GSA Public Buildings Service

WHITE PAPER

1

Green building

performance

A Post occupancy evaluation of 22 Gsa buildings
Table of Contents

Introduction.............................................................................................1

Research Overview ................................................................................ 2

Research Context................................................................................... 3

GSA Study Buildings.............................................................................. 4

Finding 1: Fully Integrated Design Delivers High Performance............12

Finding 2: GSA’s Green Buildings Cost Less to Operate...................... 13

Finding 3: Sustainable Design Supports Occupant Satisfaction .........15

Finding 4: Green Buildings Help GSA Meet Federal Mandates.............17

The Office of the PBS Chief Greening Officer drives the implementation of sustainability 

practices and customer facing solutions to enhance the environmental performance of GSA’s 

real estate portfolio and provide healthy and productive workspaces. The Office also leads GSA’s 

Green Proving Ground, a program that aims to accelerate sustainable real estate through testing, 

evaluation, and adoption of “proven” innovative technologies and practices.

. 

Produced by GSA Public Buildings Service

AUGUST 2011 

 
introduction

Sustainable Design Delivers

Do “green” buildings deliver the performance they promise? To answer this question, the 

General Services Administration (GSA) selected 22 representative green buildings from 

its national portfolio, including 12 buildings whose performance was assessed initially 

in 20071

. The evaluation was comprehensive, measuring environmental performance, 

financial metrics, and occupant satisfaction. Results were compared to both industry 

and GSA baselines. All buildings in the study incorporated sustainable design practices. 

Sixteen were LEED-NC certified or registered, representing more than one-third of the 

LEED buildings in GSA’s inventory at the time of the study. The remaining six buildings 

implemented a suite of sustainability strategies to enhance building performance.

The results of the study confirmed that, on average, GSA’s sustainably designed 

buildings use less energy and water, emit less CO2, cost less to maintain, and have 

occupants who are more satisfied than those working in typical buildings. In short, the 

GSA’s 12-year commitment to green building practices is paying off.

“Greening federal 

buildings makes good 

business sense: GSA’s 

sustainably designed 

buildings deliver 

through reductions 

in energy and water 

consumption, decreased 

CO2 emissions, higher 

tenant satisfaction and 

lower operating costs.”

Robert a. peck

Commissioner, GSA Public Buildings Service

GSA Public Buildings Service: Green Building Performance 1

photo: Nic Lehoux
GSA Public Buildings Service: Green Building Performance 2

Research Overview

Motivations and Methods

For more than a decade, the Federal Government has committed itself to 

demonstrating that sustainably designed commercial buildings save energy, cost 

less to operate, have smaller carbon footprints, and more satisfied occupants. This 

commitment is reflected in executive orders and congressional legislation. GSA, which 

provides real estate for more than one million federal employees, has adopted policies 

to realize this commitment to sustainability. The intention of this study was to evaluate 

the effectiveness of those policies. 

The study was conducted in two phases.The first phase, completed in 2008, developed 

a repeatable, cost-effective, post occupancy evaluation (POE) methodology and 

piloted that methodology across a representative sample of 12 sustainably designed 

buildings in GSA’s portfolio. The study’s second phase re-examined the first set of 

buildings to verify that measured results persisted. When ten additional buildings 

were added to the sample, results obtained from the second set were consistent 

with results obtained from the first. In all cases, “whole building performance” was 

evaluated—energy and water use, carbon emissions, operations and maintenance, 

waste generation and recycling, and occupant satisfaction.

Because all buildings constructed by GSA for the past decade have incorporated 

sustainable design, key performance indicators were judged against comparable, 

industry-accepted benchmarks that measured performance of the broader building 

stock constructed during the same period. Data summarized in this study were 

provided in mid to late 2009 and are primarily for calendar year 2008. Evaluated in this 

way, green buildings outperformed national averages in all measured performance 

areas. Comparisons were based on the following sources of data:

key findings:

Compared to national averages, 

buildings in this study have:

Less energy use 

(66 kBtu/sf/yr vs. 88 kBtu/sf/yr)

25%

19%

Lower aggregate operational costs 

($1.60/sf vs. $1.98/sf8)

27%

Higher occupant satisfaction

36%

Fewer CO2 emissions

Measurement Data Source2

EUI CBECS National Survey of Commercial Buildings 

constructed between 1990 and 20033

Energy Cost BOMA4 2008 All Sector Total Building Rentable Area – 

Utility (less water)

CO2 ENERGY STAR baseline5, late 2009/early 2010

Maintenance Costs IFMA6 facilities less than 5 years old and BOMA4 2008 All 

Sector Total Buildings Rentable Area - Roads/Grounds

Water Use IFMA6 50th Percentile, 2009

Occupant Satisfaction Center for the Built Environment, UC Berkeley, 20097
GSA Public Buildings Service: Green Building Performance 3

Research context

“By looking critically at 

real world performance, 

this report demonstrates 

that GSA, in support of 

its zero environmental 

footprint vision, delivers 

high performance, 

sustainable workplaces.”

martha johnson

GSA Administrator

A Comprehensive Evaluation

GSA commissioned the Pacific Northwest National Laboratory (PNNL) to evaluate 22 

of GSA’s sustainably designed buildings. It wanted to know whether its green buildings 

were delivering the performance they promised. 

