen	 

OFFiCe	AreA	BriGhT	And	CheerFul.	 

ground capped with satellite dishes. This solution allowed nearly all of the 

employees to work on a single level, limited the visual impact of the structure 

and its intrusion on the adjacent residential neighborhood, and provided an 

unobstructed view of the sky for the satellites. 

The office area is, in a sense, the foundation of the building, and is defined 

by a vast floor area with a shallow domed, 23 foot high ceiling. To prevent the 

feeling of being underground, the design team provided four light wells and 

a 14 foot high window wall on the southwestern perimeter, ensuring that no 

employee is farther than 60 feet from a window. In addition, 21 circular 

skylights penetrate the roof to provide an even level of daylight throughout 

the space. A 146,000 square foot planted roof over the main office flows 

seamlessly into the landscape, making the majority of the building s volume 

disappear from view. Finally, the mechanical rooms and two levels of parking 

are located under the building to further limit the site disturbance. 

By placing the offices underground and planting the roof with vegetation, the 

building exposes just 47,000 square feet of roofing over the operations center, 

which also serves as a structure for the satellites themselves. As such, only 

20% of the finished site is impervious, eliminating the need for a detention 

pond or increased stormwater piping, leading to significant savings, and 

allowing the on site stream to remain as an amenity, rather than a liability. 

With this bold plan by the design team, GSA was able to economically provide 

NOAA with an architecturally striking facility tailored to its mission, with 

strong sustainable achievements. 

	 117	 sustainability	matters 
118 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Indoor Environmental Quality
 

iEQ: intEgrAl to PEoPlE, BuildingS, And rESultS 

GSA embraces good indoor environmental quality (IEQ) first, as a matter 

of principle—GSA knows that a healthy, energy-efficient workplace is every 

employer’s responsibility—and second, as a matter of practical necessity— 

a workplace with good IEQ leads to increases in productivity and has the 

potential to reduce costs. Unlike some building features—such as IT, 

furnishings, and equipment—indoor environmental quality is primarily “built 

into” a facility, and, as such, must be addressed early in the design process, 

and designed with sustainability in mind. For that reason, GSA employs an 

integrated life-cycle approach to the design, construction, operation and 

leasing of its public spaces. It’s in our best interest, too, because GSA is not 

only a provider, but a customer as well; we work in the spaces we create. 

A Short hiStory of indoor EnvironmEntAl dESign 

The design of the indoor environment has been important since man first 

built shelters, but the quality of that environment has, in recent years, 

received more thoughtful attention. Early construction standards consisted 

primarily of building and fire codes, or “boss codes” written to prevent 

buildings from catastrophic failure, either natural or man-made. 

Over time the design and construction industry became more concerned 

with the safety of the occupants inside of buildings and developed the 

National Fire Protection Association’s (NFPA) “Building Exits Code,” which 

would become the “Life Safety Code” in use today. Organizations such as 

the American Society of Heating Refrigerating and Air Conditioning Engineers 

(ASHRAE), the American Conference of Governmental Industrial Hygienists 

(ACGIH), and the National Institute for Occupational Safety and Health 

(NIOSH) began to issue guidelines for thermal comfort and the protection 

	 left:		 The	waTer	securiTy	feaTure	in	The		 

lobby	of	The	seaTTle	courThouse	 

reflecTs	The	abundanT	daylighT		 

from	The	skylighTs	and	glass	walls.	 

	 119	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Indoor Environmental Quality 

of human health and safety. However, for most of the last 50 years, building 

standards have been governed by rigid, “one size fits all” requirements 

(e.g., area per person, standard aisle widths, temperature boundaries, and 

lighting loads). 

As building materials, construction and installation techniques changed, 

the list of potential indoor hazards grew. The late 1960s brought concerns 

over radon, followed in the 1970s by formaldehyde, airborne asbestos, and 

a suite of problems that became known as sick building syndrome. More 

recently, concerns have shifted to problems associated with molds and 

allergens. Throughout this period EPA and GSA were proactive, testing for 

radon, issuing formaldehyde limits, developing comprehensive asbestos 

control programs, and dedicating significant resources to managing indoor air 

quality. This was effectively an era of “prevention” during which EPA and 

GSA developed many indoor air quality (IAQ) protocols. While the agency is 

justifiably proud of its progress in improving indoor air quality, much of that 

effort consisted of a series of fixes, as opposed to carefully considered, 

systemic designs. 

iaQ	To	ieQ 

Throughout the 1990s GSA increased the scope of its indoor air program, 

going beyond traditional health concerns and including stressors such as 

irritants and allergens. The agency also realized that air quality was a subset 

of a broader issue that came to be known as indoor environmental quality, 

or IEQ. Therefore, in addition to comfort and air quality, GSA began to 

examine lighting, views, acoustics, even ergonomics—in other words, 

all of the factors that affect the occupant’s indoor experience. 

120 
indoor EnvironmEntAl QuAlity 

indoor Air lighting ACouStiCS 

Thermal	 

comfort 

air		 

Quality Quality Quantity speech	 

Privacy 

speech	 

intelligibility Views ergonomics 

cleanliness 

WorKPlACE 

background	 

noise 

Temperature Particulates brightness luminance Privacy	index 

humidity Vapors/Vocs spectrum Partition	noise	 

reduction radiation gasses daylighting 

air	Velocity microbes glare 

speech	 

Transmission	 

index 

reverberation	 

frequency	 odors reflections distribution 

level 

ComPonEntS of indoor EnvironmEntAl QuAlity 

	 121	 sustainability	matters 
 

- —

- —

’ ’

’ —

thE vAv fErvor 

The	energy	crisis	of	the	1970s	directly	and	indirectly	created	a	number	of	 

building	indoor	air	quality	problems,	which	called	attention	to	the	deficiencies		 

of	the	then prevalent	hVac	system.	while	constant	air	volume with	reheat		 

and	dual duct	systems delivered	both	exceptional	thermal	control	and	reliable	 

outdoor	air	delivery,	it	was	not	energy	efficient.	building	owners 	and	operators 	 

desire	to	reduce	energy	costs	resulted	in	the	widespread	use	of	variable	air	 

volume	(VaV)	systems	for	new	construction	and	retrofits.	unfortunately,	what		 

the	industry	did	was	akin	to	combining	an	aquarium s	heater	with	its	air	pump 

and	then	shutting	down	both	systems	when	only	the	thermostat	was	satisfied.		 

again,	fixes	were	eventually	developed,	but	they	were	applied	subsystem	by	 

subsystem	rather	than	as	an	integrated	strategy. 

122 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

18%	 

Rent,	Utilities,	 

Other 

82%	 

Personnel	Salary	 

and	Benefits 

Cost of doIng BusInEss 

Annual	office	costs	per	square	foot 

IEQ and Cost ConsIdEratIons 

Like most building characteristics, improved environmental quality often 

impacts other program areas. While IEQ is sometimes perceived as being in 

competition with energy efficiency and security, the priorities are not mutually 

exclusive. The increased adoption of integrated systems thinking makes it 

possible to simultaneously achieve multiple goals—good IEQ, reduced energy 

use and cost efficiencies. Demand control ventilation, natural ventilation, and 

increased air and water-side economizer utilization are only a few examples 

that illustrate this point. 

The financial implications of IEQ practices are clear when compared to 

other building expenditures. For example, while life-cycle costs for operations 

and maintenance are approximately three to four times the capital cost of a 

new building, the capital costs of the people inside the buildings, including 

salaries and benefits, are often one or two orders of magnitude above 

traditional capital and O&M costs. Therefore, it is obvious that even small 

increases in occupant comfort, especially given the resulting gains in 

productivity, can yield substantial cost savings. 

Indoor EnvIronmEntal stratEgIEs 

Today, GSA takes an integrated, whole-systems approach to the design, 

construction, operations and maintenance of its world-class indoor environments—the result of a team effort involving the agency’s environmental, 

environmental health, engineering, architectural, and building operations 

champions. Together they have identified integrated and sustainable IEQ 

design goals and strategies. 

	 123	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Indoor Environmental Quality 

Provide	a	comfortable	indoor	environment 

Thermal	comfort	and	occupant	control 

Smaller HVAC zones, along with occupant control, increase both thermal 

comfort and occupant perception of air quality. Effective strategies include 

limiting zone sizes, and positioning controls as close to the occupants as 

possible. Also, consider under-floor air distribution (UFAD) and task/ambient 

conditioning (TAC) systems, where appropriate, to facilitate localized air 

distribution and control. 

dehumidification 

Proper humidity control is a critical aspect of comfort control, healthy indoor 

air, and occupant perception of air quality. For that reason GSA now requires 

dedicated outdoor air delivery systems as part of the building’s HVAC design. 

During the cooling season these systems provide better dehumidification 

control, and reduce energy use. Such systems also facilitate building 

pressurization, which controls moisture infiltration. 

Using smaller systems in parallel avoids the dehumidification limitations 

caused by the short-cycling of systems during part-load conditions. This 

design approach allows more operating time at the full-load conditions 

resulting in greater efficiencies and better dehumidification. 

humidification 

Locations in the northern U.S., where the air can be both cold and dry, can 

be particularly problematic during the heating season. Dry air negatively 

impacts occupant comfort and health, can damage wood finishes, and also 

results in electronic equipment damage. Clean humidification technology 

where warranted, combined with lower thermostat temperatures, can offset the 

additional costs of winter humidification without sacrificing comfort levels. 

124 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

hiErArChy of ControlS 

gsa	employs	a	“hierarchy	of	 

controls”	model	to	prioritize	 

strategies	to	effectively	eliminate		 

or	reduce	indoor	environmental	 

quality	risks.	in	order	of	preference: 

1	 eliminate	the	substance		 

	 or	hazard	 

2	 substitute	less	hazardous		 	 

	 substances	or	materials 

3	 Provide	engineering	controls,		 

	 such	as	isolation	and	source		 

	 control	 

4	 remove	indoor	contaminants	 

improve	indoor	air	Quality 

In 1991 EPA ranked indoor air pollution as one of the top five environmental 

threats to public health, a serious problem considering that Americans spend 

80 to 90% of their time indoors. Many people—some estimates are as high 

as 40%—experience adverse effects from poor indoor air, ranging from 

respiratory problems to allergic reactions and asthma. Establishing and 

maintaining first-rate IAQ is a top priority for GSA. 

source	elimination	and	reduction 

A “hierarchy of controls” approach to design—a concept accepted in the 

health and environmental fields as a means to most effectively reduce 

hazards and environmental impact at the lowest life-cycle cost—is based 

on the premise that it is far easier to achieve good indoor air quality through 

prevention than through remediation. 

In this hierarchy the first priority is the elimination of hazardous and 

undesirable materials from the design, beginning in the earliest stages of 

site selection and project planning. Some potential sources of contamination 

will require major modifications—sub-slab de-pressurization, for example, 

is recommended for radon-prone locations and brownfield sites. Others will 

appear to be less important, such as avoiding high pollen-creating plants in 

landscaping and on green roofs. Collectively, however, source elimination or 

reduction results in benefits for both occupant health and comfort and cost. 

Building materials are a potentially common source of contaminates that 

can be easily avoided by eliminating, or at least limiting the use of products 

that contain formaldehyde and other volatile organic compounds (VOCs). 

This is especially important in specifying “wet” products such as paints, 

coatings, adhesives and sealants. Recent product introductions have made 

it easier to find low- or no-VOC formulations. 

	 125	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Indoor Environmental Quality 

source	control	 

The next priority is to isolate and control the hazardous materials and 

processes that cannot be eliminated. GSA’s Facilities Standards, for example, 

require local ventilation and negative pressure for smoking areas, detention 

cells, toilets, showers, locker rooms, custodial spaces, and other areas with 

the potential to generate contaminates and unwanted odors. The Facilities 

Standards also recommends grouping printers, copiers, shredders, and 

facsimile machines in separately ventilated areas. 

During construction, staging techniques help prevent clean materials from 

becoming contaminated. Strategies include sealing duct terminations and 

installing off-gassing materials prior to absorptive “sink” materials. Also, 

consider putting appropriate barriers in place and using negative pressure, 

particularly during the renovation of occupied facilities. 

Toxic cleaning products and inattentive maintenance and repair procedures 

can ruin even the most carefully executed IAQ plan. It is essential that 

building operators establish and use green custodial means and methods as 

addressed in GSA’s national custodial performance work statement. Green 

cleaning compounds used at minimum recommended concentrations without 

over-wetting surfaces will deliver the best environmental result. HEPA 

vacuuming is an option in current specifications, and may eventually become 

an agency-wide requirement. Even something as simple as timely trash 

removal can impact indoor air quality. 

126 info:	 gsa’s	facility	standards	–	www.gsa.gov/P100 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

infiltration	control 

Outdoor air may, depending on geographic location and seasonal conditions, 

be cleaner than indoor air. Even so, it is necessary to address the infiltration 

and intrusion of contaminates. An important strategy is to use dedicated 

outdoor air delivery systems for dehumidification and building pressurization. 

Also, specify minimum heights for outdoor air intakes and ensure that such 

locations are far from contaminating sources such as loading docks and 

cooling towers. Sheltered entranceways and walk-off mats also help reduce 

particulate intrusion into buildings. To minimize the impact of second-hand 

smoke, provide specific criteria for the placement and design of outdoor 

smoking areas. 

air	cleaning	and	Ventilation 

Despite diligent efforts, contaminates can and will degrade the quality of 

indoor air. IAQ can be significantly improved by removing pollutants from 

the air stream, and by controlling areas susceptible to microbial growth. 

Ultraviolet germicidal irradiation (UVGI), used in air-handling units, prevents 

microbial growth on coils and in condensate pans. UVGI also maintains coil 

efficiency. This approach reduces—and in some cases eliminates—the use of 

biocides to clean coils and condensate. 

Under-floor air distribution (UFAD) used in select applications results in 

better ventilation effectiveness and can improve the quality of indoor air. 

UFAD can also be used to stratify the room air and reduce ventilation loads 

by exhausting more “contaminate-concentrated” return air. 

GSA has adopted one of the most stringent filtration requirements in the 

commercial building industry: particulate pre-filters must be a minimum of 

MERV 8, and final filters MERV 13. 

	 above:		 a	courTroom	in	The	morse	courThouse,	 

eugene,	oregon,	wiTh	under-floor	air	 

disTribuTion 	 127	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Indoor Environmental Quality 

“Acoustics doesn’t show up 

in the records of building 

complaints because people 

don’t complain about it. 

they don’t think the building 

manager can do anything about 

it, and that’s generally true.” 

keVin	kamPschroer,	gsa	
 

direcTor	of	exPerT	serVices
 

noise	reduction	and	acoustical	Privacy 

Proper acoustic design can significantly contribute to tenant satisfaction 

and productivity. Numerous studies have shown that office workers regard 

unwanted noise as a major irritant. It is, therefore, important to consider 

acoustics early in the design process. Use low transmittance decks and walls, 

specify vibration isolation for mechanical equipment, and size ductwork to 

avoid the noise associated with high-speed forced air. While internal duct 

lining can significantly reduce such noise, liners also absorb dirt and harbor 

microbes; metallic duct silencers are a better choice. In some situations, 

efforts at reducing airflow noise have been so successful that workplaces have 

become too quiet. In these situations sound masking—often referred to as 

white noise—will provide acoustical privacy. 

high-Performance	luminous	environment 

In general, lighting levels have historically been unnecessarily high, and 

therefore unnecessarily expensive and energy inefficient. Overly bright and 

poorly designed lighting also detract from occupant comfort and productivity. 

Splitting the lighting load between overhead and task lighting yields more 

appropriate light levels and makes economic sense. Since the intensity of 

light fades approximately with the square of the distance, task lighting is 

a more cost-effective solution than general overhead lighting. In addition, 

task lighting puts control of light levels with individual occupants, increasing 

workplace satisfaction and reducing energy consumption. Current practice 

also recommends the use of high-frequency electronic ballasts to reduce 

flickering, and directs design teams to reduce glare from all sources 

in the workplace. 

128 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 a	founTain	ProVides	boTh	whiTe	noise		 

and	humidificaTion	in	The	aTrium	of		 

The	ePa	regional	headQuarTers	in	 

kansas	ciTy,	kansas. 

	 above:		 high	ceilings,	lighT	shelVes	and		 

direcT/indirecT	lighTing	ProVide	a	 

luminous	work	enVironmenT	aT	The	 

oklahoma	ciTy	federal	building. 

daylighting	and	Views 

The use of daylighting is an essential design element in all buildings. It not 

only reduces energy costs, but also offers the occupants the psychological 

satisfaction of a view of the outdoors. Numerous studies have shown that good 

daylighting and views significantly increase worker productivity, with some 

estimates as high as 18%, further contributing to the economic benefits of 

the strategy. A study by Heschong Mahone, a research group, found that 

office workers performed better on tests of mental function and memory recall 

when they had a view versus those with no view. Reports of increased fatigue 

were most strongly associated with a lack of view. 