Because of GSA’s commitment to real-world results, the study evaluated actual, not 

modeled, building performance. Successes and shortcomings were identified, along with 

areas requiring further research. The 22 buildings selected reflect different US regional 

climates, a mix of uses (courthouses and offices), and a mix of build-to-suit leases and 

federally owned buildings. Sixteen of these buildings were designed to meet or exceed 

basic LEED certification. The other six were designed to meet the requirements of other 

programs, including ENERGY STAR and the California Title 24 Energy Standard. 

The research team used a consistent evaluation process for every building studied:

• Obtaining and reviewing one year of operating data

• Surveying building occupants

• Interviewing the building manager

• Conducting an expert walkthrough 

To understand how GSA’s green buildings measured up to commonly accepted national 

benchmarks, the team compared each performance metric with the national average 

for US commercial buildings. The latest available benchmark data come from widely 

accepted industry and government standards.9

The US Green Building Council’s (USGBC) Leadership in Energy and 

Environmental Design (LEED) Rating System is a nationally accepted third party 

certification program for green building design, construction, and operation. LEED

promotes a whole-building approach to sustainability by recognizing performance 

in five key areas: sustainable site development, water savings, energy efficiency, 

materials selection, and indoor environmental quality. 

LEED provides four measures of performance: basic certification, Silver, Gold, and 

Platinum, based on a set of prerequisites and credits in the five major categories 

listed above. Each measure represents an incremental step toward integrating the 

different components of sustainable design, construction, and operation to achieve 

optimal performance. 

For more information on the LEED Rating System: www.usgbc.org

About the LEED Green Building Rating System
GSA Public Buildings Service: Green Building Performance 4

GSA Study Buildings

Figure 1: A Representative Sampling 

To achieve a representative sampling, GSA chose 22 buildings from 7 of its 11 national regions. 

Northwest/Arctic 

 1 Seattle CT

 2 Auburn FB

 3 Eugene CT

Pacific

 4 San Francisco FB

 5 Fresno CT & FB

 6 Santa Ana FB

 7 Las Vegas CT

Rocky Mountain

 8 Ogden FB

 9 Lakewood FB

10 Denver CT

11 Denver FB

Heartland

12 Omaha DHS FB

13 Omaha NPS FB

14 Davenport CT

15 Cape Girardeau CT

Great Lakes

16 Cleveland CT

17 Youngstown CT & FB

Southeast

18 Knoxville FB

19 Greenville CT

20 Jacksonville FB

National Capital

21 Suitland FB

22 Rockville FB
GSA Public Buildings Service: Green Building Performance 5

GSA STUDY BUILDINGS

Figure 2: Performance Metrics

On average the 22 sustainably designed buildings in the study outperformed US commercial buildings.

Energy Use Intensity 100

80

60

40

20

0

 Auburn FB

 Jacksonville FB

 

 

San Francisco FB

 

 Eugene CT

 

 

Knoxville FB

 Greenville CT

 Fresno CT & FB

 Omaha DHS FB

 

 

Santa Ana FB

 

 Las Vegas CT

 Davenport CT

 

 Lakewood FB

 

 

Omaha NPS FB

 Rockville FB

 

 

Seattle CT

 

 

Suitland FB

 

 

 Denver FB

 Cape Girardeau CT

 Youngstown CT & FB

 

 

 Ogden FB

 

 

Denver CT

 

Cleveland CT

National 

(kBTU/gsf/yr, compared to CBECS Office National Average 1990 - 2003) Average 88

 Santa Ana FB

 San Francisco FB

 Fresno CT & FB

 Auburn FB

 Eugene CT

 Seattle CT

 Greenville CT

 Jacksonville FB

 Knoxville FB

Ogden FB

 

 Suitland FB

 Las Vegas CT

 

Davenport CT

Cleveland CT

Rockville FB

Omaha NPS FB

Youngstown CT & FB

 Denver CT

Lakewood FB

 

 Denver FB

Cape Girardeau CT

Omaha DHS FB

National 

Average 0.15

0.16

0.12

0.08

0.04

0.00

CO2 Emissions

(metric ton per GSF, compared to ENERGY STAR, late 2009/early 2010)

 

Cleveland CT

 Cape Girardeau CT

 

 

Omaha NPS FB

 Davenport CT

 

 

 Eugene CT

 

 

Seattle CT

 Santa Ana FB

 Youngstown CT & FB

 Greenville CT

 San Francisco FB

 

 

Rockville FB

 

Jacksonville FB

 Knoxville FB

 Denver FB 

 Denver CT

 Lakewood FB

 Fresno CT & FB

 Las Vegas CT

 Suitland FB

 Omaha DHS FB

 

 

 Ogden FB

 Auburn FB

National 

Average 15

40

30

20

10

0

Water Use

(gal/gsf, compared to IFMA 50th Percentile, 2009)

n/a
GSA Public Buildings Service: Green Building Performance 6

GSA STUDY BUILDINGS

Figure 2 (continued): Performance Metrics

On average the 22 sustainably designed buildings in the study outperformed US commercial buildings.

Energy Costs

(per RSF, compared to BOMA baseline, 2008)

National 

Average

$2.53

 Auburn FB

 San Francisco FB

 

 

 Denver FB

 

 Eugene CT

 

 

Santa Ana FB

 

 

Suitland FB

 

 

Knoxville FB

 Greenville CT

 

 Fresno CT & FB

 

 

 Seattle CT

 Lakewood FB

 

 

Ogden FB

 Jacksonville FB

 

 

 Omaha NPS FB

 Davenport CT

 Rockville FB

 

 Las Vegas CT

 Omaha DHS FB

 

 

 Denver CT

 

 

 Cleveland CT

 Cape Girardeau CT

 

Youngstown CT & FB

100

80

60

40

20

0

Energy Star Score10

(rating, compared to ENERGY STAR Baseline 50%, late 2009/early 2010)

Occupant Satisfaction

(% Satisfaction, compared to CBE, 2009 )

National 

Average 

50

 Auburn FB

 Eugene CT 

 Cape Girardeau CT

 Davenport CT

 

 Omaha NPS FB

 Seattle CT

 Omaha DHS FB

 Greenville CT

 

Jacksonville FB

 Ogden FB

 Denver FB

 Knoxville FB

 Lakewood FB

 San Francisco FB

 Las Vegas CT

 Fresno CT & FB

 

 Youngstown CT & FB

 

Denver CT

 Cleveland CT

 Santa Ana FB

 

Rockville FB

 Suitland FB

$3.50

$3.00

$2.50

$2.00

$1.50

$1.00

$0.50

$0.00

 Omaha DHS FB 

 Greenville CT

 Fresno CT & FB

 

 Cape Girardeau CT

 Cleveland CT

 Knoxville FB

 Davenport CT

 Lakewood FB

 Omaha NPS FB

Rockville FB

Las Vegas CT

Denver CT

Santa Ana FB

Denver FB

Ogden FB

Youngstown CT & FB

Seattle CT

Auburn FB

 Eugene CT

Jacksonville FB

Suitland FB

 San Francisco FB

National 

Average 50%

100

80

60

40

20

0
GSA Public Buildings Service: Green Building Performance 7

GSA STUDY BUILDINGS: FAST FACTS

Converted from a warehouse to office space in 2006, this adaptive 

reuse project earned a LEED Silver rating. Sustainable design 

features include an underfloor air distribution system, use of 

low-emitting materials, and increased ventilation. 

This courthouse is one of the first LEED buildings in Southeastern 

Missouri. The facility features advanced building HVAC and 

lighting controls, irrigation rain sensors, and low-flow fixtures. 

Carbon dioxide sensors and low-emitting materials contribute to 

improved indoor environmental quality.

The Metzenbaum Courthouse is on the National Register of 

Historic Places. The renovations preserved 96% of the existing 

shell and a majority of the interior non-structural elements. 

The courthouse won GSA’s Environmental Award for recycling 

because of its seven-material collection system and green 

housekeeping practices.

The Davenport Courthouse is on the National Register of Historic 

Places. The renovation maintained the integrity of the historic 

space, while updating the mechanical systems in the building. 

The courtrooms incorporate techniques to maximize daylight. 

The HVAC system consists of water-cooled chillers, boilers, and 

air-handling units with variable speed drives.

The Arraj Courthouse was designed as a green courthouse prior 

to the completion of the LEED rating system. It has since earned 

Silver certification under LEED for Existing Buildings. The Arraj 

Courthouse employs a hybrid underfloor air distribution system, 

extensive HVAC and lighting sensors, as well as photovoltaic 

panels.

The EPA Region 8 Headquarters building, located in a redeveloped 

area of downtown Denver, earned LEED Gold certification. The 

building is designed to maximize daylight and has an underfloor air 

distribution system, a vegetated roof, and photovoltaic panels.

Auburn

Built: 1944

Renovated: 2006

sq. ft: 205,354

occupants: 675

Energy Star: 96

LEED-Silver

Cape Girardeau

Built: 2008

sq. ft: 173,392

occupants: 45

Energy Star: 64

LEED-silver

Cleveland

Built: 1910

Renovated: 2005

sq. ft: 251,314

occupants: 105

Energy Star: 69

LEED-Certified

Davenport 

Built: 1933

Renovated: 2005

sq. ft: 79,872

occupants: 45

Energy Star: 80

Denver CT

Built: 2002

sq. ft: 327,103

occupants: 170

Energy Star: 70

LEED-silver

Denver FB

Built: 2006

sq. ft: 301,292

occupants: 922

Energy Star: 94

LEED-gold
GSA Public Buildings Service: Green Building Performance 8

GSA STUDY BUILDINGS: FAST FACTS

The Morse Courthouse was the first LEED Gold Courthouse in 

the US. Sustainable design features include an underfloor air 

distribution system, daylight sensors, and low-flow fixtures. 

Indoor Environmental Quality (IEQ) is improved through the use of 

low-emitting materials.