Both the art and the science of daylighting involve more than simply adding 

windows or skylights in order to allow light to enter an occupied space; 

good daylighting design must also take into consideration the possibility of 

undesirable side effects and preserve the occupant’s view by using integrated 

design strategies to balance occupant needs. These include balancing heat 

gain and loss, controlling glare, and dealing with variations in the availability 

of daylight. Therefore, successful daylighting designs almost invariably 

include the use of shading devices to control heat loads and to reduce 

both glare and excessive contrast between lit and unlit spaces. In addition, 

designers must evaluate window size and spacing, glass selection, the 

reflectance of interior finishes, and the location of any interior partitions. 

Despite these varied design challenges, daylighting has the potential to 

significantly reduce life-cycle costs, to reduce operating costs, to reduce 

emissions, and to increase occupants’ productivity. 

	 129	 sustainability	matters 
 

 

 

 

 

 

 

 

Indoor Environmental Quality 

ergonomic	design 

Ergonomics is the science of engineering the workspace in light of human 

factors. A properly designed ergonomic work environment reduces injuries, 

absenteeism, errors, and dissatisfaction, and maximizes productivity. 

The Occupational Safety and Health Administration (OSHA) offers 

industry- and task-specific guidelines including those for ergonomically 

correct workstations. It is easiest to achieve ergonomic excellence when 

the total indoor environment is designed and delivered as an integrated 

product rather than from different entities. 

info:	 osha	ergonomic	approach	–	www.osha.gov/slTc/ergonomics 

130 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

vErifiCAtion And folloW-uP 

GSA verifies its progress and success in providing world-class sustainable 

indoor environments through various efforts: 

	 •	 GSA surveys its customers on a regular basis. The agency now has 

over 200,000 tenant satisfaction surveys in its archives for both owned 

and leased buildings, including data on satisfaction with comfort, air 

quality, lighting, and acoustics. The data show a slow but steady increase 

in occupant indoor air quality satisfaction over the last three years. 

		 •	 Post-occupancy evaluations (POEs) verify design intent and proper 

commissioning but also assist in the “shakedown” of new buildings. 

Errors that occur when the building is handed over to the O&M staff, 

if left uncorrected, can have a long-term effect on the quality of indoor 

environments. 

		 •	 Where satisfaction surveys indicate potentially problematic buildings, 

GSA performs in-depth environmental quality investigations and 

recommends specific actions. The use of data loggers also allows the 

agency to sample environmental conditions both temporally and spatially, 

providing a whole-building evaluation throughout the workweek. 

These efforts provide an ever-increasing repository of lessons learned, and 

more importantly, a portfolio of best practices. 

	 left:		 worksTaTions	aT	The	census	headQuarTers,	 

suiTland,	maryland.	 

	 above:		 gsa	measures	noise,	air	moVemenT,	 

TemPeraTure,	relaTiVe	humidiTy,	co,	co2,	 

ozone,	Vocs,	ParTiculaTes,	lighT	and	glare.	 	 131	 sustainability	matters 
132 
 

 

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C A S E S t u d y : i n d o o r E n v i r o n m E n tA l Q u A l i t y 

Alfred A. Arraj U.S. Courthouse 

thE firSt grEEn CourthouSE: 

A modEl for SuStAinABility 

The	alfred	a.	arraj	u.s.	courthouse,	located	in	downtown	denver,		 

colorado,	is	gsa s	first	showcase	green	courthouse.	completed	in		 

october	2002,	the	building	is	a	model	of	sustainability	and	serves		 

as	a	prototype	for	cost effective	sustainable	design	strategies	with	an	 

emphasis	on	occupant	satisfaction	through	excellent	indoor	environmental	 

quality.	The	320,000 square foot	facility	includes	a	10 story	tower	with		 

14	courtrooms,	judges 	chambers,	court	support	areas,	office	space		 

and	a	two story	pavilion	housing	the	special	Proceedings	courtroom.	 

	 left:		 The	arraj	courThouse	is	an	exPloraTiVe	 

model	of	inTegraTed	susTainable	 

building	design. 	 133	 sustainability	matters 
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Alfred A. Arraj U.S. Courthouse 

Building facts 

building	location: Denver, Colorado, 

date	of	completion: 2002 

budget: $83 Million 

size: 327,103 gross square feet 

In 1996, GSA assembled a 20 member interdisciplinary advisory committee 

composed of leading architects, engineers, environmentalists, planners, and 

research scientists to recommend sustainable design strategies for GSA s 

courthouse construction program, specifically the proposed courthouse for 

Denver. The design team then set to work to incorporate the latest proven 

technologies for environmentally sensitive design, construction, and operation. 

Early in the development process, the project team established these goals: 

• Reduce electrical demand by 50% 

• Provide daylighting to all building occupants 

• Maximize reusable products 

• Maximize flexibility to accommodate changes 

• Minimize construction waste 

• Provide a healthy and productive work environment 

Building fEAturES 

The design of the Arraj Courthouse used the most advanced technology 

available at the time to take advantage of the synergistic effects of integrated 

features and technologies. Site selection and orientation, landscape features, 

sustainable construction materials, high performance glazing, advanced 

building controls, energy efficiency measures, and under floor air distribution 

are hallmark features of the building, marking it as a milestone project for GSA. 

site	selection	and	orientation 

The Arraj Courthouse complex completes a four block Federal district, adjacent 

to Denver s rapid transit system. Collaboration between GSA, the city, and 

public and private interest groups ensured that the entire complex would be 

compatible with development objectives for Denver s central business district. 

The building not only meets the judiciary s current space requirements, it allows 

for expansion in the future and has a 100 year life expectancy. 

134 
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landscape	features	 

The position of the two story pavilion, which serves as the public entrance 

and houses the Special Proceedings Courtroom, is on a southeast oriented 

landscaped plaza. Architecturally, it recalls a historic courthouse in the 

square. The surrounding plaza is paved with local stone set in sand beds 

rather than concrete which absorbs water and helps control runoff. The 

plaza also features hardy drought tolerant regional plants that require little 

maintenance. An ornamental waterway runs from the sidewalk to the building 

entrance, symbolizing the streams of the high desert. 

materials 

Specific environmental attributes guided the selection of building materials. 

Locally produced materials include exterior stone paving and precast concrete 

elements. The interior floors of Spanish limestone are light in color and 

extremely durable. All paints and adhesives are water based and low in 

volatile organic compounds. Steel and other recycled content products comply 

with the Comprehensive Procurement Guidelines for Federal agencies. Maple 

wood paneling from sustainably managed domestic forests provide beauty 

throughout the courtrooms and lobby. The courtroom flooring is cork, a 

renewable natural resource, which is a traditional material used in courtrooms 

in the 1920s and 1930s. 

daylight 

The public corridors of the building are oriented to the southeast to maximize 

solar exposure. Oversized windows provide occupants and visitors with a 

connection to the outdoors and magnificent views of downtown Denver. 

Internal light shelves bounce daylight onto light colored surfaces so that it 

	 above:	 a	sTream	of	waTer	Through	The	Plaza		 

mimics	The	meandering	flow	of	riVers		 

and	creeks	in	The	mounTains. info:	 comprehensive	Procurement	guidelines	–	www.epa.gov/cpg 	 135	 sustainability	matters 
 

 

 

 

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Alfred A. Arraj U.S. Courthouse, 

reaches deep into the interior. Fluted glass panels bring diffused daylight 

into the interior courtrooms and other spaces. Automated shades can provide 

50% or 100% opacity as needed. Overall, natural light is available throughout 

75% of the building. 

high-Performance	glazing 

After extensive analysis, the architects selected high efficiency triple glazed 

windows for the south facing public corridors. The initial cost was higher than a 

double glass curtainwall, but the resulting reduction in heating and cooling load 

made them an economical choice. Clear glazing used above the light shelves 

allows more sunlight to enter than the tinted glass below. Fritting, applied in 

key areas of the building, filters the amount of light entering the space. 

advanced	building	controls 

The lighting system takes maximum advantage of daylighting by incorporating 

electronic dimming ballasts, occupancy sensors, and low level ambient 

lighting. The state of the art building automation and performance assurance 

system optimizes building systems within the top 20% of performance. 

A custom designed energy management system monitors outside temperatures 

to optimize heating and cooling loads, neutralize the impact of weather 

extremes, account for weekend building closures and other conditions that 

may compromise interior comfort. 

energy	 

The initial design predicted building performance at 46% better than the 

Code of Federal Regulations energy baseline. Evaporative cooling reduced the 

need for an electric powered chiller and is the major source for seasonal air 

conditioning. Variable speed fans and pumps also reduce energy usage during 

136 
 

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	 left:		 a	souThern	orienTaTion	maximizes		 

exPosure	To	sunlighT	so	ThaT	75%	of		 

The	inTerior	is	naTurally	illuminaTed. 

	 above:		 brighT	finishes	and	lighT	shelVes	 

conTribuTe	To	reflecTing	daylighT		 

inTo	inTerior	courTrooms.	 

partial load conditions. The Arraj Courthouse was the first federal courthouse 

to include a building integrated photovoltaic system, one that both produces 

electricity and serves as an integral component of the building envelope. The 

1,491 square foot system produces up to 60 kWh of electricity and up to 1% 

of the building s peak electrical demand. Despite the efficiency of numerous 

individual building elements the overall building performance has not met 

expectations due to programmatic changes and lack of an integrated approach 

to value engineering. 

under-floor	air	distribution 

The courtrooms, with 16 foot high ceilings, use displacement ventilation from 

an under floor air system and take advantage of thermal stratification to 

maintain standard temperature ranges within the occupied areas. Air delivered 

at a low velocity passes through the breathing zone and exhausts near the 

ceilings providing high quality air in an extremely quiet manner. A full scale 

mockup and heat load test demonstrated the adequacy and proper balancing 

of the low velocity system before work continued on the remainder of the 

building. Under floor air distribution supplies the first three floors of offices, 

allowing for individual user control and flexibility for future reconfiguration. 

Building ASSESSmEnt 

The use of a variety of assessment tools allows GSA to compare methodologies 

and study the most appropriate metrics and indicators of sustainability from 

various perspectives, both nationally and globally. The Arraj Courthouse has 

been evaluated with multiple tools to better understand the design features 

and performance. 

	 137	 sustainability	matters 
 

 

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Alfred A. Arraj U.S. Courthouse 

leed	green	building	rating	system 

As a forerunner of green design, the Arraj Courthouse preceded the LEED 

rating system and GSA s requirement for certification. An attempt to gather 

LEED documentation after completion of construction was not successful, 

proving that new construction certification is more likely when begun in the 

early stages of a project. The building is currently working toward certification 

through LEED for Existing Buildings: Operations and Maintenance. 

green	building	challenge 

In 2005, GSA participated in the Green Building Challenge, an international 

collaborative effort to evaluate and improve the performance of buildings 

worldwide, by assessing the design phase of the Arraj Courthouse using the 

Green Building Tool, now called the SBTool. The Green Building Challenge seeks 

to advance building environmental performance assessment methodologies 

through addressing state-of-the-art or controversial aspects of building 

performance and presenting the findings of buildings from participating countries 

at the World Sustainable Building Conference held every two to three years. 

The SBTool is an extremely challenging system with few if any buildings 

reaching the top score. The Arraj Courthouse scored the highest in the Long 

Term Performance category, primarily due to the 100 year life expectancy, and 

scored the lowest in Social and Economic Aspects, a category not currently 

addressed in LEED. Site Selection, reflecting GSA s emphasis on urban 

development, scored well as did Indoor Environmental Quality, but as a whole 

the building fell short of best practices of the world s greenest buildings. 

138 
 

 

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	 left:	 disPlacemenT	VenTilaTion	Through		 

a	raised	floor	coVered	wiTh	cork	 

ProVides	QuieT	for	courTroom	 

Proceedings.	 

	 above:		 roofToP	building	inTegraTed	 

PhoToVolTaics	and	a	sundial	bask		 

in	The	denVer	sun.	 

Post	occupancy	evaluation 

GSA also evaluated the Arraj Courthouse using WorkPlace 20•20 

research tools. The two components include a workplace satisfaction survey 

developed through the University of California Berkeley s Center for the 

Built Environment (CBE) and physical workplace measurements developed 

in partnership with Carnegie Mellon University. Questions in the web based 

survey address thermal comfort, air quality, acoustics, lighting, cleanliness, 

spatial layout, and office furnishings, and relate physical conditions to their 

effect on work experience. The physical measurements were gathered from 

a compact kit of mobile instrumentation that objectively measures acoustics, 

temperature, humidity, glare, VOCs, particulates and other indoor environ 

mental quality factors. The results are analyzed and compared to accepted 

industry standards to validate the design intent and the successful 

achievement of green building operational performance. 

Observations from the Arraj Courthouse studies show: 

• The Arraj Courthouse has higher occupant satisfaction levels than both 

LEED and non LEED buildings in the CBE database. 

• The lighting satisfaction scores for the Arraj Courthouse are much higher 

than the average, suggesting that daylight, when properly controlled, can 

have a significant positive effect. 

• Compared with the air quality satisfaction score for all LEED buildings in the 

CBE database, the Arraj Courthouse had higher satisfaction levels. Potential 

reasons for the improved satisfaction scores are reduced VOCs or particulates 

related to material selection, improved ventilation and the use of an under 

floor air distribution system. Further research is needed to clarify the causal 

relationships between environmental factors and air quality perceptions. 

	 139	 sustainability	matters 
140
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Materials
 

chAllenGes And opportunItIes 

“Asking useful questions and 

interpreting the responses 

in a meaningful way requires 

a lot of knowledge. even 

researchers who study these 

issues intensively still have 

more questions than answers 

about the complex interactions 

between material flows and 

the environment, and between 

indoor chemical emissions 

and human health.” 

Nadav	MaliN	 	 

BuildiNggreeN,	iNc.	 

The array of products that go into the manufacture of materials and the 

construction of buildings today is daunting. Is it safe or not? Is it sustainable 

or not? Construction material selection can be a challenge but it is also an 

opportunity for meaningful action. 

Two broad considerations are part of materials selection—sourcing and 

end of life—and each has significant environmental impact. Billions of 

tons of raw materials are used to construct buildings and to manufacture 

the furnishings inside them. Eventually, too many of them end up in landfills. 

For example, EPA estimates that nearly 5 billion pounds of carpet end up 

in landfills annually. The better strategy is to minimize the use of virgin 

materials and extend all materials’ service life through planned reuse. 

Is It Green? 

A sustainable materials selection strategy identifies and considers all product 

attributes important to the project, and supports the criteria of the Guiding 

Principles for Federal Leadership in High Performance and Sustainable 

Buildings from EO 13423 by reducing the environmental impact of materials. 

It also aligns with important Federal mandates: the Federal government’s 

Environmentally Preferable Purchasing program, EPA’s Comprehensive 

Procurement Guidelines and USDA’s BioPreferred products. 

	 left:		 WhiTe	PaiNT	aNd	glaSS	STair	riSerS		 

lighTeN	The	eFFecT	OF	The	STaiNleSS		 

STeel	Wall	aNd	uNglazed	FlOOr	TileS		 

OF	The	MONuMeNTal	STair	OF	The	MOrSe	 

cOurThOuSe,	eugeNe,	OregON. 

iNFO:	 executive	Order	13423:	Strengthening	Federal	environmental,		 

	 energy,	and	Transportation	Management
 

iNFO:	 environmentally	Preferable	Purchasing	–	www.epa.gov/epp
 

iNFO:	 comprehensive	Procurement	guidelines	–	www.epa.gov/cpg
 	 141	 sustainability	matters iNFO:	 uSda	BioPreferred	Program	–	www.usda.gov/biopreferred 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Materials 

“We believed that a noble material 

[granite] was essential and that 

the buildings should be of classic 

design and of the same scale.” 

arNOld	W.	BruNer,	archiTecT,	 

clevelaNd	Federal	BuildiNg	 

[MeTzeNBauM	cOurThOuSe].c.1910 

Designers have traditionally focused on the core material characteristics— 

function, aesthetics, availability and cost—and rightly so. They remain the 

cornerstone of product selection; without them, inappropriate and costly 

materials will prematurely be sent to the landfill as building occupants tire 

of non-performing products. This perpetuates unnecessary consumption and 

adds undue stress on available material and energy resources. 

New thinking integrates sustainability issues into the decision-making 

process. The basic list of questions is deceptively short but the answers 

to each are extensive. 

• Do I need to use it at all? 

• Where did it come from? 

• What is it made of? 

• How was it made? 

• How is it maintained? 

• Is it safe? 

• How much energy and water does it use? 

• What happens to it at the end of its life? 

• How do I know you’re telling me the truth? 

By drilling down into the complexities, the questions begin to delve into 

specifics. For example, “where did it come from” addresses the extraction, 

processing, and manufacturing for finished products as well as their 

component parts. Were they locally or regionally sourced or have they 

accumulated embodied energy by traveling long distances? For complicated 

products, the research can be exhaustive; even simple products, such as 

certain types of glass, require finding out where the sand came from. 

142 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

-

recycliNg,	 

reuSe,	 

diSPOSal 

deMOliTiON 

OccuPaNcy,	 

MaiNTeNaNce ON SiTe	 

cONSTrucTiON 

MaNuFacTuriNg 

reSOurce	 

exTracTiON 

liFe	cycle		 

OF	BuildiNg		 

PrOducTS 

By looking at some of the other questions prompted by those listed above— 

•	 Does this material support design strategies for heating and cooling 


the project? 


• Will it increase or decrease loads if placed in the project? 

• Is this material toxic to humans or the environment? 

•	 What is known about this material’s toxicity during its extraction, processing, 

installation, use and disposal? 

• How durable is this material? 

• Can it age gracefully in the local climate? 

• Does this material replace a harmful product? 

• Does it reduce construction impacts? 

•	 Does it minimize water use? Is the production of the product conducted 


in an environmentally or socially responsible way? 


• Does the material have independent green labeling? 

•	 And finally, how does this material uphold the goals and requirements 


of the project?
 

— it becomes apparent how complex these issues are. 

Material characteristics can be readily quantified and evaluated individually 

but none alone provides a complete picture of the desired environmental 

aspects of a product. For example, some recycled content products may 

have higher toxicity, or some bio-based products may promote unsustainable 

agricultural practices. However, when these characteristics are carefully 

	 143	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Materials 

weighed in alignment with broader environmental goals, through the life-cycle 

assessment (LCA) process, then the most appropriate choices can be made 

for any project. 

The International Organization of Standardization (ISO) defines LCA as 

“a compilation and evaluation of the inputs, outputs and the potential 

environmental impacts of a product system throughout its life-cycle.” 

LCAs can be complex to complete. When project schedule and budget 

permit and dependable tools are available, however, it is the best method 

to evaluate the environmental impact of a given product or service throughout 

its entire lifespan—raw material production, manufacture, distribution, use 

and disposal, including all intervening transportation steps. The goal of LCA 

is to identify opportunities to make informed choices that meet prioritized 

core characteristics, yet are the least burdensome to the environment. A lifecycle cost analysis (LCC) can also be used to calculate the cost of a system 

or product over its entire life span, and is often an easier metric to evaluate. 

Different types of LCA tools are available to manufacturers, designers and 

specifiers. One of the first tools for assessing the environmental impact of 

individual materials is Building for Environmental and Economic Sustainability 

(BEES), developed by the National Institute of Standards and Technology 

(NIST). It allows users to set parameters for specific building products and 

compare the results against other alternatives. Another emerging tool for 

evaluating structural and envelope materials is the Athena Environmental 

Impact Estimator, developed by the Athena Institute. Their EcoCalculator is 

a useful tool that offers quick data on selected building assemblies. 

iNFO:	 BeeS	–	www.bfrl.nist.gov/oae/software/bees 

iNFO:	 ecocalculator	–	www.athenasmi.ca/tools/ecocalculator 

144 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 The	exTeriOr	claddiNg	OF	The	NOaa	SaTelliTe	 

OPeraTiONS	FaciliTy,	SuiTlaNd,	MarylaNd,		 

iS	lOW	MaiNTeNaNce	aNd	very	duraBle. 

	 above:		 The	BreakrOOM	iNcludeS	recycled	cONTeNT	 

MaTerialS	aNd	eNergy	STar	aPPliaNceS	aT		 

The	ePa	OFFiceS	iN	POTOMac	yard,	arliNgTON,	 

virgiNia.	 

hoW do I KnoW You’re tellInG Me the truth? 

“Greenwashing” is the act of misleading consumers regarding the environmental 

practices of a company or the environmental benefits of a product or service. 

It can be a challenge to determine which environmental statements are 

meaningful and relevant from those that are misleading or simply false. The 

more informed one becomes, the easier it is to avoid being greenwashed. 

When evaluating the environmental attributes of a product, consider what 

type of environmental claim is being made. Is a copy of the environmental 

standard or testing protocol readily available for review? How has the environmental standard or testing protocol been developed and who developed it? Is 

it possible to verify that the material actually meets the standard or passed 

the testing requirements? Asking questions distinguishes legitimate products, 

such as those that have no harmful emissions affecting indoor air quality, and 

those that go beyond existing forest industry protocols and truly follow 

sustainable forestry practices. 

As a result of the doubt generated by false environmental claims exposed in 

the media and the sheer number of environmental claims, many materials 

specifiers use environmental standards, including ENERGY STAR, GREENGUARD, 

GreenSeal, and EcoLogo. These entities offer independent third party verification. 

They objectively confirm that “green” claims for a product are true and accurate 

through quantifiable and measurable methods and are preferable to second party 

certifications from industry related groups, or first party self-certification claims. 

	 145	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Materials 

It is crucial when using any standard or certification that its development 

process is transparent. This allows free and easy access to information about 

the corporate and political influences and the creation of a given certification 

or standard. Many standard developers seek accreditation by The American 

National Standards Institute (ANSI), which requires openness, balance, 

consensus and due process. By using legitimate environmental standards and 

certification organizations and asking insightful questions, specifiers can be 

confident they are selecting quality ‘green’ materials. 

MAterIAls evAluAtIon MethodoloGIes 

To further support sustainable material selection, numerous methodologies 

and schools of thought have arisen. GSA encourages their use to meet Federal 

mandates and inform building design which can, in turn, facilitate sustainability 

and life-cycle cost savings. The methodologies discussed below are only a 

sampling of those available to support sustainable buildings. Many of these 

methodologies require a deeper understanding of systems that enable buildings 

to have greater performance and capabilities. The methodologies listed are interrelated and supportive of each other and espouse an integrated design process. 

The	Precautionary	Principle 

The Precautionary Principle is a core guiding parameter that informs other 

design methodologies. If the exact consequences of an action are unknown 

but are determined to have a high risk of negative impact, then it is better 

not to carry out the action than risk the uncertain, but possibly negative, 

consequences. It is often used to evaluate the effects specific acts have 

on the environment and on human health: for example, the use of phthalates 

in soft vinyl products. 

146 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

lBc MAterIAls red lIst 

of prohIBIted suBstAnces 

•	No	added	formaldehyde 

•	halogenated	Flame	retardants	 

•	Pvc	(except	in	wiring	applications		 

	 where	it	is	mandated	by	code) 

•	Mercury	(except	in	low-mercury		 

	 fluorescent	lighting) 

•	cFcs 

•	hcFcs 

•	Neoprene	(chloroprene) 

•	cadmium 

•	chlorinated	Polyethylene	and		 

	 chlorosulfonated	Polyethlene		 

	 (hdPe	and	ldPe	are	excluded) 

•	Wood	treatments	containing	creosote,		 

	 arsenic,	or	Pentachlorophenol 

•	Polyurethane 

•	lead	(except	for	solder	and	off-grid		 

	 solar	battery	systems	only)	 

•	Phthalates 

The	Natural	Step	 

The Natural Step is a powerful scientifically based design methodology built 

on a common framework of consensus and systems thinking. It is based on 

four system conditions: “In a sustainable society, nature is NOT subject to 

systematically increasing: 

1	 concentrations of substances extracted from the Earth’s crust, 

2 concentrations of substances produced by society, 

3	 degradation by physical means, 

and in that society... 

4	 people are not subject to conditions that systematically undermine 

their capacity to meet their needs.” 

The	living	Building	challenge	 

The Living Building Challenge (LBC) is a product of the Cascadia Region 

Green Building Council. It goes beyond best practices and differentiates 

material choice priorities based on five criteria: the materials red list of 

prohibited substances, the embodied carbon footprint, responsible wood 

use, appropriate materials/service radius, and diverting construction waste 

from landfills. LBC materials requirements seek to remove the worst known 

offending materials from buildings as measured from a health standpoint, 

and to reduce and offset the environmental impacts associated with the 

construction process. 

	 left:		 ePa	ideNTiFieS	eNvirONMeNTally	 

PreFeraBle	aTTriBuTeS	FOr	MaTerial	 

SelecTiON	iN	Their	BuildiNgS	Such	aS	 

POTOMac	yard,	arliNgTON,	virgiNia. 

iNFO:	 The	Natural	Step	–	www.naturalstep.org 

iNFO:	 living	Building	challenge	–	www.cascadiagbc.org/lbc 

	 147	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Materials 

cradle-to-cradle	 

Cradle-to-Cradle (C2C) is a design paradigm developed by McDonough 

Braungart Design Chemistry (MBDC), seeking to transform industry by creating 

products for cradle-to-cradle cycles rather than the take-make-waste cradle-tograve legacy of the past. Through careful design of component materials and 

product assemblies, the product’s component materials can, at the product’s 

end of useful life, be perpetually circulated for reuse in closed loops. This 

maximizes material value without damaging ecosystems. MBDC offers material 

and product certifications through the C2C process. 

PharOS 

The PHAROS protocol developed by the Healthy Building Network is a 

valuable framework for evaluating sustainable materials and a progressive 

building material assessment tool. Products are evaluated for progress 

toward ideals in three defined measurement categories: impact on health 

and pollution, resource attributes and social and community factors. 

dematerialization	 

Dematerialization aims to produce the same quality of life while using 

significantly fewer resources. Given a particular building material, 

dematerialization guides a series of questions by assessing the need for the 

material to support the mission of the facility, local sourcing possibilities 

and durability. This relies on the inventive ability of designers to avoid raw 

material consumption and waste, by steadily closing material loops, by using 

renewable energy and renewable raw materials and by moving towards a 

service-oriented economy. The process goes beyond increased energy and 

resource efficiency but actually reduces consumption. 

iNFO:	 cradle	to	cradle	–	www.mbdc.com/c2c 

iNFO:	 PharOS	–	www.	pharosproject.net 

148 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

elIMInAte 

constructIon WAste 

at	the	kluczynski	Federal	Building,	 

gSa	saved	green	by	building	green.	 

renovation	contractors	salvaged	or	 

recycled	over	90%	of	all	construction	 

and	demolition	waste—everything	 

from	ballasts	to	concrete	blocks—	 

providing	an	excellent	example	of	 

recycling	through	all	phases	of	 

construction.	The	success	of	the	 

project	created	a	cultural	shift	in	 

gSa’s	contracting	procedures,	which	 

now	emphasize	a	comprehensive	 

construction	waste	management	 

tracking	system. 

	 left:		 Brick,	glaSS,	aNd	STeel—MaTerialS		 

WiTh	eNvirONMeNTally	FavOraBle	 

characTeriSTicS—FOrM	The	exTeriOr	OF	 

The	deParTMeNT	OF	hOMelaNd	SecuriTy	 

FaciliTy	iN	OMaha,	NeBraSka.	 

Biomimicry 

Biomimicry (from bio, meaning life, and mimesis, meaning to imitate) is 


defined by Janine Benyus, who coined the term, as “a new science that 


studies nature’s best ideas and then imitates these designs and processes to 


solve human problems.” Product designers have used biomimicry to produce a 


beetle-inspired water harvester, termite-inspired ventilation systems, mollusk-


inspired fans and epoxy, abalone-inspired lightweight building materials and 


a fabric modeled after a lotus leaf to stay clean. The premise behind the 


approach is that nature has already solved most design problems. 


there Is no AWAY 

Amory Lovins, co-founder and chairman of the Rocky Mountain Institute, 


estimates that 99.98% of the U.S. materials flow is pure waste. A large 


portion of all consumer goods manufactured is thrown away within one year. 


Statistics aside, there is no “away” and material not recycled or reused ends 


up in an incinerator or landfill. Neither is a good choice.
 

Building designers make choices based on many criteria; amongst 

them should be end-of-life considerations. The Natural Step suggests, 

“The design and use of materials in the building will meet the following 

in order of priority: 

a	 Material selection and design favor deconstruction, reuse, and durability 

appropriate to the service life of the structure. 

B	Solid waste is eliminated by being as efficient as possible, or 

c	Where waste does occur, reuses are found for it on-site, or 

d	For what is left, reuses are found off-site. 

e	Any solid waste that can not be reused is recycled or composted.” 

iNFO:	 Biomimicry	–	www.biomimicry.net	 	 149	 sustainability	matters 
150

 

“

’

”

-

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’

’

AdAptInG the old And plAnnInG for the future 

according	to	gSa	associate	Tammy	eatough,	 older	buildings	are	more	 

adaptable.	if	they ve	survived	the	first	80	years	they	are	likely	to	go	on	for	 

many	more. 	The	renovation	of	the	historic	Scowcroft	building	in	Ogden,	 

utah,	preserved	100%	of	the	shell	and	50%	of	the	non shell	and	diverted	 

close	to	76%	of	construction	waste	through	an	effective	waste	management	 

plan.	The	tenant	agency,	anticipating	the	need	for	flexibility	during	their		 

20 year	lease,	included	a	raised floor	system	to	accommodate	the	changing	 

needs	of	current	and	future	tenants.	 

reuse reduces WAste 

The	howard	M.	Metzenbaum	u.S.	courthouse	in	cleveland,	Ohio,		 

emphasizes	the	gSa	priority	to	reduce	waste	by	preserving	100%	of		 

the	existing	structure	and	shell.	existing	glazed	brick	in	the	atrium,	not	 

available	in	today s	market,	was	salvaged	for	reuse.	historical	chandeliers		 

in	the	main	lobby,	courtrooms,	and	judges 	chambers	were	refurbished	for	 

reuse.	Original	marble	stock	stored	in	the	basement	was	reused	for	patching	 

floors	and	wainscots.	resource	reuse	on	this	project	even	includes	artwork!	 

The	Francis	Millet	murals	original	to	this	building	were	found,	restored	and	 

reinstalled	in	the	public	areas. 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Plan	to	Minimize	Waste	 

Design projects for deconstruction and reuse to allow the possibility for 

continuing the useful life of the materials. This approach considers both the 

whole building design and construction process, incorporates disassembly, and 

makes continued reuse or renovation more cost-effective. While designing, ask 

if this material will be able to withstand reuse? What attachment or assembly 

method is most appropriate to enable reuse? How could salvaged materials be 

incorporated into a new construction project, and the handling of the materials 

themselves? The premise of Repeat, Rethink, and Renew informs the design. 

Also consider designing for modular construction, often a missed opportunity. 

It can enable a facility to adapt to changes over time and can enhance the 

quality control of construction through assembly in controlled conditions. 

Using demountable rather than constructed walls is an example. 

A durability plan informs material and systems decisions, assessing potential 

risk factors and damage functions. Once identified, measures can be incorporated into the building design to address the risk factors. This process 

follows every phase from pre-design to building occupancy. Durability plans 

consider effects related to moisture, heat, sunlight, insects, material failure, 

ozone and acid rain, building function, style and natural disasters. 

	 151	 sustainability	matters 
152 
 

 

 

 

’

’

’

c A s e s t u d Y : M At e r I A l s 

Carl T. Curtis Midwest Regional Headquarters 

of the National Park Service 

A shInInG exAMple 

The	carl	T.	curtis	Midwest	regional	headquarters	of	the	National	Park	 

Service	(NPS)	in	Omaha,	Ne,	serves	both	as	the	agency s	regional	 

headquarters	and	as	the	visitor	center	for	the	lewis	&	clark	National	historic	 

Trail.	NPS s	core	mission	of	preserving	the	natural	resources	of	america,		 

and	its	location	on	the	Missouri	river,	dictated	that	the	headquarters	serve	 

as	an	exemplar	of	sustainable	materials	selection.	in	pursuit	of	those	goals,	 

rangers	at	the	visitor	center	not	only	lead	discussion	groups,	which	provide	 

insights	into	the	lewis	and	clark	Trail,	but	also	offer	an	educational	program	 

that	shares	the	story	of	NPS s	success	in	sustainable	building	design.	 

	 left:		 lOcally	SOurced	aNd	MaNuFacTured		 

MaTerialS	highlighT	The	curTiS	NPS		 

regiONal	headquarTerS,	OMaha,	NeBraSka. 

	 153	 sustainability	matters 
 

 

 

 

 

 - 

 - 

 - 

 - 

 - -

 

gSa	leed	BuildiNg 

NaTiONal	Park	Service	MidWeST	 

regiONal	headquarTerS 

OMAHA, NE 

LEED NC rated: May3 2005 

gOld	 

Sustainable Sites 8 14 

Water Efficiency 4 5 

Energy and Atmosphere 6 17 

Materials and Resources 6 13 

Indoor Environmental Quality 11 15 

Innovation and Design 5 5 

 40 69 

greeN	FacTS 

		39%	water savings from low flow 

 fixtures, dual flush toilets, 

 andwaterless urinals 

		59%	wood from Forest Stewardship 

 Council (FSC) sustainably 

 managed forests 

100%	green power purchase for 

 morethan two years 

Carl T. Curtis Midwest Regional Headquarters of the National Park Service 

The GSA solicitation required a 68,000 square foot building and LEED 

certification at the silver level, making it the first LEED building in the state 

of Nebraska. The lease construction project, completed in 2004, exceeded 

expectations and actually achieved a LEED Gold rating. Features contributing 

to its success include extensive use of daylight, self sufficient landscaping, a 

rain garden or bioretention pond, under floor air distribution and sustainable 

material choices throughout the three story building. 