The Coyle Courthouse and Federal Building houses 14 courtrooms 

and is the tallest building in the city (11 floors). Designed under 

California’s Title 24 Energy Standard, the building includes highefficiency lighting, an underfloor air distribution system, water-cooled 

chillers, and natural gas boilers.

Energy-efficiency features in the Quillen Courthouse include a wellinsulated white roof and an Energy Management Control System that 

integrates lighting and occupancy sensors. It also scores the highest 

occupant satisfaction rating for air quality, acoustics, and lighting of 

any building in this study.

Renovations to this federal building improved operations and 

occupant satisfaction. The building earned an Energy Star rating 

in 2007 and incorporates high-efficiency lighting and recycled 

materials in the interior.

Located in downtown Knoxville, the Duncan Federal Building 

incorporates high-efficiency lighting, enhanced metering 

techniques, and low-flow fixtures. The cool roof reduces the heat 

island effect and supports photovoltaic panels.

The LEED Silver facility at Lakewood features daylight and 

exterior views in 91% of its regularly occupied spaces. In addition, 

all building occupants receive a booklet about the design and 

operations of the building enhancing tenant engagement

Eugene 

Built: 2006

sq. ft: 270,322

occupants: 120

Energy Star: 92

LEED-gold

Fresno

Built: 2005

sq. ft: 495,914

occupants: 235

Energy Star: 87

Greenville

Built: 2001

sq. ft: 160,975

occupants: 85

Energy Star: 90

Jacksonville

Built: 1967

renovated: 2004

sq. ft: 338,008

occupants: 1,000

Energy Star: 82

Knoxville 

Built: 1986

renovated: 2005

sq. ft: 172,684

occupants: 285

Energy Star: 90

LEED-Certified

LakEwood 

Built: 2004

sq. ft: 128,342

occupants: 318

Energy Star: 84

LEED-silver
GSA Public Buildings Service: Green Building Performance 9

GSA STUDY BUILDINGS: FAST FACTS

The George Courthouse creates a federal presence in downtown 

Las Vegas, with a large column supporting the sun-screen entry 

canopy. The courthouse received an Energy Star Label in 2007 and 

includes high-efficiency lighting and HVAC systems.

Renovations transformed the historic Scowcroft Building into 

office space that meets the IRS’s specific needs. The space 

incorporates earthquake upgrades, improved roof insulation, 

radiant baseboard heating, and an underfloor air distribution 

system coupled with indirect/direct evaporative cooling.

This federal building won the 2007 American Council of 

Engineering Award for its design. It is a LEED Gold building that 

incorporates daylight- and rainwater-harvesting systems and a 

ground-source heat pump system.

The Curtis National Park Service building was built on a 

brownfield as part of an urban redevelopment effort. The building 

showcases passive solar design, daylight harvesting, and HVAC

sensors, as well as underfloor air distribution. Use of native and 

adaptive vegetation eliminated the need for irrigation. Operations 

include green housekeeping practices.

This leased building incorporates many sustainable design 

features, including a reflective white roof, low-water landscaping, 

and use of renewable materials in both interior finishes and 

furniture.

Located in the South of Market district, the building was 

constructed on a brownfield as part of the city’s urban 

revitalization. Unique features include natural ventilation in tower 

offices, an underfloor air distribution system, and extensive 

daylighting.

Las Vegas 

Built: 2000

sq. ft: 495,877

occupants: 321

Energy Star: 77

Ogden 

Built: 1900

renovated: 2001

sq. ft: 105,000

occupants: 514

Energy Star: 83

LEED-silver

Omaha DHS

Built: 2005

sq. ft: 86,000

occupants: 65

Energy Star: 74

LEED-gold

Omaha NPS

Built: 2004

sq. ft: 68,000 

occupants: 125

Energy Star: 82

LEED-gold

Rockville

Built: 2004

sq. ft: 232,000

occupants: 720

Energy Star: 80

San Francisco 

Built: 2007

sq. ft: 652,433

occupants: 1,314

Energy Star: 96

LEED-silver
GSA Public Buildings Service: Green Building Performance 10

GSA STUDY BUILDINGS: FAST FACTS

Renovated in 2005, the Santa Ana Federal Building lies in the 

heart of the civic center district and accommodates a large flow 

of visitors to the building each day. This building features highefficiency lighting and HVAC systems, a new roof, energy-efficient 

elevators, and lighting sensors.

Located in downtown Seattle, this courthouse features radiant 

floor heating, a well-utilized Energy Management Control System 

(EMCS), waterless urinals, and photovoltaic panels. The lighting 

controls operate both on occupancy and time-of-day routines.

The curved shape of the Census Bureau Headquarters building 

takes advantage of natural daylight. Other features include an 

underfloor air distribution system, vegetative roofs, and bioswales.

The Jones Federal Building and Courthouse facility was built on a 

brownfield as part of the city’s urban revitalization. The building 

provides daylight to over 75% of occupied spaces. Sustainable 

design features include an advanced storm water management 

system, a white membrane roof, and light-colored pavement. This 

was GSA’s second LEED-Certified building.