Starting with the building envelope, the design team selected pre cast 

panels with a high insulation value and a reflective, light colored, single ply 

thermoplastic roof to lower energy costs. In addition, the panels reduced 

154 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 -

 

 

 

 

 

 

 	 left:		 NOrTh -FaciNg	WiNdOWS	OverlOOk	The	 

eNvirONMeNTally	aPPrOPriaTe	 

laNdScaPiNg. 

	 above:		 STaiNed	aNd	POliShed	cONcreTe	FlOOrS	 

BleNd	WiTh	NaTural	STONe	iN	The	lOBBy.	 

overall material costs, serving both as interior and exterior walls. The interior 

also features low maintenance exposed structural concrete. 

The use and prominent placement of local materials is evident throughout the 

project, including the Kansas limestone in the lobby, quarried within 500 

miles of Omaha. In all, 35% of project materials were manufactured locally, 

and 17% were extracted from local sources. The designers specified paint 

rather than wall covering and stained concrete floors instead of tile or carpet 

in areas of high traffic, reducing both material use and maintenance costs. 

The carpet covering the raised floor tiles is a low profile, uncut loop carpet 

tile, making it easier to clean and more adaptable over the life of the building. 

Almost 60% of the wood used for the project, including the maple trim 

and millwork, are Forest Stewardship Council (FSC) certified, which provides 

a full chain of custody and guarantees global forest practices that exceed 

industry best practices. In addition, 12% of the project materials by cost 

contain recycled content, from the restroom lavatory countertops to the carpet. 

Furniture systems and seating are GREENGUARD IAQ certified for low 

emissions and all of the carpet, adhesives, sealants, and paints meet the low 

volatile organic compound (VOC) requirements of Green Seal Standard GS 11 

and the South Coast Air Quality Management District Rule 1113, ensuring 

better air quality and a healthier working environment for building occupants. 

The furniture is also adaptable and can be reconfigured, recovered, and 

painted to suit changing needs over the life of the building. 

In summary, the project serves as a shining example of how material selection 

strategies can support sustainable design, adaptability, and a healthy workplace, 

while reinforcing the mission and image of the National Park Service. 

	 155	 sustainability	matters 
156
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance
 

O&M delivers the prOMise Of gOOd design 

Designing and building a high-performance green facility is of little use if 

it is not operated and maintained in a manner consistent with the principles 

of sustainability. Operations and maintenance (O&M) include the day-to-day 

activities necessary to meet an existing building’s functional requirements, 

its routine maintenance, repair of the building and its systems, cleaning, 

care of the grounds, and all those services and activities necessary to preserve 

the value of the asset. Viewed from the perspective of sustainability, O&M’s 

ultimate goal is to perform these activities and services efficiently and with 

as little impact as possible on the occupants of the building, the personnel 

performing the work, and the environment itself. 

Operations and maintenance procedures are important for the building 

and facility managers; however, the O&M planning preferably begins during 

the design phase as part of a fully integrated, whole building approach and 

continues throughout the life of the building. An O&M plan, or Building 

Operating Plan, is required for each facility and must cover the overall goals, 

procedures and schedules as well as describe the strategies for ongoing site 

issues, construction and renovation procedures as they effect the building’s 

systems and materials, occupant health, comfort and enjoyment, and cost 

considerations. A checklist is a good operational tool for managing regular 

inspections, maintenance and repairs. 

In this O&M chapter, the discussion is focused on what can be accomplished 

during the operation of a building and the implications for renovation. To 

provide an overview of operations and maintenance in one chapter, we have 

summarized at a high level the details contained in the chapters on energy, 

materials, indoor environmental quality, and site. 

	 left:		 EnvironmEntal	initiativEs	at	thE	sam	nunn	 

atlanta	FEdEral	CEntEr	rEsultEd	in	grEEn	 

purChasing,	inCrEasEd	rECyCling,	and	an	 

EnErgy	star	sCorE	oF	81.	 	 157	 sustainability	matters	 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance 

site 

The operation and maintenance of the exterior begins with evaluating the 

site, including the landscape and hardscape (any non-plant element such as 

paving, walkways, walls and fences). The preferred strategies for managing 

the grounds and the building’s exterior are those that have the lowest possible 

environmental impact. They include heat island effect reduction, stormwater 

management, light pollution, integrated pest management, transportation 

issues and responsible grounds upkeep. 

An important aspect of site O&M management is minimizing the impact 

of the heat island effect—the term used to describe an increase in urban 

temperatures as a result of the absorption of the sun’s energy by a building 

and its hardscape. For non-roof areas, the use of light-colored/high-albedo 

materials will reflect, rather than absorb, the sun’s heat, but care must be 

taken as they may also contribute to annoying excess glare. Replacing asphalt 

surfaces in parking lots with permeable and/or open grid pavers will also 

reduce heat absorption. Shading devices are another effective solution for 

parking areas, and may include solar panels (although this is, admittedly, an 

initially expensive option). Improving the landscape by planting trees is a 

simple way to lower temperatures during the summer, reduce the heat island 

effect and provide shaded outdoor areas for the building’s occupants to enjoy. 

When renovating roof areas, the heat island effect can be reduced by choosing 

only ENERGY STAR roofing materials or by installing a planted roof (refer to the 

Site and Water chapter for details). Also, roofing products are available, including 

biobased coatings, which can be sprayed as a topcoat to provide a higher 

reflectance value. The “Cool Roof” guidelines published by DOE provide multiple 

options and solid advice. 

158 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 trEEs	and	light-ColorEd	pavEmEnt		 

rEduCE	hEat	gain	in	thE	CEntral	plaza	 

oF	thE	patEnt	and	tradEmark	ComplEx		 

in	alExandria,	virginia.	 

	 above:		 BikE	raCks	at	thE	sEattlE	CourthousE	 

EnCouragE	Building	usErs	to	BiCyClE		 

to	work	rathEr	than	drivE.	 

O&M site management should consider a variety of innovative techniques 

to manage stormwater. Implement strategies that allow stormwater to filter 

slowly into the ground by using rain gardens, catchments, or swales. Rainwater 

can be captured and used for irrigation or flushing toilets. Look for ways to 

keep water away from the building, by redirecting downspouts, curbs and 

gutters to drain into retention areas. 

Light pollution is defined as site and building lighting that spills onto 

adjacent properties and degrades the night sky. Lighting sources should 

provide only enough illumination to maintain safe lighting levels without 

trespassing on other areas of the site, or adjacent properties. Many manufacturers make fixture models that meet these objectives and additional 

resources are available from the International Dark-Sky Association. 

Integrated pest management (IPM) provides for the management of outdoor 

pests—be they plants, insects, or animal—without endangering human health 

and the surrounding environment. IPM improves economic returns through 

the use of minimum application rates, selection of the least-toxic chemical 

pesticides and herbicides, and localized applications for targeted species. 

As with most O&M practices, IPM requires routine inspection and monitoring. 

Transportation impacts are usually addressed during the site selection process 

rather than as an ongoing operations issue, but an alert building manager 

can often discover ways to support preferred tenant behaviors. These include 

offering preferred parking to carpools and alternative fuel vehicles, and 

encouraging the use of bicycles by providing secured bike racks and shower 

facilities. Also, promoting the use of public transportation through commuter 

benefit plans helps to defray tenants’ costs and reduce parking demands. 

inFo:	 Cool	roofs	–	http://www1.eere.energy.gov/	 

	 femp/procurement/eep_roof_products.html 	 159	 

inFo:	 international	dark-sky	association	–	www.darksky.org 

sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance 

It is important for the Building Operating Plan to include everyday maintenance 

and seasonal procedures such as using biodegradable cleaning agents and saltfree snow and ice removal. Choosing fuel-efficient maintenance equipment that 

operates at low sound levels—preferably fewer than 70 decibels—diminishes 

the excess noise that is damaging to the equipment operator and annoying for 

the employees of the building or nearby neighbors. 

Water 

Executive Order 13423 requires Federal agencies to reduce their water 

consumption by 2% per year based on their 2007 baseline. To help achieve 

this requirement, building managers should inventory all plumbing fixtures 

to determine if they meet the Energy Policy Act 1992 water requirements. 

A plan should then be developed to replace or improve fixture performance 

to meet agency goals. In addition, consider the use of sensors, aerators, 

waterless urinals, high-efficiency toilets and other strategies described in 

the Site and Water chapter. 

energy 

Reduced energy use through operations and maintenance initiatives is one 

of the best ways to meet agency energy goals in existing buildings. Include a 

narrative in the Building Operating Plan describing the building’s mechanical 

system, its operation, sequence of events, and predictive and preventive 

maintenance schedules to enhance overall energy efficiency. The plan, outlining 

energy design intent, should be made available to everyone on staff to ensure 

that the building is operated as its designers intended. 

160 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 	 left:		 indigEnous	plantings	rEduCE	watEr	 

Consumption	and	maintEnanCE	at		 

thE	dEpartmEnt	oF	transportation,	 

lakEwood,	Colorado.	 

	 above:		 rE-Commissioning	oF	mEChaniCal	systEms	 

EnsurEs	thEy	arE	opErating	to	maximum	 

EFFiCiEnCy. 

Using a systematic process, the plan defines the operation of the building’s 

major energy systems, options for optimizing the building’s energy performance, 

and strategies to achieve energy savings. It should include items like mechanical set points, equipment run times, occupancy schedules, and lighting levels. 

Building Automation Systems (BAS) are an effective way to implement the plan 

with minimal effect on the workload of the O&M staff. If feasible, BAS should 

control all equipment and as much lighting as possible; if not, install individual 

controls. Building managers should also analyze energy bills and initiate 

periodic energy audits. 

Executive Order 13423 requires that all Federal agencies reduce their energy 

use 3% per year based on 2003 baselines. Once individual building baselines 

are established, ENERGY STAR’s Target Finder tool can assist with setting the 

targets outlined in the EO or aim for at least a 30% reduction by 2015. These 

achievements can be verified by submitting the documentation necessary for an 

ENERGY STAR building label. Refer to the Duncan Federal Building case study 

at the end of this chapter for an example of the process. 

A plan for retro-commissioning, re-commissioning, or ongoing commissioning 

will produce considerable savings by implementing both minor improvements 

and identifying planned capital projects, ensuring that the building’s major 

energy-using systems undergo repair, operation, and maintenance to optimize 

energy performance. Commissioning can also be used to address changes in 

building occupancy and use as well as identify periodic adjustments and 

procedures essential for optimal energy efficiency. Once new adjustments and 

procedures are in place, building managers should review and update the 

Building Operating Plan. 

	 161	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance 

Many chillers in existing buildings still contain ozone-depleting compounds 

such as CFC-based refrigerants. Identify equipment using these refrigerants 

and plan for replacement if a financial analysis shows that a simple payback 

can be achieved within 10 years. If replacement is not feasible, then consider 

the use of suitable alternative refrigerants. In the meantime, implement 

measures to control leakage of CFC-based refrigerant to less than 5% per year 

as directed by the Clean Air Act. One strategy is to visually check valves rather 

than by pressure testing, which causes refrigerant to escape. Finally, manage 

all halogenated hydrocarbons per The Montreal Protocol on Substances that 

Deplete the Ozone Layer. 

Another resource, the ENERGY STAR program, lists over 50 categories of 

products that deliver equal or better performance than non-labeled goods while 

using less energy. Major categories of rated products include appliances, heating 

and cooling, electronics, office equipment, lighting, and commercial food service. 

Materials 

Materials issues must be considered in facility alterations typically made 

during the normal course of a building’s life. As part of their responsibility, 

building and facility managers must comply with the requirements of 

EO 13423 as well as the requirements and best practices used in new buildings 

outlined in GSA’s Facilities Standards for the Public Buildings Service. 

Material management in the operations and maintenance of a building 

requires persistence, coordination and familiarity with new products and 

processes. EO 13423 calls for Federal agencies to acquire goods and services 

that follow sustainable environmental practices, including bio-based, recycledinFo:	 the	montreal	protocol	on	substances	that	deplete	the	ozone	layer	–		 

	 www.unep.org/ozonE/pdfs/montreal-protocol2000.pdf 

162 
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-

-

-

- -

- -

—

-

sam	nunn	FEdEral	CEntEr	 

atlanta,	gEorgia 

in	2003,	the	sam	nunn	Federal	Center	in	atlanta	implemented	a	retro commissioning		 

project	for	a	total	cost	of	about	$120,000	that	now	generates	annual	cost	savings		 

of	approximately	$250,000.	gsa,	doE,	and	Epa	worked	together	to	establish	a	 

comprehensive	program	to	address	high	energy	usage	in	the	1.6	million square foot	 

facility.	the	partnership	leveraged	resources	and	skills	to	retro commission	the	entire	 

building,	with	the	goal	of	having	the	building	qualify	for	EnErgy	star	certification	 

after	12	months	of	demonstrated	savings.	 

the	team	met	regularly	to	analyze	energy	use	and	identify	simple,	low cost	energy	 

reduction	modifications.	these	measures	included	metering,	de lamping	excessively	 

lit	areas,	installing	motion	sensors,	repairing	improperly	installed	or	broken	equipment,	 

and	devising	an	after hours	setback	mode	so	that	air handlers	no	longer	ran	around	 

the	clock.	they	also	initiated	occupant focused	energy	awareness	programs.	the	retro 

commissioning	effort	reduced	cooling	loads,	increased	the	efficiency	of	the	central	 

plant,	and	saved	almost	12	billion	Btu	in	2003	alone enough	energy	to	power	228	 

homes	for	a	year.	the	team	is	now	retro commissioning	additional	buildings	based	on	 

the	successful	atlanta	Federal	Center	model. 

	 163	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance 

content, environmentally friendly, energy-efficient and water-efficient 

products. A soy-based roof coating is a good example of a material with 

multiple sustainable attributes. 

Understanding Federal purchasing requirements may appear difficult but it 

is no less important than meeting tenant service calls or energy efficiency 

targets. There are, however, helpful resources such as EPA’s Environmentally 

Preferable Purchasing (EPP) program, which assists building and facility 

managers to “buy green” by offering guidance and product listings that meet 

Federal requirements. The program also provides calculators for cost benefit 

analysis and a mechanism for managing green purchasing. Ensuring that 

tenants know about these resources should be a part of the regular tenant 

communications, especially since the Energy Policy Act of 2005 requires 

GSA’s tenants to follow the same purchasing rules when buying devices 

for themselves, such as light bulbs for desk lamps. 

Building	standards 

Establishing building standards that can be inserted into service and 

construction contracts is another way for building managers to encourage 

the purchase and use of sustainable materials. The standards may include 

minimum recycled content for ceiling tiles and carpet; use of high-efficiency 

lighting, appliances, and office equipment; reuse of furniture and other 

recycled or recyclable building materials; use of low-emitting paints and 

sealants; and wood from responsibly managed forests. 

A standard to guide the purchasing and the disposal of fluorescent lamps 

is an example. Fluorescents are an energy-efficient light source but require 

164 inFo:	 Environmentally	preferable	purchasing	–	www.epa.gov.epp 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 duraBlE	FinishEs	allow	Easy	maintEnanCE	 

oF	thE	puBliC	arEa	oF	thE	dEpartmEnt	oF	 

homEland	sECurity,	ins	FaCility	in	omaha,	 

nEBraska.	 

	 above:		 high-EFFiCiEnCy	lighting	is	rEquirEd	in		 

all	FEdEral	Buildings.	 

the use of mercury to function and, therefore, contaminate the waste stream 

at the end of their lives. Building and facility managers must take care in 

selecting replacement lamps to ensure low mercury content in fluorescent 

tubes and compact fluorescent lamps; there are a large number of products 

meeting this requirement. They should also match a specified color 

temperature to avoid a hodgepodge look over time. 

Although the National Electrical Manufacturer’s Association has announced 

a voluntary commitment to cap the amount of mercury allowed in CFLs, and 

mercury levels in tube lamps have been significantly reduced, the disposal of 

all fluorescents is still an issue. EPA imposes fines for the improper disposal 

of mercury-containing lamps and each building must have a hazardous waste 

disposal plan in place and follow it diligently. 

waste	disposal 

Understanding what makes up a building’s trash—differentiating between 

those products that are truly waste, those that are recyclable, and hazardous 

waste—is key to managing the waste stream. An O&M plan should require 

a waste stream audit as the best way to gather this information. Once 

completed, a tenant education program will encourage active occupant 

participation, increase recycling and reduce waste. In areas where recycling 

programs do not exist, the audit can, perhaps, spur new community action 

or private industry initiative by showing a need for such efforts. 