Santa Ana

Built: 1975

renovated: 2005

sq. ft: 280,365

occupants: 409

Energy Star: 91

Seattle 

Built: 2004

sq. ft: 658,392

occupants: 500

Energy Star: 85

Suitland 

Built: 2006

sq. ft: 2,340,988

occupants: 5,360

Energy Star: 91

LEED-gold

Youngstown 

Built: 2002

sq. ft: 52,240

occupants: 45

Energy Star: 50

LEED-certified

National Building Facts

31%

projected increase in energy consumption 

by the year 2030 despite dramatic gains in 

energy efficiency.11

20%

of U.S. drinking water 

supply is consumed by 

commercial buildings.12

2 trillion

gallons of water a year would be saved if 

commercial buildings reduced their water 

consumption by 10%.13
GSA Public Buildings Service: Green Building Performance 11

Denver EPA 

Regional 8 

Headquarters

Sails direct and diffuse 

daylight from the skylight 

throughout the 9-story atrium

Low VOC materials and finishes 

enhance indoor air quality 

atrium design helps provide natural 

light in 85% of floor space

Machine-room-less elevator

systems save energy and space

13,500 square feet of 

bamboo paneling

(a rapidly renewable 

resource)
GSA Public Buildings Service: Green Building Performance 12

finding 1

Fully Integrated Design Delivers High Performance

GSA’s LEED Gold 

buildings have 27% 

lower energy use 

compared to the 

national average.

(62 kBTu/sf/yr vs. 88 kBtu/sf/yr)

Source of national average: CBECS

On average, buildings in this study surpassed national averages. This was particularly 

true of those with LEED Gold certification, which requires a fully integrated approach 

to sustainable design. LEED Gold’s emphasis on site development, water conservation, 

energy efficiency, materials selection, and indoor environmental quality yielded broad 

holistic performance benefits and in most cases served as a valuable performance 

indicator. However, it was not foolproof. Of the five LEED Gold buildings evaluated for 

this study, three performed far better than industry baselines in all categories. Of the 

two remaining buildings, one, the Department of Homeland Security in Omaha, Nebraska, 

bested industry baselines in all categories except water use, where its score was not 

only much higher than the national average but also much higher than when the building 

was previously assessed, indicating the possibility of unexpected uses, leaks, or even 

measurement errors. The other remaining LEED Gold building, the Census Bureau office 

complex in Suitland, Maryland, earned inferior scores in three out of eight categories. 

These departures from anticipated performance warrant further investigation.

LESSON LEARNED

Design intent does not always translate into real-world performance. In order to meet 

its executive and legislative mandates by delivering buildings that are truly sustainable, 

GSA must take into account the way its buildings perform on the ground, using all the 

methods and tools at its disposal. 

Figure 3: LEED Gold Buildings Are Top Performers % Less 

Than National Average % Better 

Than National Average

100%

75%

50%

25%

0%

-25%

-50%

-75%

-100%

Omaha DHS FB Omaha NPS FB Denver FB Eugene CT Suitland FB14

Energy Star 

Score

Water Use Utility Costs General 

Building 

Occupant

Satisfaction

Total CO2 

Equivalent

Emissions

Maintenance Energy Use Aggregate 

Operational

Costs
GSA Public Buildings Service: Green Building Performance 13

finding 2

GSA’s Green Buildings Cost Less to Operate

Operations and maintenance are what keep properties in working order, and 

costs associated with them can be significant. As a group, buildings in this study 

outperformed national averages for O&M by substantial margins. On the whole, 

operating costs were 19% lower than the national average for US commercial buildings. 

LEED Gold buildings were among the best performers from an O&M cost perspective. 

Lower water utilities, energy utilities, general maintenance, grounds maintenance, waste 

and recycling, and janitorial costs resulted in considerable savings. 

Most buildings studied also realized savings in aggregate maintenance costs. Middle 

third and top third were all well below the national average. The performance of the 

bottom third of buildings studied, on the other hand, was less impressive. These 

buildings had unusually high aggregate maintenance costs and were 25% above 

the national average for US commercial buildings. Four of the five buildings whose 

maintenance costs exceeded the baseline had higher general maintenance costs 

and two had higher energy costs. 

LESSON LEARNED

O&M costs are lowest when sustainability is integral to every aspect of a building. 

Building and systems efficiency alone isn’t enough. Upfront investments in sustainable 

measures need to be matched by sustainable O&M practices.

GSA’s sustainably 

designed green buildings 

have 19% lower operational costs compared to 

the national average.

Source of national average: BOMA

Figure 4: Aggregate Operational Costs: Performance of Study Buildings Compared to National Average

Source of National Average: BOMA

operational costs for

buildings in the top third 

are 43% lower than the 

national average. 

National Average

LEED GOLD

-34%

top third

-43%

middle THIRD

-20% 

bottom THIRD

4%

all GSA study 

buildings

-19%
GSA Public Buildings Service: Green Building Performance 14

Figure 5: Energy Cost: Performance of Study Buildings Compared to National Average

Source of National Average: BOMA

National Average

LEED GOLD

-35%

top third

-58%

middle THIRD

-36%

bottom THIRD

8%

all GSA study 

buildings

-28%

Figure 6: Aggregate Maintenance Cost: Performance of Study Buildings Compared to National Average

Source of National Average: GSA adapted industry baseline for General and Janitorial and BOMA for Grounds

National Average

LEED GOLD

-38%

top third

-47%

middle THIRD

-15%

bottom THIRD

 25%

all GSA study 

buildings

-12%
GSA Public Buildings Service: Green Building Performance 15

finding 3

Sustainable Design Supports Occupant Satisfaction

GSA’s sustainably 

designed green buildings 

demonstrate a 27% higher 

occupant satisfaction than 

the national average.