	 165	 sustainability	matters 
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FEdEral	Building	 

riChmond,	virginia 

small	steps	to	operational	improvement 

Like many older buildings the 368,588 square foot Federal Building in 

Richmond, Virginia, built in 1962, suffered from poor performance. From 1985 

to 1994, the facility averaged 81,000 Btu/gsf/yr. After a major renovation of the 

HVAC system completed in 1997, energy use started to increase and by 1998, 

consumption was up 27% over the previous ten year average, peaking in 2000 

at 152,500 Btu/sf/yr, an 88% increase. A multi year incremental renovation 

focused on improved operations, maintenance and equipment upgrades the 

result: GSA now enjoys reduced energy costs and an ENERGY STAR building. 

In 2003, an operational assessment of the Energy Management Control System 

revealed the causes of the poor performance: 

•	 Faulty scheduling had equipment running at night, on the weekends, and 

during other times when it was assumed to be off. 

•	 System was operated above or below set points, or did not meet the load. 

•	 Control hardware malfunctions for the air and water side economizers. 

•	 Control loops did not function optimally. 

•	 Building operators had permanently overridden controls. 

•	 Interaction between the heating and cooling system was problematic. 

166 
 

 

 

 

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making	incremental	improvements	 

In 2004, the management team set out to resolve issues and bring the system 

under control. Their efforts included putting the bathroom exhaust back on 

schedule, lowering heating water loop temperatures, reducing HVAC system 

operation by one to two hours per day, trimming weekend operation, and 

resetting the supply air temperature to the original design of 55 F. These no 

cost items immediately reduced energy usage by 17.4% and saved $25,000 

per year. 

In 2005, initiatives included correcting the water side economizer operation 

while extending hours of its use, adjusting the boiler outside air temperature 

set point and eliminating the overlap between simultaneous heating and 

cooling. These control actions reduced energy usage by 33.7% from the 

previous year and saved $109,000 per year. 

In 2006, the purchase of new upgraded control equipment allowed for the 

optimization of the overall system. The new equipment included direct digital 

controls with internet accessibility, custom programming and energy recovery 

air coils with a circulated glycol loop for the bathroom exhaust. Additionally, 

the steam supply pipes to the penthouse were isolated from ductwork so as not 

to preheat the outside air to the air handlers. Optimization of the controls 

included more run time of the air side economizers for the dedicated 

ventilation units. The reduction of energy usage was 17.6% from the previous 

year and provided a net $15,000 per year savings even with the cost upgrades 

of $120,000. 

Efforts continued into 2007 and at year end, the total energy usage was 

49,300 Btu/gsf/yr, a 19.8% reduction from the previous year. 2007 also 

brought an additional $134,000 per year saved. These annual reductions are 

impressive improvement in the building s operations budget, but the impact is 

beneficial to all of GSA. EISA 2007 and EO 13423 both require energy use 

reduction based on the agency s 2003 baseline. The Richmond Federal 

Building reduced energy usage by 62% compared to its 2003 baseline, 

demonstrating that a steady but consistent operations and maintenance 

improvement plan can help GSA meet energy reduction goals and save money. 

	 167	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Operations and Maintenance 

Building and facility managers should consider alternative disposal strategies 

for durable goods such as computers, free-standing and systems furniture, and 

appliances, not only because they are a burden on landfills, but also needlessly 

waste potentially reusable products. Several manufacturers have “take back” 

programs that are worth considering and in many areas of the country programs 

exist to recycle durable goods. Tenants can be encouraged to reuse discarded 

items that are still in good condition by providing a designated room or location 

for drop off or claiming such items. Lists of items available for reuse can be 

posted in the building or made available to charities in the community. 

EPA’s Comprehensive Procurement Guidelines (CPG) is part of the 

government’s “buy-recycled” program. Buying products with recycled content, 

from carpeting and insulation to office paper helps “close the recycling loop” 

by reusing materials collected through recycling programs. EPA also provides 

Recovered Materials Advisory Notices (RMAN), which recommend recycledcontent levels for CPG items. 

Demolition from facility alterations should adhere to construction waste 

management strategies. EO 13423, for example, requires the recycling or 

salvage of at least 50% of construction and demolition waste. No matter 

how large or small the project, construction waste can be diverted from 

landfills through recycling or reuse. In order to assist building managers in 

compliance, the Whole Building Design Guide has a database of companies 

that haul, collect, and process recyclable debris from construction projects. 

168 inFo:	 Comprehensive	procurement	guidelines	–	www.epa.gov.cpg 
 

 

 

 

 

 

 

 

 

 

 

	 left:		 grEEn	housEkEEping	praCtiCEs	arE	 

EssEntial	in	Child	CarE	CEntErs	suCh	as	 

this	ssa	FaCility	in	woodlawn,	maryland.	 

	 above:		 ExpansivE	Floor	spaCE	and	undEr-Floor		 

air	distriBution	EnhanCE	thE	FlExiBility	 

oF	thE	irs	proCEssing	CEntEr	in	kansas	 

City,	missouri. 

indOOr envirOnMental Quality 

Indoor environmental quality (IEQ) is the final component of a successful, 

sustainable O&M program, and the one with the greatest potential for 

increasing the comfort, protecting the health and increasing the productivity 

of those who work in the building. 

To ensure the health and well-being of a building’s occupants, O&M practices 

should include a minimum indoor air quality performance requirement. Although 

ASHRAE Standard 62.1 is the standard for ventilation rates, many older buildings 

and equipment cannot comply. In such cases, building managers should try 

to achieve at least 10 cfm of outdoor air per occupant. Installing an air intake 

measurement device can help ensure that a sufficient amount of outdoor air 

enters the system. Air intakes must remain clear of debris, and be positioned 

away from loading dock truck exhaust, trash containers, or designated smoking 

areas (which should be at least 25 feet from any opening in the building’s 

envelope). 

Properly maintained filters, with a high MERV value, are also very important 

in meeting air quality standards. Building managers can also use EPA’s 

Indoor Air Quality Building Education and Assessment Model (I-BEAM) a 

comprehensive state-of-the-art tool for managing IAQ in commercial buildings. 

Finally, CO2 sensors are useful, especially in densely occupied areas, in 

identifying the need for more outside air. To be effective they must be placed 

to take measurements at human, not ceiling, height. 

	 169	 sustainability	matters 
 

-

sustainable facility ManageMent: 

the benefits 

the	international	Facility	management	association	identifies	sustainable		 

building	practices	that	help	facility	managers	upgrade	and	operate	their		 

buildings	to	achieve	a	long term	human	and	ecosystem	balance.	Financial,	 

environmental	and	social	benefits	result	from: 

•	lower	energy	and	water	costs	 

•	lower	waste	disposal	costs	 

•	lower	environmental	and	emissions	costs	 

•	lower	operations	and	maintenance	costs	 

•	increased	productivity	of	building	occupants	 

•	increased	health	of	building	occupants	 

•	higher	building	valuation	 

•	positive	impacts	on	the	local	and	global	environment	from	reductions		 

	 in	resource	use,	emissions,	water	use	and	waste	disposal 

the	impact	of	the	facility	management	community	on	the	environment	is		 

profound.	as	stewards	of	the	built	environment,	facility	managers	are	critical		 

to	the	adoption	of	more	energy	and	environmental	solutions. 

170 inFo:	the	international	Facility	management	association	–	www.www.ifma.org 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Green cleaning is an excellent way to reduce exposure from potentially 

hazardous contaminants. Unlike a traditional cleaning program, green cleaning 

is a holistic approach to cleaning that goes beyond simple appearances and 

focuses on human health and environmental impacts. At a minimum, 

contractors can reduce exposures by limiting the amount and level of toxic 

and hazardous chemicals used. 

Products and practices employed should follow guidelines such as 

Environmentally Preferable Purchasing, the Green Seal Environmental 

Standard for Cleaning Services, and the California Code of Regulations for 

maximum allowable VOC levels for each product category. Based on the 

Centers for Disease Control and Prevention determination, soap should not 

contain antimicrobial agents unless required by health codes and regulations 

for food service and health/fitness equipment. 

All cleaning equipment should similarly follow a green standard as well 

as minimize the use of energy and water. Vacuums and extraction cleaners 

should meet the Carpet & Rug Institute “Green Label” Testing Program 

and have a maximum noise level of 70 decibels. 

Finally, one of the simplest strategies for maintaining a clean building is to 

provide “walk off” areas at all entrances to the building. Such areas should 

have at least 10 walkable feet to remove particulates from shoes. Ideally, 

walk off areas will include grates, grills, or carpet mats. All must be regularly 

cleaned and properly maintained to remain effective. It may be necessary to 

change the mats depending on the season or weather conditions. 

	 above:		 thE	Byron	rogErs	CourthousE	in	dEnvEr,	 

Colorado,	EarnEd	gsa’s	First	lEEd	For	 

Existing	Buildings	gold	rating	For	 

opErations	and	maintEnanCE	praCtiCEs. 	 171	 sustainability	matters 
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7-pOint challenge 

in	2007,	the	Building	owners	and	managers	association	(Boma)	created	a		 

7 Point Challenge	to	reduce	use	of	natural	resources,	non renewable	energy		 

sources,	and	waste	production	and	work	in	coordination	with	building	 

management,	ownership,	and	tenants: 

1 Continue	to	work	toward	a	goal	to	decrease	energy	consumption	by		 

	 30%	across	portfolios	by	2012;	 

2 Benchmark	energy	performance	and	water	usage	through	Epa s		 

	 EnErgy	star	benchmarking	tool;	 

3 provide	education	to	building	managers,	building	owners	and	operators,		 

	 engineers,	and	others	involved	in	building	operations,	to	ensure	that		 

	 equipment	is	properly	maintained	and	utilized;	 

4 perform	an	energy	audit	and/or	retro commissioning	of	buildings	and	implement		 

	 low risk,	low cost	strategies	to	improve	energy	efficiency	with	high	returns;	 

5 Extend	equipment	life	by	improving	the	operations	and	maintenance	of		 

	 building	systems	and	ensure	equipment	is	operating	as	designed; 

6 through	leadership,	positively	impact	your	community	and	your	planet	by		 

	 helping	to	reduce	your	industry s	role	in	global	warming;	and	 

7 position	yourself	and	the	industry	as	leaders	and	solution	providers	to		 

	 owners	and	tenants	seeking	environmental	and	operational	excellence.	 

172 inFo:	Building	owners	and	managers	association	(Boma)	international	–	www.boma.org 
 

 

 

 

 

 

 

 

 

 

 

 

 

cOnclusiOn 

The impact of O&M practices and policies now extends far beyond the 

mechanical room and includes a very broad range of practices that a 

building manager can implement to achieve environmentally responsible 

goals. Because EO 13423 mandates that 15% of all Federal agencies’ 

portfolios meet the requirements of the Guiding Principles for High 

Performance and Sustainable Buildings by 2015, the importance of 

sustainable O&M practices can only increase. 

What’s more, as many existing buildings are not likely to be renovated in the 

near future, the most sensible approach may be the slow but steady returns 

of an O&M program focusing on continual improvement. The use of new 

planning techniques, such as integrated design charrettes, have helped building 

and facility managers devise and implement successful O&M strategies that 

balance cost and tenant satisfaction with environmental responsibility. 

	 right:		 attraCtivE	amEnitiEs	in	a	Courtyard		 

oF	thE	irs	Campus	in	kansas	City,	 

missouri,	Expand	thE	FaCility’s	usaBlE	 

spaCE	to	outdoors. 	 173	 sustainability	matters 
174
 

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c a s e s t u d y : O p e r at i O n s a n d M a i n t e n a n c e 

John J. Duncan Federal Building 

an existing building: 


achieving sustainable excellence 


the	John	J.	duncan	Federal	Building	in	downtown	knoxville,	tennessee,		 

is	a	six story,	172,683 square foot	structure	with	two	underground		 

parking	decks.	the	building	houses	seventeen	Federal	agencies	and		 

the	knoxville	satellite	office	of	gsa s	nashville	service	Center	manages	 

the	building.	although	it	was	not	designed	and	constructed	as	a	green	 

building	in	1988,	the	duncan	Federal	Building	is	an	excellent	example		 

of	achieving	sustainable	excellence	through	operations	and	maintenance.	 

	 left:		 thE	dunCan	Building	stands	tall	as	a	modEl	 

oF	EFFiCiEnt	opErations	and	maintEnanCE. 	 175	 sustainability	matters 
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gsa	lEEd	Building 

John	J.	dunCan		 

FEdEral	Building 

KNOxVILLE, TN 

LEED EB rated: Jan4 2007 

CErtiFiEd	 

Sustainable Sites 6 14 

Water Efficiency 2 5 

Energy and Atmosphere 15 23 

Materials and Resources 3 16 

Indoor Environmental Quality 522 

Innovation and Design 3 5 

 34 85 

grEEn	FaCts 

		95%	Energy Star score 

		50%	water use reduction 

100%	occupancy rate after 

 renovations 

John J. Duncan Federal Building 

This building was an average energy and water performer until the building s 

manager, Johnathan Sitzlar, set out to meet both the requirements of 

Executive Order 13123 and GSA s 2005 fiscal year energy targets. The first 

step was putting together a diverse team of professionals, GSA associates 

and contractors. Together they developed a master plan for the building that 

started with an energy audit, continued with a careful analysis of its findings, 

and then proceeded to prioritized implementation. 

The Duncan Building team exceeded 2005 energy reduction goals by 33%, 

achieved an ENERGY STAR rating of 94, and began to utilize green energy 

sources for electricity in place of coal. In addition, they reduced water usage 

by 400,000 gallons per year. 

A parallel challenge LEED for Existing Buildings (EB) certification proved 

to be a formidable one. The team had to draw on the diverse creativity of its 

members to achieve the desired rating. However, working through the LEED 

EB process caused them to broaden their environmental initiatives, better 

engage the tenant agencies, and in the end, provide superior workplaces. The 

success of the approach is evident in the building s 100% occupancy rate, 

and in its 91% customer satisfaction score. The fundamental steps used by 

the Duncan team are an instructive lesson in greening an existing building. 

176 
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Energy 

GSA, the Department of Energy s Atlanta office, Oak Ridge National 

Laboratory, the University of Tennessee Energy, and the Environmental 

Resource Center used a team approach to conduct energy audits. Executive 

Order 13123 required GSA to reduce 2005 energy usage by 30% below 

1985 levels. For the Duncan Building, this meant a target of 52,499 Btu/gsf. 

Actual usage was 35,693 Btu/gsf in 2005, exceeding the Executive Order 

goal by 33%. Further, GSA also purchases renewable energy in blocks from 

the Tennessee Valley Authority and the Knoxville Utility Board to provide 

Green Power derived from wind, solar and methane. 

retro-commissioning 

The Duncan team quickly saw that their best opportunity at complying with 

Executive order mandates was through a comprehensive retro commissioning 

of the building s operating systems and the procurement of a new Building 

Control System (BCS). The BCS is the computerized central system respon 

sible for maximizing energy efficiency, controllable from a single on site 

location. In particular, the maintenance staff uses the system to maximize 

efficiency of the HVAC system, establish cost effective machine run times, 

use outside air to meet the demands of the building, immediately pinpoint 

problems in all systems, and produce numbers for trend data analysis in 

order to improve operating decisions. 

Systems that were retro-commissioned and connected to the BCS include: 

lighting on all floors, all variable frequency drives, chillers, boilers, cooling towers, 

garage exhausts, restroom exhausts, air handling units, the building economizer, 

	 177	 sustainability	matters 
 

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John J. Duncan Federal Building 

and all package and split units, as well as the domestic hot water loop. The 

BCS itself is tied into two real-time local utility meters that provide time-specific 

energy load data. Furthermore, an Internet portal allows the system to be 

integrated into the region’s enterprise-wide management system, allowing for 

continuous monitoring and remote support to ensure its sustained performance. 

lighting	upgrades 

Pre retrofit lighting consisted of magnetic ballasts and F40 bulbs. Favorable 

life cycle cost analysis enabled GSA to obtain funding for upgrading the 

building s 1,536 lighting fixtures to electronic ballasts and T 8 bulbs, and 

to replace incandescent lamps with compact fluorescents. Also, motion 

detectors control the lighting in restrooms, conference rooms and other 

non regularly occupied spaces. 

water	Conservation 

By installing secondary meters on the exterior landscaping water lines, GSA 

demonstrated to the local utility company that water was being diverted from 

the waste stream and the agency was able to reduce its sewage utility bills. 

Fourteen waterless urinals installed in the restrooms provide water free usage. 

The team also changed all 2.5 gallon per minute (gpm) faucet aerators to 

those using 0.5 gpm. 

Equipment	replacement	 

In order to further reduce energy and water consumption, it was necessary to 

identify the most environmentally sound means of upgrading the building s 

existing cooling tower, already scheduled for replacement. The existing 

cooling tower used two 15 horsepower motors and lost excessive amounts of 

178 
 

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	 left:		 thE	dunCan	rEnovation	inCludEd	rEplaCing	 

thE	Cooling	towEr	with	a	supEr	EFFiCiEnt	 

ChillEr	halF	thE	sizE.	 

	 above:		 sustainaBlE	opErations	and	maintEnanCE	 

praCtiCEs	ExtEnd	BEyond	thE	Building	to	 

EnhanCE	a	nEighBorhood	park. 

water due to overspray. The new tower incorporates premium efficiency fill, 

and uses two premium efficiency 7.5 horsepower motors. Together, they have 

significantly reduced total operating time, and thus the load on the building. 

recycling	 

Through office waste recycling programs, construction material recycling, 

and educational programs for the tenants, the Knoxville team reduced waste 

destined for landfills by 40%. In 2005, the team diverted 13.75 tons of 

white paper and over 300 pounds of aluminum from the landfills. Through 

a joint effort between the University of Tennessee and GSA, moving boxes and 

telephone books given to the local school system provide additional funding 

to the school system through their recycling efforts. They also diverted nearly 

12,000 square feet of carpet removed from renovated tenant spaces from 

the landfill. Using new technology, a local contractor was able to convert 

the old carpet into reusable carpet tiles for the local Knox County School 

System, saving the school system nearly $24,000 and saving GSA 

construction waste fees. 

green	space	 

The site includes a large amount of green space, providing one of the nicest 

courtyards in downtown Knoxville, and heat island reduction for the city s 

center. As part of its plan, the team installed recycled, post consumer plastic 

benches under the canopy and the landscapers used recycled tire mulch in 

place of wood based mulch. (Recycled tire mulch diverts tires from the 

landfill and does not fade or deteriorate.) A cost analysis confirmed savings 

of $30,000 to $35,000 over the nine year contract. 

	 179	 sustainability	matters 
 

 

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John J. Duncan Federal Building 

compared to an average building, 

this building saves the equivalent 

of about 91,000 gallons of gaso 

line per year, or the amount of 

fuel required to drive 216 million 

automobile miles per year. another 

perspective would be to say that, 

compared to an average building, 

savings here is the electricity 

equivalent of 18 train cars of coal 

if their contents were burned to 

make electricity. 

Jim	powEll,	rEgional	dirECtor,	 

dEpartmEnt	oF	EnErgy 

institutionalization 

Within GSA Region 4, energy reduction measures in this facility now serve as 

best practices for a variety of common agency contracts. 

maintenance 

By working closely with contractors and tenants, GSA proposed green cleaning 

and integrated pest management as a no cost enhancement of its services. 

Additionally, the region developed maintenance contract language that called 

for more stringent maintenance schedules, more sustainable processes in 

building renovation, and the use of more environmentally sound building 

materials. This language now serves as the model for new maintenance 

contracts throughout the region. 

tenant	meetings 

The team took particular care to ensure that the tenants were educated about 

the changes going on in the building. Regularly scheduled meetings serve as 

change management sessions and address such issues as: 

• material reuse and recycling 

• safety issues 

• energy conservation turning off lights, discouraging the use of personal 

heaters, unplugging equipment 

• green cleaning with biodegradable products that lack both the side effects 

of standard commercial cleaners and the perfumes that many people 

associate with clean 

180 
 

 

 

 

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energy savings 

Baseline	usage	(Fy	2004):		 

1,931,040	kwh/year	 

Electric	usage	(Fy2005):		 

1,640,880	kwh/year	 

annual	kwh	savings:		 

290,160	kwh/year	(15%	decrease)	 

total	Energy	savings:		 

1,177	mmBtu	including	gas	 

annual	Energy	Cost	savings:	$15,570	 

Water savings 

savings:	400,000	gal/year	$22,619/year	 

meter	data	not	available 

envirOnMental benefits 

recycling:	40%	waste	diversion	from	landfill	 

renewable	Energy:	97,200	kwh	per	year		 

equivalent	to	27	acres	of	trees,		 

recycling	432,864	aluminum	cans,		 

or	recycling	47,682	pounds	of	paper	 

Co2	reduction:	1,452,759	kg	 

so2	reduction:	4,296	kg	 

so x

	reduction:	3,049	kg	 

siMple payback 

3.7	years	on	$142,000	cost	for		 

water	and	energy	measures 

The meetings also promote new ideas such as alternative modes of 

transportation, electrical outlets for alternative fuel vehicles, and bicycle 

racks as well as valuable public relations and employee benefit initiatives. 

In 2005, to maximize the use of public transportation, the team arranged 

for the Knoxville Area Transit Authority (KAT) to provide a free ride share 

program. Now, tenants can ride the KAT buses for free from different 

locations throughout Knox County. 

cOnclusiOn 

The GSA Duncan building team succeeded by taking a holistic approach 

toward reducing the environmental impact of their facility, and in so doing, 

exceeded the objectives of Executive Order 13123. They also received a 

Federal Building Showcase Designation, and LEED EB certification. 

	 181	 sustainability	matters 
Municipalities that signed U.S. Conference of Mayors Climate Protection Agreement 

States with signed green building legislation 

182
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Beyond GSA: 


The Greening of America
 

The ProliferaTion of Green 

Aristotle said, “We are what we repeatedly do.” If this is so then 

the United States is edging ever closer to becoming a green nation. 

Environmentalism is proliferating—in buildings, the popular media, 

state and local governments, non-government organizations (NGOs), 

corporations and industry. 

Consider these private sector initiatives as just a few recent examples. 

• CB Richard Ellis announced it would become carbon neutral 

by 2010 at the more than 5 million square feet it occupies worldwide. 

• Wal-Mart, the world’s largest retailer, has asked its 60,000 suppliers to 

reduce packaging by 5%, avoiding millions of pounds of trash in landfills 

and 667,000 metric tons of carbon dioxide in the atmosphere. 

• Home Depot, another retailing giant, launched EcoOptions to identify 

environmentally preferable products. More than 2,500 products are labeled. 

• PNC is the first U.S. bank to apply green building standards to all newly 

constructed or renovated retail branch offices and has more certified 

“green” buildings than any other company in the world. 

• Delta Airlines offers passengers the option to buy carbon offsets for their 

trips at the same time that they buy their tickets through a donation to 

The Conservation Fund’s tree-planting program. 

183 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Beyond GSA: The Greening of America 

early influencers 

Our national focus, triggered by global warming awareness and the desire to 

become energy independent, may be a recent phenomenon, but its roots can 

be traced back to multiple sources over many decades. Prominent among 

them is the role of the Federal government, including EPA, DOE, 

GSA and the Executive orders, programs and policies mentioned throughout 

this book. However, other entities, both public and private, have played roles 

as well. 

State and Local Governments 

Local jurisdictions have been especially proactive in enacting green initiatives. 

Early adapters include the City of Austin, which founded its Green Builder 

Program in 1991 and the City of Seattle’s inter-departmental committee, which 

partnered with municipal utilities to develop its Sustainable Building Action 

Plan in 1997. In New York City the Office of Sustainable Design published the 

High Performance Building Guidelines in 1999 that became a respected green 

building reference. Major U.S. cities, including Boston, San Francisco and 

Washington, DC, have recently mandated green commercial development. 

An early adopter of green building policies and initiatives, Arlington County, 

Virginia, with its somewhat high density but well-managed smart growth, 

has served as a model for other communities looking to improve their 

environmental programs and achievements. 

On the state level, the Maryland Environmental Service, established in 

1970 to protect and enhance the state’s air, land and water resources, has 

expanded and continues its work today. The Commonwealth of Pennsylvania 

established the Governor’s Green Government Council by Executive order 

in 1998 to help the government and its agencies achieve environmental 

sustainability. California’s low emission targets are influencing action in 

other states and its Collaborative for High Performance Schools, popularly 184 

known as CHPS, is a design guide that has found a national audience. 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

“My goal has always been for 

usGBc to make the term ‘green 

building’ redundant—because all 

buildings will be green.” 

RiCk FEdRizzi, CEO, 


FOUNdiNG CHAiRMAN, USGBC
 

Non-Government Organizations 

Worldwide there are literally hundreds of thousands of non-government 

organizations (NGOs) advocating for environmental causes. Some, like Natural 

Resources Defense Fund, The Sierra Club, Greenpeace and the World Wildlife 

Fund are well known; others are more obscure. Several NGOs have made 

significant contributions to the built environment. 

USGBC 

As early as 2002, the Wall Street Journal attributed the tremendous rise in 

environmental consciousness to the work of the U.S. Green Building Council. 

Certainly before its founding in 1993, the term “green building” was not 

commonly recognized or used. Today, with more than 16,000 member 

companies and organizations and a diverse portfolio of LEED green building 

rating systems, USGBC provides the industry a national standard rating system 

for the development, operations and management of high-performance 

sustainable buildings. It has come to serve as the primary forum for ongoing 

consensus-based, industry-wide discussions of improvements to green building 

standards and the vetting of new—or controversial—issues. The Council’s 

annual Greenbuild conference is the world’s largest dedicated to green 

buildings; and 70 local chapters and affiliates support USGBC activities 

nationwide. 

ASHRAE 

Best known by its acronym, the American Society of Heating, Refrigerating, 

and Air-Conditioning Engineers influences the design and construction of 

buildings through the widespread use of its standards. Founded in 1894, 

ASHRAE is an international technical organization that provides research, 

knowledge and guidance to help ensure energy-efficient, comfortable and 

left: ARLiNGtON COUNty, ViRGiNiA, wAS ONE OF 

tHE FiRSt COUNtiES tO EMBRACE GREEN 

BUiLdiNG PRACtiCES iN BUiLdiNGS LikE 

tHE wALtER REEd COMMUNity CENtER. 

185 sustainability matters iNFO: U.S. Green Building Council – www.usgbc.org 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Beyond GSA: The Greening of America 

safe indoor environments. The Society publishes the ASHRAE Standards for 

HVAC systems and refrigerants—which are widely used in building codes— 

as well as the ASHRAE Handbook, a four-volume resource manual, and the 

ASHRAE Journal, a monthly magazine with peer-reviewed articles. The 

ASHRAE Green Guide offers guidance on green design and tips on techniques, 

processes, measures and systems. 

ASHRAE, in partnership with USGBC and the Illuminating Engineering 

Society of North America (IESNA) is developing a code-enforceable minimum 

guideline for green buildings. The Standard for the Design of High-Performance 

Green Buildings Except Low-Rise Residential Buildings (Standard 189.1) is 

an effort to establish a set of code-enforceable minimum guidelines for the 

sustainable design, construction and operation of buildings. It is not a rating 

system. It will impact LEED and other rating systems and may well become 

a prerequisite. 

AiA/COtE 

The Committee on the Environment (COTE), operating as an arm of the 

American Institute of Architects (AIA), provides programs and services 

to enhance green design practices and protect the natural environment. 

AIA/COTE has asserted its role in green design with its annual listing of 

the Top Ten Green Projects, a juried competition that recognizes the best 

in sustainable design. The Wayne L. Morse U.S. Courthouse in Eugene, 

Oregon, and the IRS campus in Kansas City, Missouri are among the winners. 

BOMA international 

The Building Owners and Managers Association (BOMA) is an international 

organization founded in 1907 as a primary source of information on office 

186	 iNFO: ASHRAE – www.ashrae.org 

iNFO: Committee on the Environment – www.aia.org/cote 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

sustainable development: 

“development that meets 

the needs of the present 

without compromising the 

ability of future generations 

to meet their own needs.” 

UN REPORt OF tHE wORLd 

COMMiSSiON ON ENViRONMENt 

ANd dEVELOPMENt 

Our COmmOn Future (1987) 

building development, leasing, operating costs, energy use, codes, regulations 

and legislation. It has become proactive in combating the environmental 

and economic risks of global warming by introducing a Market Transformation 

Energy Plan and 7-Point Challenge, which urge building management, 

ownership and tenants to work in coordination with each other to reduce their 

use of natural resources, non-renewable energy sources and waste production. 

world Business Council for Sustainable development (wBCSd) 

The World Business Council for Sustainable Development (WBCSD) is a 

coalition of 175 international companies united by a shared commitment to 

sustainable development via the three pillars of economic growth, ecological 

balance and social progress. This group is leading the development of the 

international standard for greenhouse gas measurement. The EPA uses this 

standard for the U.S. under its Climate Leaders program. 

recoMMended readinG 

When Rachel Carson wrote Silent Spring in 1962, awareness of the 

environmental effects of business practices was almost completely absent. 

In The Ecology of Commerce (1993) Paul Hawken predicted, “If every 

company on the planet were to adopt the best environmental practices of the 

‘leading’ companies...the world would still be moving toward sure degradation 

and collapse.” By discussing environmental practices in business terms 

Hawken created an economic argument that has influenced change in dozens 

of businesses. 

Reading Paul Hawken’s book, Ray Anderson, as CEO of Interface, one of the 

world’s largest interior furnishings companies, developed the first “how-to” 

plan for industry. In Mid-Course Correction, published in 1998, Anderson 

left: tHE wAyNE L. MORSE U.S. COURtHOUSE 

iS tHE FiRSt GSA BUiLdiNG tO EARN AN 187 sustainability matters iNFO: BOMA – www.boma.org AiA/COtE tOP tEN AwARd. 

iNFO: wBCSd – www.wbcsd.org 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Beyond GSA: The Greening of America 

“sustainability, like quality, 

doesn’t cost; it pays. in all 

my business experience, 

i have never seen a more 

powerful differentiator in 

the marketplace.” 

RAy ANdERSON, FOUNdER ANd 

CHAiRMAN OF iNtERFACE, iNC. 

describes his company’s climb up “Mount Sustainability” and its seven faces: 

waste elimination; benign emissions; renewable energy; closed loop material 

flows; resource-efficient transportation; sensitizing employees, customers, 

suppliers, and communities; and ultimately reinventing commerce. 

The environmental movement is rich with those who have led and inspired. 

They include Amory Lovins, William McDonough, David Suzuki, Janine 

Benyus and the countless others who have contributed to the existing body 

of knowledge. Paul Hawken, in his latest book, Blessed Unrest: How the 

Largest Movement in the World Came into Being and Why No One Saw It 

Coming, looks at the continuing and serious woes affecting our planet, but its 

focus is on what’s right in this world. It is an examination of the movement— 

the “coherent, organic, self-organized congregations involving tens of millions 

of people dedicated to change.” 

Buckminster Fuller said, “When individuals join in a cooperative venture, 

the power generated far exceeds what they could have accomplished acting 

individually.” GSA is part of and a valuable contributor to a vibrant community 

of players who are learning, every day, from each other. We conclude this 

look outside with two interviews giving a personal view of how the practice 

of building has changed over the past few decades. 

188 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Conversations and Reflections 

By Penny Bonda, fasid 

BoB BerkeBile, faia 

Things are different now in the private sector according to one of the nation’s 

most respected green architects. Bob Berkebile, a founding principal of BNIM 

in Kansas City, is a leading authority in the field of sustainable design. As a 

true pioneer, and drawing from more than 37 years experience in architecture, 

Bob Berkebile is imminently qualified to assess the green building industry’s 

best practices and recommend how GSA can learn from the private sector to 

better inform its own procedures. 

During a recent conversation, he did just that, reflecting first on the changing 

nature of his own firm. 

“We used to spend a lot of time at the outset of projects interviewing and 

educating our clients to see if we could lift their goals. Increasingly clients 

now call us, from all sectors—government, private, institutional—already 

motivated and looking for help in reaching a higher standard beyond LEED 

platinum. Each defines it differently but it’s pretty common to be asked for 

help in delivering the triple bottom line—a balance between economic, 

ecological and social objectives. Or, clients want us to create a planning 

strategy for a living community or building with exemplary performance. 

“The conversation is no longer just about the LEED cost premium as it once 

was. Clients are still interested in defining the initial increase in capital cost 

necessary to get a truly high performance project and how long it will take 

to recover their investments; however, all stakeholders—clients, architects, 

engineers, contractors, and suppliers—have more experience and green building 

cost premiums are coming down. Design teams, owners and contractors are 

incorporating integrated design concepts early on, which are proving to be far 

more efficient and economical and produce much better results. 

189 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 above, below: BNiM’S LEwiS ANd CLARk StAtE OFFiCE 

BUiLdiNG, MiSSOURi dEPARtMENt OF
 

NAtURAL RESOURCES, iN JEFFERSON City, 


MiSSOURi, RECEiVEd A LEEd PLAtiNUM
 

RAtiNG witHiN A CONVENtiONAL OFFiCE
 

BUiLdiNG BUdGEt. 