Source for national average: CBE, UC Berkeley15

A primary goal of sustainable design is to maximize occupant comfort and satisfaction, while minimizing environmental impact and costs. Comfort and satisfaction are 

important for many reasons, not least of which is that they correlate positively with 

personal and team performance. The greater the satisfaction, the higher the productivity and creativity of an organization. It has also been demonstrated that occupant 

satisfaction impacts staff retention. 

On average, the 22 buildings studied scored better in occupant satisfaction than the 

national average for US commercial buildings. With 76% higher occupant satisfaction, 

the top third of buildings scored significantly better than the national average. Despite 

the overall positive performance, however, the study found that occupant satisfaction 

was in some cases undermined by problems with lighting and acoustics. Lighting was 

the one area in which most of the buildings studied were no better than their non-green 

comparison set. While occupants in all buildings judged lighting to be “satisfactory,” the 

scores for three-fifths of those buildings were below the national average. Acoustics 

were also problematic, but the problems did not necessarily have to do with noise level 

per se. Rather, an analysis of the data revealed that occupants were more dissatisfied 

with sound privacy than with noise level. Occupants in open office spaces and cubicles 

reported the highest levels of dissatisfaction. 

LESSON LEARNED

Lighting and acoustic performance matter greatly, even to occupants who are 

otherwise satisfied with building and workplace quality. Both should be addressed by 

appropriate teaming and design criteria at the outset of every project. 

National Building Facts

79%

of employees surveyed were willing to forgo 

income to work for a firm with a credible 

sustainable strategy.16

80%

of employees surveyed said they felt greater 

motivation and loyalty toward their company due to 

its sustainability initiatives.17
GSA Public Buildings Service: Green Building Performance 16

OCCUPANT SATISFACTION SURVEY

Figure 7: Compared to National Average

Source of National Average: Center for the Built Environment, UC Berkeley

General Building Satisfaction

Top Third

Middle Third

Bottom Third

83%

51%

46%

Air Quality Satisfaction

Top Third

Middle Third

Bottom Third

86%

67%

50%

Cleanliness Satisfaction

Top Third

Middle Third

Bottom Third

91%

75%

49%

Thermal Satisfaction

Top Third

Middle Third

Bottom Third

86%

60%

32%

Acoustic Satisfaction

Top Third

Middle Third

Bottom Third

85%

64%

23%

Lighting Satisfaction

Top Third

Middle Third

Bottom Third

77%

47%

23%

National Average
GSA Public Buildings Service: Green Building Performance 17

finding 4

Green Buildings Help GSA Meet Federal Mandates

In October, 2009, President Barack Obama 

issued an executive order establishing an 

integrated strategy toward sustainability 

in the Federal Government and making 

reduction of green house gas emissions a 

priority for federal agencies. To meet this 

and other sustainability mandates, GSA

will need to ensure that an increasing 

percentage of existing buildings and all 

future construction and major renovation 

projects achieve a consistently high standard of performance. This study’s findings 

suggest that that process is already well 

underway.

LESSON LEARNED

The General Services Administration 

can build on this strong foundation. GSA

is and will continue to be an important 

benchmark for other public agencies and 

for companies and institutions as they plan 

and implement their building programs. 

Energy Use CO2 Emissions Water Use Maintenance

-10%

-20%

-30%

-40%

-50%

-60%

-70%

100%

90%

80%

70%

60%

50%

40%

30%

20%

10%

National 

Average

Occupant

Satisfaction

Aggregate Operational

Costs

Figure 8: GSA Buildings Compared to the National Average

Mandate

EO 13514 

EPAct 2005

Performance Requirement

Sets sustainability & GHG reduction goals for federal agencies

Modeled energy performance targets must be at least 30% 

better than ASHRAE 90.1-2004

For an agency’s portfolio:

• 3% per year metered energy use reduction 

• 30% metered energy use reduction by 2015 

(an average of 54.6 kBtu per sf per year for GSA)

• 16% metered water use reduction by 2015 

New GSA buildings and major renovations must reduce 

fossil-fuel-generated energy consumption by:

• 55% in 2010

• 100% in 2030

EO 13423

EISA 2007

 For additional information on EISA, EPAct 2005, and EO 13514 and 13423: 

www.wbdg.org/references/federal_mandates.php

Top 1/3 of studied buildings Middle 1/3 of studied buildings LEED Gold
GSA Public Buildings Service: Green Building Performance 18

GSA on the ground

Green Elements of the Denver EPA Regional 8 Headquarters

Built in 2006, the Denver EPA achieved LEED-Gold and demonstrates that integrated design is cost effective.