Beyond GSA: The Greening of America 

“GSA and other government agencies still have a barrier because, in many 

cases, the contractor is not part of the initial decision-making process that 

is creating the innovations that are going to reduce costs and increase 

performance. Without ownership, an adversarial relationship may develop 

due to a lack of alignment of goals between the construction team, the design 

team and the client. 

“In order to optimize chances for success it’s time for GSA to reconsider 

its rules of engagement. Ten-year leases, for example, encourage developers 

to cash out at the end of the term and there’s an impact on the overall 

quality, durability and performance of the project. Just by considering a 

longer term, I believe GSA would see significant improvements in what 

they’re purchasing. I’d also encourage more specific performance standards 

that require integrated thinking, better systems and more durable materials. 

This would cause developers to rethink their economic models because their 

buildings would retain their value longer. 

“We just broke ground in upstate New York on what will be our first living 

building and there are three more in various stages of design. A living building 

is one that has no net impact on the environment. It produces more energy 

than it consumes, purifies more air and water than it pollutes, and uses 

locally sourced materials so it’s not doing damage elsewhere. My vision 

is that the next refinement of LEED will be based on these principles of 

regenerative solutions and move the LEED program to beyond platinum. 

Since GSA was such an important leader in the early going of LEED I hope 

they will have a great role in taking it to the next level.” 

190 
 191 sustainability matters

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

BoB fox, aia 

Any conversation with Bob Fox is likely to include discussions of the highly 

innovative green building strategies and advanced thinking that has made his 

firm, Cook+Fox Architects, one of the most admired in the green building 

industry. Many of their projects are breaking new ground, such as the Bank of 

America Tower in New York City, which is slated to be the first high-rise to 

achieve the LEED Platinum. After 43 years in practice, Fox has been witness 

to an evolving profession. 

“There’s been a dramatic change in the practice of sustainable design that I 

believe can be attributed to the remarkable growth of the U.S. Green Building 

Council. It’s changed the language of architecture and the way architects are 

approaching their work. 

“Our process, however, is different from that of many firms who use the LEED 

checklist as a road map for how to do a green building. We use LEED on all 

of our projects but as a measure of how well we’ve done in creating the most 

high-performance building possible. Our approach is to educate our clients and 

assemble the best possible collaborative team at the earliest possible stage. 

“Rick Cook and I joined with Bill Browning to create Terrapin, a green think 

tank, to work on our projects as well as those for others—developers, government agencies, not-for-profits. We begin by organizing a one- to two-day 

charrette where we explore all the possibilities of a project with the right 

consultants, such as landscape architects, mechanical engineers, lighting 

191 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Beyond GSA: The Greening of America 

designers and others—people who are at the top of their game. We try hard 


to bring the builder in at this early stage. It starts things off right and gets 


us to the best possible building.
 

“Here’s an example of the innovative and integrated thinking that results from 

the charrette process. At the Bank of America building we were exploring ways 

with the mechanical and structural engineers to capture all of the storm water 

—four feet of rain and snow per year—by using the core structure of the 

building, a combination of a steel frame and two-foot thick concrete shear 

walls. The cellar beneath the ground floor is 85 feet deep, or three floors, and 

the elevator pits extend down only to the first floor of the cellar; below that 

there’s nothing—essentially air—surrounded by these very thick concrete 

walls. By using that space, we got a huge water storage tank—water that can 

be used for the cooling tower and flushing toilets—for free! 

“Terrapin was hired by Gale International to work on a new city of office/ 

residential/retail buildings in South Korea that is to be a model of sustainability and technological innovation. One of our first challenges was the poor 

condition of the soil and we thought we were going to have to pour giant 

15-foot thick concrete mats in order to support the structures. Instead we 

proposed using large ice storage tanks buried in the foundation. Because 

they’re filled with liquid or ice all the time, they’re quite heavy and would 

take the place of the concrete in the mats. This would save a fair amount 

on the foundation work, cleverly create a space large enough for on-site 

ice storage, and eliminate the CO2 that comes from cement manufacture. 

192 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

“It’s a cool solution that came directly out of the charrette experience. It’s 

so inexpensive to do this kind of thinking up front, whereas the chances of 

integrating a great idea like this six months into the project are slim—you’re 

too far in. The secret is to get the right people in the room without their egos 

who are willing to share ideas and collaborate. Internalizing the concept and 

the process means asking, what can I do with that idea that would use less 

material, less energy and somehow integrate it into the building? 

“Clearly, in history there were architects who were incredible leaders and 

made great changes from what had been the standard. It seems we need 

that kind of thinking now and maybe USGBC is leading the way. GSA, to 

its great credit, has been a leader as well by requiring LEED certification 

in its buildings. When an agency with that much influence has that much 

foresight, this is a good thing.” 

shown: tHE BANk OF AMERiCA tOwER 193 sustainability matters iN NEw yORk ASPiRES tO BE 

tHE FiRSt LEEd PLAtiNUM 

SkySCRAPER iN tHE COUNtRy. 
194
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Moving Forward: 


The Challenges Ahead
 

On the Brink Of Change 

As one of the largest public real estate organizations in the world, GSA’s 

Public Buildings Service has the responsibility to demonstrate an intelligent 

approach to design, construction and operation of our buildings that can 

reduce our environmental impacts while creating effective places for people 

to work and for the government to conduct its business. 

Perhaps of greater importance is our obligation to provide the leadership for 

the building industry—in this case to deeper shades of green. Documented 

and compelling evidence supports our need to do this. Buildings in the United 

States account for 68% of all electricity consumed, 39% of all energy used, 

38% of carbon dioxide emissions and 12% of the total water consumption. 

Building-related waste from construction and demolition accounts for nearly 

60% of all non-industrial waste (136 million tons annually). These numbers 

oblige us to recognize that changing the way buildings are created and 

operated can make a huge and immediate impact in addressing important 

global issues including the threats of climate change. 

GSA has a long history of investing in energy-efficient building solutions 

and we have historically met or exceeded our energy reduction goals. Now, 

energy reduction is necessary but not enough. As we have learned, mechanical 

systems and efficient building operations are important facets but not the 

whole solution to energy efficiency. Similarly, energy efficiency alone does 

not answer the quest for sustainable solutions in the built environment. 

	 left:		 Metal	rain	screen	walls	surround		 

a	courtyard	of	bio-swales	that	filter	 

storMwater	and	clean	supply	air	at		 

the	land	port	of	entry	in	calais,	Maine. 	 195	 sustainability	matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Moving Forward: The Challenges Ahead 

This sentiment has become widely acknowledged and as this publication 

neared completion, Congress passed and the President signed into law on 

December 19, 2007, the Energy Independence and Security Act of 2007. 

This new law sets ambitious goals for Federal agencies and the building 

industry as a whole, not just in the area of energy efficiency but in other 

related resource areas as well. The mandates for Federal agencies present 

immediate and identified challenges in sustainable design, lighting 

efficiency, energy efficient products, renewable energy, energy reduction, 

and demonstration projects to name a few. Significantly, Federal buildings 

designed in 2030 will be required to be carbon neutral. Mandates for GSA 

include a requirement to establish the Office of Federal High-Performance 

Green Buildings to set standards for, coordinate activities and publicize 

information related to high-performance green buildings across the 

government. 

As the singular focus of simply reducing energy consumption evolves toward 

goals for using non-fossil fuel energy, developing and using renewable energy, 

and achieving sustainable high-performing buildings, our approach must 

expand to consider building design holistically. Successful strategies to 

address energy, water and other resources must integrate location and use 

factors. These include building orientation, climate considerations, envelope 

characteristics, mechanical, and lighting systems and the mission and work 

requirements of our customers. Though we have begun this effort with 

considerable success, we must increase our commitment to bring the entire 

building delivery team—client, designers, engineers, project managers, 

and building operators—into an integrated design process at the outset. In 

addition, we must agree on a set of performance metrics at the outset that 

will be verified at building delivery and on an ongoing basis after occupancy. 

196 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

	 left:		 land	port	of	entry,	warroad,	Minnesota		 

and	other	border	stations	Must	consider	 

sustainable	design	solutions	such	as		 

on-site	renewable	power,	rainwater	 

collection,	and	wastewater	treatMent. 

	 above:		 a	double	glass	wall	and	a	living	green		 

screen	are	orientation-specific	treatMents	 

under	study	to	replace	the	façade	of	the	 

edith	green/wendell	wyatt	federal	building	 

in	portland,	oregon. 

MOving fOrward 

In moving forward, listing requirements and platitudes to do better is simply 

a mental exercise. The more important challenge is communicating data that 

are persuasive and incontrovertibly demonstrate that green buildings are, in 

fact, better, and that high-performing green buildings are the inevitable future 

of the building industry. 

Initial data speak to energy performance, and as found in a 2007 study 

by the New Buildings Institute of 121 buildings nationwide, LEED Certified 

buildings perform 25–30% better than average non-LEED buildings, LEED 

Silver perform 35% better, and LEED Gold and Platinum buildings perform 

45% better. 

Similarly, GSA conducted a study in 2007 of 14 GSA buildings, both owned 

and leased, located in half of its regions to compare energy, water, maintenance 

and operations, waste, recycling, transportation, and occupant satisfaction 

metrics against industry-standard performance. This whole building 

performance approach examined actual measured data from several years of 

operation. GSA’s sustainably designed buildings investigated under the study 

cost less to operate, have excellent energy performance, and have occupants 

who are more satisfied with the overall building than the occupants in typical 

commercial buildings. Several of GSA’s early LEED buildings were not designed 

from an integrated design perspective and interestingly, were not energy 

efficient. It is not clear if one condition followed the other; however, 

observations from the study confirmed common beliefs, such as buildings 

that intentionally incorporate energy considerations into design deliver better 

energy performance. 

	 197	 sustainability	matters 
198

’

	 	 building	forM	is	used	to	harness	the	power		 

of	the	wind	and	sun	to	create	a	carbon		 

neutral	building	in	sMith+gill s	clean	 

technology	tower,	chicago,	illinois. 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

This study is only one piece of a larger body of research and data that need 

to be pursued by the building industry and communicated to the real estate 

community and its stakeholders. Efforts to continue such exploration are not 

only encouraged but applauded; and in the new Energy Independence and 

Security Act of 2007, the research is mandated. 

As perceptions of building performance widen, we must find performance 

data addressing infrastructure, customer needs, and human health and 

comfort. Measuring the performance of recently constructed projects must 

include metrics ranging from workplaces, through innovative technologies 

and practices, to whole building performance. 

While not an answer to the on-going debate on how much “green” costs, 

the data gathered will help us relate the value of the investment in sustainable 

design to the benefits realized. As a corollary, we can better determine those 

design features that offer the best return on investment and value to GSA. 

This should drive us to better, more holistic designs for new buildings and 

renovations—even at the expense of perhaps doing fewer numbers of projects. 

And the trade-off that conventional thinking would push for (better technology 

costs more, so less is built) needs to be countered with creative design, 

creative procurement methods, and creative financing. Then, a wealth of 

possibilities open. 

For GSA, as both a property developer and a property manager, designing 

and constructing sustainable buildings is just the first step. To fully realize 

the performance of a green building we must improve our operational 

practices. Continued research will provide data that can help advance green 

building design/construction features and practices so that we can optimize 

building operations and maintenance. 

	 199	 sustainability	matters 
“

‘

’

”

 

regenerative	capability	
 

continuous	improvement?
 

restorative	 

design 

sustainability	targets	 

(100%	less	damage) 

absolute	 

improvement 

greening	goals	 

(slowing	down	the	damage) 

relative	 

improvement 

conventional	practice	goals 

concept	by	bill	reed	and	regenesis 

current	green	building	goals	are	typically	characterized	in	terms	of	relative	 

improvement	over	conventional	practice,	as	in	 30%	energy	savings	compared	 

with	an	ashrae	90.1	baseline. 	beyond	this	relative	improvement	model	is		 

a	vaguely	understood	idea	of	sustainability,	where	any	negative	impacts	from	 

our	projects	are	somehow	within	the	capacity	of	natural	systems	to	absorb		 

and	mitigate	indefinitely.	but	even	that	goal	has	two	questionable	implications:	 

1)	that	the	current	state	of	natural	systems	is	good	enough,	and	should	be	 

sustained;	and	2)	that	the	built	environment	will	always	exist	in	opposition		 

to	natural	systems.	are	we	really	constrained	by	these	implications? 

froM	Expanding Our apprOach tO SuStainablE dESign: an invitatiOn,	gsa	2006 

200 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

a new visiOn 

In April 2005, GSA, with support from the Rockefeller Brothers Fund, 

convened a workshop composed of leading sustainable design practitioners 

and thinkers. Participants explored avenues in the building process and in the 

integrated design process that could inspire and propel revolutionary change. 

The following two excerpts from a GSA publication, Expanding Our Approach 

to Sustainable Design: An Invitation, set the stage for examining the larger 

context and posing deeper questions for project teams. 

“Our current approaches are focused on reducing negative impacts. They can 

be characterized as ‘doing less damage’ or ‘doing damage less quickly.’ They 

beg the question, is achieving even 100 percent less damage good enough?” 

“As practices evolve, we need to be looking further ahead toward a vision 

for the built environment that is not limited by the paradigms of the current 

building industry. This vision must expand beyond the idea of a building 

as a fixed end-point, toward a more fluid understanding of project design, 

construction, and operation as they relate to sustainability and regenerative 

relationships.” 

It is easy to leave the reader to ponder this vision of the built environment, 

the natural environment and the human environments not only coexisting, 

but also contributing to one another. It is harder to ask each person, each 

customer, each GSA associate to embrace the vision of a sustainable future. 

Yet, that is what we are asking and we implore each reader—in the words of 

Mahatma Gandhi, “You must be the change you wish to see in the world.” 

	 201	 sustainability	matters 
-

 

united	 steam	 industrial	 civil		 end	of	the	 John	Muir,	 atomic	 rachel	carson,	 energy		 

states power revolution war american	frontier	 sierra	club energy silent	spring crisis 

200	years	ago 100	years	ago gsa	 

energy	plan	 

initiated 

today 

energy and envirOnMental COnCerns eMerge 

in	the	1800s,	steam	power	heralded	the	modern	industrial	revolution,		 

and	was	followed	closely	by	electrical	power	and	electric driven	 

machines.	populations	moved	from	farms	to	cities.	factories	brought		 

an	increase	in	pollution,	crowded	living,	and	the	spread	of	disease.		 

by	the	turn	of	the	century,	there	was	a	growing	concern	in	health	issues	 

and	the	environment. 

the	continuous	demand	for	automobiles	brought	about	the	superhighway	 

in	the	1950s.	the	use	of	petroleum	products	continued	to	rise,	causing	 

an	energy	crisis	by	1980.	at	current	consumption,	the	known	reserves	of	 

crude	oil	will	be	gone	by	2039.		 

202 
 

’

-

“ ”

gsa’s rOle in sustainaBility leadership 

	 1975	 1980	 1985	 1990	 1995	 2000	 2005 

$100 

$90 

$80 

$70 

$60 

$50 

$40 

$30 

$20 

$10 

0 

gsa	energy		 

down	16.5% 

1995 

gsa	energy		 

down	22.4% 

2000 

gsa	energy		 

down	30% 

2005 

gsa	first		 

federal	Member	 

of	usgbc 

2001 

gsa s	first	 

renewable		 

energy	purchase 

1991 

gsa	computerizes	 

all	utilities	for		 

all	buildings 

1985 

gsa	first	green	 

lease	procurement 

1998 

gsa	first	solar	pv 

2000 

first	gsa		 

leed	certified	 

building 

2002 

first	gsa		 

leed	gold		 

building 

2003 

gsa	establishes	 

sustainable	 

design	program 

1999 

gsa	holds	first	 

government wide	 

energy	conference	 

teeM 

1994 

gsa/epa		 

green	cleaning		 

pilot	project 

1993 

first	gsa		 

solar	installation 

1978 

department	of	energy	 

(doe)	created 

1977 

gsa	energy		 

plan	starts 

1973 

gsa	first	 

planted	roof	 

installed 

1975 

gsa	uses	 

integrated	pest	 

management 

1989 

gsa	reduces	 

building	petroleum	 

use	by	97% 

2006 

gsa	achieves	 

22	leed	 

buildings 

2007 

gsa	receives	aia	 

top	ten	award 

2007 

gsa	reaches	 

500,000	sq	ft	 

of	planted	roof 

2006 

the	graph	shows	the	fluctuation	in	cost		 

of	a	barrel	of	crude	oil,	with	a	price	under		 

$20	in	1970	and	a	price	over	$100	in	2007.	 