“Double-L” floor plan addresses solar and wind patterns. Green roof absorbs heat and CO2 and reduces stormwater runoff. 

Light shelf allows daylight to penetrate deep into building. Sails in the building atrium help alleviate glare and control heat.

Bike lockers encourage people to leave their cars behind. Forty-eight solar panels output 10kW at peak sun.
GSA Public Buildings Service: Green Building Performance 19

resources

LESSONS LEARNED FROM CASE STUDIES OF

SIX HIGH-PERFORMANCE BUILDINGS

National Renewable Energy Laboratory

2006

Analyzed the design, construction, and energy performance of 

six commercial buildings. All of the low-energy buildings used 

more energy than predicted, but those designed with a whole 

building approach and with the “strongest” energy goals had 

the best energy performance. Monitoring buildings to provide 

feedback improves their energy performance. 

THE COST OF GREEN REVISITED

Davis Langdon

2007

Found no significant difference in the average costs between 

green and other buildings. The study also found that the construction industry has embraced sustainable design in most US 

regions and no longer views sustainable design measures as an 

extra cost burden.

THE ENERGY CHALLENGE: A NEW AGENDA 

FOR CORPORATE REAL ESTATE

Rocky Mountain Institute / CoreNet

2007

Buildings use two-fifths of the world’s materials and energy and 

one-sixth of its fresh water. In the US, buildings make up 85% 

of all fixed US capital assets. In short, buildings are part of the 

problem and part of the solution. The Energy Challenge identifies 

barriers, documents successes, and recommends actions to 

achieve greater energy efficiency in US corporate real estate. 

ENERGY PERFORMANCE OF LEED NC BUILDINGS

New Buildings Institute

2008

Compares design intent to energy performance in 121 LEEDrated buildings. Office buildings used 33% less energy and all 

buildings used 24% less energy than the CBECS average for US 

commercial buildings. Nearly half the buildings had an ENERGY 

STAR rating of at least 75; the average rating for all buildings 

was 68, with a quarter rated below 50. 

National Building Facts

43% of CO2 Emissions are from the Building Sector 

Approximately 43% of U.S. carbon dioxide (CO2) emissions result from the energy services required by 

residential, commercial, and industrial buildings. Transportation accounts for 32% and industry for 25%18.

43%

Buildings

32% 

Transport

25%

Industry

25%
GSA Public Buildings Service: Green Building Performance 20

glossary

BOMA

Building Owners and Managers Association International. This study used BOMA

research to obtain the national average for 

maintenance costs.

CBE

Center for the Built Environment. This 

study used CBE research as a basis for 

the occupant satisfaction surveys, as 

well as obtaining the national average for 

general building satisfaction, cleanliness, 

lighting, air quality, acoustic, and thermal 

satisfaction.

California title 24 

Energy Standard

A California-specific building standard 

that combines codes from three sources: 

standards from national model codes, 

adapted national model codes to meet 

California conditions, and new standards 

to address particular California concerns. 

CBECS

Commercial Buildings Energy Consumption 

Survey. The survey gathers and combines 

energy use and cost information for US 

commercial buildings. Green Building 

Performance used their research to obtain 

the national average for energy use.

CT

Courthouse

EMCS

Energy Management Control System

Energy Star

Energy Star is a rating to promote energy 

efficiency in products and buildings. This 

study used Energy Star research to obtain 

the national average for CO2 emissions. 

It is a joint program between the US 

Environmental Protection Agency and the 

US Department of Energy. 

EUI

Energy Use Intensity

FB

Federal Building

Federal Water Use Index

This study used the Department of 

Energy's research on federal buildings to 

obtain the national average for water use.

GHG

Green House Gas

GSF

Gross square feet. Refers to a building’s 

overall floor plate size, measuring from the 

outside of its exterior walls and including 

all vertical penetrations, such as walls and 

elevator shafts.

IEQ

Indoor Environmental Quality

IFMA

International Facility Management 

Association. This study used IFMA

research to obtain the national average for 

energy costs.

kBtu

1000 British thermal units, A BTU is the 

amount of heat energy needed to raise the 

temperature of one pound of water by 1o F.

RSF

Rentable square feet. Usable SF + a 

percentage of the common areas of the 

building.

National Building Facts

18%

of total US energy use 

consumption comes from 

commercial buildings.19

Why water efficiency?

Between 1950 and 2000, the US population nearly doubled. In that same period, however, 

public demand for water nearly tripled. Americans now use an average of 100 gallons of 

water per day—enough to fill 1,600 drinking glasses!20
GSA Public Buildings Service: Green Building Performance 21

notes

1 This white paper summarizes research 

presented in the following report: KM

Fowler, EM Rauch, JW Henderson, and 

AR Kora: Re-Assessing Green Building 

Performance: A Post Occupancy 

Evaluation of 22 GSA Buildings, PNNL19369, Pacific Northwest National 

Laboratory, Richland, WA, 2010. For 

the original study of 12 GSA green 

buildings, see KM Fowler and EM

Rauch: Assessing Green Building 

Performance: A Post-Occupancy 

Evaluation of 12 GSA Buildings, PNNL17393, Pacific Northwest National 

Laboratory, Richland, WA, 2008. 

www.gsa.gov/appliedresearch

2 See glossary above for abbreviations.

3 US Department of Energy. Commercial 

Buildings Energy Consumption Survey 

(CBECS), 2003. Energy Information 

Administration. Washington, DC. 