	 203	 sustainability	matters 
Social Security 

adminiStration annex 

WoodlaWn, Md 

lEEd nC rated: nov19 2002 

certified 

nathaniel r. JoneS federal 

BuildinG and u.S. courthouSe 

YoungStoWn, oH 

lEEd nC rated: nov 25 2002 

certified 

Social Security adminiStration 

child care center 

WoodlaWn, Md 

lEEd nC rated: Feb 27 2003 

certified 

ePa new enGland 

reGional laBoratory 

CHElMSFoRd, Ma 

lEEd nC rated: Mar 31 2003 

Gold 

Sustainable Sites 4 14 Sustainable Sites 10 14 Sustainable Sites 6 14 Sustainable Sites 7 11 

Water Efficiency 2 5 Water Efficiency 2 5 Water Efficiency 2 5 Energy Efficiency 6 11 

Energy and atmosphere 8 17 Energy and atmosphere 1 17 Energy and atmosphere 5 17 Materials and Resources 6 12 

Materials and Resources 5 13 Materials and Resources 4 13 Materials and Resources 6 13 Indoor Environmental Quality 6 7 

Indoor Environmental Quality 5 15 Indoor Environmental Quality 8 15 Indoor Environmental Quality 7 15 Safeguarding Water 5 8 

Innovation and design 2 5 Innovation and design 2 5 Innovation and design 2 5 design Excellence 1 1 

 26 69 

Green factS 

25% energy usage reduction 

 using thermal ice storage 

41% materials locally manufactured, 

reducing transportation impacts 

77% reuse of existing building shell 

 27 69 

Green factS 

73% construction waste diverted 

 fromlandfills 

62% materials locally manufactured, 

reducing transportation impacts 

90% spaces have views of outdoors 

 28 69 

Green factS 

98% spaces have views outdoors 

58% recycled content in materials 

33% energy performance 

improvement over baseline 

 31 50 

Green factS 

35% open space maintained on-site 

35% energy performance 

improvement over baseline 

57% materials were 

manufactured locally 

204 

GSA LEED buiLDinGS 
 

ePa Science and 

technoloGy center 

KanSaS CItY, KS 

lEEd nC rated: Jul30 2003 

Gold 

united StateS dePartment 

of tranSPortation facility 

laKEWood, Co 

lEEd nC rated: oct4 2004 

Silver 

united StateS and canadian 

Shared Port of entry 

SWEEt gRaSS, Mt 

lEEd nC rated: May 20 2005 

certified 

Scowcroft BuildinG, 

internal revenue Service 

ogdEn, ut 

lEEd nC rated: nov 4 2005 

Silver 

Sustainable Sites 11 14 Sustainable Sites 8 14 Sustainable Sites 6 14 Sustainable Sites 6 14 

Water Efficiency 5 5 Water Efficiency 1 5 Water Efficiency 3 5 Water Efficiency 2 5 

Energy and atmosphere 3 17 Energy and atmosphere 8 17 Energy and atmosphere 1 17 Energy and atmosphere 7 17 

Materials and Resources 6 13 Materials and Resources 6 13 Materials and Resources 4 13 Materials and Resources 6 13 

Indoor Environmental Quality 9 15 Indoor Environmental Quality 7 15 Indoor Environmental Quality 9 15 Indoor Environmental Quality 9 15 

Innovation and design 5 5 Innovation and design 5 5 Innovation and design 4 5 Innovation and design 3 5 

 39 69 

Green factS 

43% stormwater reduction through 

pervious surfaces and rainwater 

capture 

40% water use reduction from 

flushing toilets with rainwater 

99% roof surface is covered with 

 anEnergy Star rated roof 

 35 

Green factS 

33% energy performance 

improvement over baseline 

50% water reduction from 

drought-tolerant plants and 

high-efficiency irrigation 

76% construction waste diverted 

 fromlandfills 

69 27 

Green factS 

 4%electric fork-lift trucks 

 purchased for use on site 

100% drought-tolerant, 

 native-species plants 

 98%construction waste 

 diverted from landfills 

69 33 

Green factS 

100% historic building reuse – 

 exterior 

 50%historic building reuse – 

 interior 

 30%energy performance 

 improvement over baseline 

69 

205 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

GSA LEED buiLDinGS 

oSha Salt lake 

technical center 

SandY, ut 

lEEd nC rated: Jan 12 2005 

Silver 

ePa national 

comPuter center 

RESEaRCH tRIanglE PaRK, nC 

lEEd nC rated: Feb 26 2005 

Silver 

national Park Service midweSt 

reGional headquarterS 

oMaHa, nE 

lEEd nC rated: May 3 2005 

Gold 

dePartment of 

homeland Security / inS 

oMaHa, nE 

lEEd nC rated: apr 17 2006 

Gold 

Sustainable Sites 6 14 

Water Efficiency 1 5 

Energy and atmosphere 10 17 

Materials and Resources 4 13 

Indoor Environmental Quality 9 15 

Innovation and design 3 5 

33 69 

Sustainable Sites 7 14 

Water Efficiency 2 5 

Energy and atmosphere 6 17 

Materials and Resources 6 13 

Indoor Environmental Quality 9 15 

Innovation and design 5 5 

35 69 

Sustainable Sites 8 14 

Water Efficiency 4 5 

Energy and atmosphere 6 17 

Materials and Resources 6 13 

Indoor Environmental Quality 11 15 

Innovation and design 5 5 

40 69 

Sustainable Sites 6 14 

Water Efficiency 3 5 

Energy and atmosphere 13 17 

Materials and Resources 6 13 

Indoor Environmental Quality 9 15 

Innovation and design 5 5 

42 69 

Green factS 

31% recycled content in materials 

47% energy performance 

improvement over baseline 

79% occupied spaces have 

a daylight factor of 2% 

Green factS 

90%	 site area is undisturbed 


or restored
 

94	 kilowatts produced by 

solar roof 

100% biomass electricity fuel mix 

Green factS 

39% water savings from low-flow 

fixtures, dual-flush toilets, 

and waterless urinals 

59% wood from Forest Stewardship 

Council (FSC) sustainably 

managed forests 

100% green power purchase for 

more than two years 

Green factS 

100% rainwater harvesting to 

reduce potable water use 

100% furniture is indoor air quality 

certified by greenguard 

66% energy performance 

improvement over baseline 

206 
 

howard m. metzenBaum 

u.S. courthouSe 

ClEvEland, oH 

lEEd nC rated: apr19 2006 

certified 

center for 

immiGration ServiceS 

lInColn, nE 

lEEd nC rated: Jun 9 2006 

Silver 

one 

Potomac yard, ePa 

aRlIngton, va 

lEEd nC rated: Jun19 2006 

Gold 

two 

Potomac yard, ePa 

aRlIngton, va 

lEEd nC rated: Jun19 2006 

Gold 

Sustainable Sites 6 14 Sustainable Sites 5 14 Sustainable Sites 10 14 Sustainable Sites 11 14 

Water Efficiency 4 5 Water Efficiency 3 5 Water Efficiency 4 5 Water Efficiency 4 5 

Energy and atmosphere 3 17 Energy and atmosphere 3 17 Energy and atmosphere 7 17 Energy and atmosphere 5 17 

Materials and Resources 6 13 Materials and Resources 7 13 Materials and Resources 6 13 Materials and Resources 6 13 

Indoor Environmental Quality 715 Indoor Environmental Quality 11 15 Indoor Environmental Quality 11 15 Indoor Environmental Quality 11 15 

Innovation and design 3 5 Innovation and design 4 5 Innovation and design 5 5 Innovation and design 5 5 

 29 69 

Green factS 

32% water use reduction 

95% reuse of historic building shell 

 greenhousekeeping 

procedures employed 

 33 

Green factS 

 24%water use reduction 

 21%materials are from 

 within 500 miles 

100% energy is supplied 

 bygreen power 

69 43 69 

Green factS 

72% construction waste diverted 

83% certified wood used 

throughout building 

50% power supplied by green power 

 42 

Green factS 

90% regularly occupied spaces 

 haveviews outdoors 

63% materials are from within 

 500miles of site 

 4mass transit stations nearby 

69 

207 sustainability matters 
 

Byron G. roGerS 

u.S. courthouSe 

dEnvER, Co 

lEEd EB rated: Sep21 2006 

Gold	 

wayne l. morSe 

u.S. courthouSe 

EugEnE, oR 

lEEd nC rated: nov10 2006 

Gold 

John J. duncan 	 

federal BuildinG 

KnoxvIllE, tn 

lEEd EB rated: Jan4 2007 

certified 

ePa reGion 8 

headquarterS 

dEnvER, Co 

lEEd nC rated: 

Gold 

Sep 17 2007 

Sustainable Sites 11 16 Sustainable Sites 8 14 Sustainable Sites 6 14 Sustainable Sites 9 14 

Water Efficiency 2 5 Water Efficiency 3 5 Water Efficiency 2 5 Water Efficiency 4 5 

Energy and atmosphere 15 22 Energy and atmosphere 8 17 Energy and atmosphere 15 23 Energy and atmosphere 9 17 

Materials and Resources 2 10 Materials and Resources 6 13 Materials and Resources 3 16 Materials and Resources 7 13 

Indoor Environmental Quality 10 18 Indoor Environmental Quality 9 15 Indoor Environmental Quality 5 22 Indoor Environmental Quality 6 15 

Innovation and design 4 5 Innovation and design 5 5 Innovation and design 3 5 Innovation and design 5 5 

 44 76 39 69 34 85 40 69 

Green factS Green factS Green factS Green factS 

100% building is powered by wind 43% water use reduction from 95%Energy Star score 40%water use reduction 

low-flow fixtures and 51%materials used on the project 50%water use reduction 100% energy is supplied waterless urinals haverecycled content bygreen power 100% occupancy rate after 30% energy performance 50%water savings for 
 renovations 1st	 planted roof in improvement over baseline exterior plantings
 downtown denver 

90% construction waste diverted 

 fromlandfills 

GSA LEED buiLDinGS 

208 
 

Social Security adminiStration noaa Satellite u.S. dePartment veteranS affairS 

teleService center oPerationS facility of aGriculture reGional office 

auBuRn, Wa SuItland, Md ManHattan, KS REno, nv 

lEEd nC rated: oct22 2007 lEEd nC rated: oct26 2007 lEEd nC rated: Jan2 2008 lEEd nC rated: Feb 7 2008 

Silver Gold Silver Silver 

Sustainable Sites 4 14 Sustainable Sites 10 14 Sustainable Sites 5 14 Sustainable Sites 6 14 

Water Efficiency 3 5 Water Efficiency 3 5 Water Efficiency 4 5 Water Efficiency 3 5 

Energy and atmosphere 9 17 Energy and atmosphere 6 17 Energy and atmosphere 2 17 Energy and atmosphere 9 17 

Materials and Resources 6 13 Materials and Resources 5 13 Materials and Resources 4 13 Materials and Resources 4 13 

Indoor Environmental Quality 10 15 Indoor Environmental Quality 11 15 Indoor Environmental Quality 13 15 Indoor Environmental Quality 10 15 

Innovation and design 4 5 Innovation and design 5 5 Innovation and design 5 5 Innovation and design 3 5 

 36 69 40 69 33 69 35 69 

Green factS Green factS Green factS Green factS 

42% water use reduction 84%site area restored with 30%recycled content value 79%exterior water use reduction 

16% recycled content value native and adaptive plants ofthetotal materials 30%materials were 

 ofthetotal materials 99.9% non-equipment roof 100% white reflective roof manufactured locally 

77% reuse of existing shell areaplanted 90%spaces with views to 43%interior water use reduction 

100% landscape is not irrigated theoutside 

209 sustainability matters 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

PhotoGraPhS 

CouRtESY oF tHE advanCEd BuIldIng CouRtESY gSa REgIon 6 MaxWEll MaCKEnzIE 

SYStEMS IntEgRatIon CounCIl Page 40 Pages 117 (lower), 144 

Page 131 (graphic) 

CouRtESY gSa REgIon 8 StEvE MoRREll, CouRtESY gSa REgIon 4 

Ron Blunt PHotogRaPHY Pages 66, 69, 71 (upper), 171 Pages 108 (lower), 174, 177, 178, 179 

CouRtESY oF RtKl aSSoCIatES, InC. 

Page 184 CouRtESY gSa REgIon 9 CouRtESY oF nREl 

Page 112 Page 85 

CouRtESY oF BnIM 

Page 189 CouRtESY gSa REgIon 10 FRanK ooMS 

Pages 106, 111, 197 Cover (front/right), pages 74, 115 (lower), 

© aSSaSSI CouRtESY oF BnIM 118, 127, 132, 135, 136, 137, 138, 139, 

Pages 52, 61, 169, 173, 190 (both) PoStER PHoto Cover (back) 

Page 189 CouRtESY oF gREEnIng aMERICa 

Page 181 CouRtESY QuIEt REvolutIon 

CouRtESY oF CooK+Fox aRCHItECtS WInd tuRBInE 

Page 191 tIM gRIFFItH Page 92 (lower) 

Pages 24, 25 (both), 26, 27, 29, 33 

© dBox FoR CooK+Fox aRCHItECtS KEvIn g. REEvES CouRtESY oF 

Pages 192 (graphic), 193 (graphic) Roland HalBE FotogRaFIE WEStlaKE REEd lESKoSKY 

Pages 20, 28, 30, 31 (both), 59 (lower), Pages 46, 49 (both), 51, 142, 150 

lanCE davIS 114, 117 (upper), 140, 186 

Pages 23, 59 (upper), 62, 65, 107 (upper), KEvIn RoBInSon 

113, 159, 160, 161, 182 (graphic) CouRtESY oF H3 HaRdY CollaBoRatIon Page 39 (both) 

aRCHItECtuRE llC 

CouRtESY SHan dWYER Page 84 (graphic) © 2007 RtKl.CoM/davId WHItCoMB 

Page 88 (right) Pages 64, 90, 103, 165 

donald HoRn 

CouRtESY oF dPK&a aRCHItECtS, llP Pages 70, 71 (lower), 72 (both), 102, 104, CouRtESY oF RoBERt SIEgEl aRCHItECtS 

Page 45 (graphic) 107 (lower), 128 Page 194 

taMMY EatougH EduaRd HuEBER CouRtESY oF SMItH+gIll aRCHItECtS 

Page 43 Pages 58, 130 Page 198 

CouRtESY oF tHE gSa oFFICE tIMotHY HuRSlEY: CouRtESY oF JulIE SnoW aRCHItECtS 

oF CHIEF aRCHItECt Cover (front/left), pages 8, 34, 41, 100, 129 Page 196 

Pages 2, 15, 91 

SEda Inal SolaR dECatHlon / JIM tEtRo 

CouRtESY gSa REgIon 1 Page 122 Pages 87 (both), 92 (upper) 

Page 86 (upper) 

alan KaRCHMER CouRtESY oF Sun EdISon 

CouRtESY gSa REgIon 3 Pages 44, 158 Page 86 (lower) 

Page 166, 168 

KESSlER © JIM tEtRo PHotogRaPHY 2007 

CouRtESY gSa REgIon 4 Pages 115 (upper), 148, 152, 154, 155, 164 CouRtESY oF CRESCEnt RESouRCES, llC 

Pages 81, 82, 156, 163 Pages 145, 146 

ERIC KIElEY PHotogRaPHY 2007 

CouRtESY gSa REgIon 5 CouRtESY oF CRESCEnt RESouRCES, llC CouRtESY oF WEStlaKE REEd lESKoSKY 

Pages 88 (left), 94, 97 (both), 99 Pages 54, 62 (lower), 108 (upper) Pages 50 (both) 

210 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

AcknowLEDGEmEntS 

the projects included in this book and those responsible for 

them inspired gSa to compile and create this resource for others. 

We gratefully acknowledge the foresight and perseverance of each 

project manager and team member. 

Specifically, we want to thank our leaders and associates who have 

shared their vision, passion and knowledge in the development of 

Sustainability Matters. 

david l. Bibb, deputy administrator, Senior Environmental official 

david l. Winstead, Commissioner, Public Buildings Service 

anthony E. Costa, deputy Commissioner, Public Buildings Service 

Sam Hunter, assistant Commissioner, office of applied Science 

Kevin Kampschroer, director, Expert Services division 

don Horn, director, Sustainable design Program 

lance davis, Sustainable design Expert 

ann Kosmal, Sustainable design Expert 

Mark Ewing, director, Energy Program 

Jim Carelock, Energy Program 

Kevin Kelly, director, Workplace Program 

Kevin Powell, Research director 

dave Marciniak, Health and Safety Manager 

debra Yap, director, Regulatory Study and advocacy 

Matthew Watt, Program analyst 

We especially thank our consultants for their expertise and insight 

in editing, designing, and formatting the book. 

Penny Bonda 


Cox & associates, Inc.
 

Cory Williamson
 

211 sustainability matters 
212

 

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Sustainability Matters was printed by S&S graphics, Inc., using soy-based inks. 
 213 sustainability matters

 

 

 

 

 

 

u.S. General Services administration 

Public Buildings Service 

office of applied Science 

1800 F Street, nW 

Washington, dC 20405 

For more information: www.gsa.gov 
U.S. General Services Administration