4 Building Owners and Managers 

Association (BOMA) International 

Experience Exchange Report. 2008. 

Special Studies 2005, Agency Managed, 

Downtown all sizes, US Government 

Sector. BOMA International, 

Washington, DC. 

5 ENERGY STAR Portfolio Manager. 

www.energystar.gov/index.

cfm?c=evaluate_performance.bus_

portfoliomanager

6 IFMA. 2009. Space and Project 

Management Benchmarks #32. IFMA. 

Houston, Texas.

7 Center for the Built Environment (CBE) 

Occupant Satisfaction Survey, 2009. 

UC Berkeley. 

8 Average percent better than baseline 

for Water, Energy, Maintenance, 

Janitorial, Grounds, Waste and 

Recycling costs per RSF as compared 

to BOMA industry baselines. 

9 Industry baselines developed from 

GSA building data, the US Department 

of Energy, U.S. Environmental 

Protection Agency, International 

Facility Management Association, 

Building Owners and Managers 

Association International, University 

of California Berkeley‘s Center for the 

Built Environment, and the Energy 

Information Administration.

10 Energy Star scores are annual. Since 

the initial analysis, Cleveland CT and 

Youngstown have both improved their 

energy performance.The Cleveland 

Courthouse Energy Star score is 75 

today, up from 69, and Youngstown is 

77, up from 50.

11 www.yourenergyfuture.org/

energyFacts.htm, (accessed 

23.04.2008).

12 www.energystar.gov/index.

cfm?c=business.bus_water, (accessed 

23.04.2008).

13 ibid.

14 Suitland earned LEED Gold 

certification in 2011, two years after 

this study was conducted. 

15 Center for the Built Environment (CBE) 

Occupant Satisfaction Survey, 2009. 

UC Berkeley.

16 Survey of 800 MBAs from 11 Top 

International Business Schools; Stanford 

Graduate School of Business, 2002 

GlobeScan International Survey, MORI.

17 ibid.

18 Pew Center on Global Climate 

Change, Towards a Climate-Friendly 

Built Environment, June 2005, www.

pewclimate.org/publications/report/

towards-climate-friendly-builtenvironment.

19 goliath.ecnext.com/coms2/

gi_0199-6408096/Section-2-Energyconsumption-by.html, (accessed 

01.05.08).

20 www.epa.gov/watersense/water/why.

htm, (accessed 23.04.08).

photo: Nic Lehoux
GSA Public Buildings Service: Green Building Performance 22

Acknowledgements

GSA

Patricia Cheng

Don Horn

Marianne Kaiser

Kevin Kampschroer

Kevin Powell

Eleni Reed

Other

Liz Exter, on assignment to GSA from Lawrence 

Berkeley National Laboratory (LBNL)

PNNL

Kim Fowler

Jordan Henderson

Angela Kora

Emily Rauch

Steve Shankle 

CBE

John Goins

Nicole Walter

TENFOLD

Bill Freais

Carolyn St. Jean

Andréa Silvestri

Site Contacts

Laura Anderson, Rockville FB

Paul Anderson, Davenport CT

Danielle Bogni, Las Vegas CT

Alex Bonaparte, Rockville FB

Jonathan Bringewatt, Lakewood FB

Jim Brown, Ogden FB

Gina Carter, Ogden FB

Steven Casey, San Francisco FB

Diana Ciryak, Cleveland CT

Chris Cockrill, Cape Girardeau CT, Manhattan FB

Pamela Coleman, Ogden FB

Scott Crews, Ogden FB

Mike Daniels, Rockville FB

Tim Essebaggers, Seattle CT

Dan Fenner, Sault Ste. Marie Port

John Garner, Omaha NPS FB and Omaha DHS FB

Christopher Grigsby, Denver CT

Angel Gonzalez, San Francisco FB

Richard Gordan, Auburn FB

Scott Hawkins, Greeneville CT and Knoxville FB

Sue Heeren, Davenport CT

Tina Hingorani, Santa Ana FB

Richard Hosey, Jacksonville FB

Jason Hunt, Fresno CT & FB

Nicholas Infantino, Youngstown CT & FB

Mary Ann Kosmicki, Omaha NPS FB and Omaha DHS FB

Kristina Lee, Omaha NPS FB

Chris Litsey, Auburn FB, Eugene CT, Seattle CT

Jill McCormick, Omaha DHS FB

Donald Murphy, Eugene CT

William Murphy, Auburn FB

Lorento Neequaye, Suitland FB

J. Michael Ortega, Denver CT

Peter Pocius, Sweetgrass Port

Sharon Schuler, Cape Girardeau CT

Wendy Schuman, Lakewood DOT FB

Warren Sitterley, San Francisco FB

Sandy Sitton, Fresno CT & FB

C. Johnathan Sitzlar, Greeneville CT and Knoxville FB

Amy Smith, Denver FB

Don Smyth, Omaha NPS FB

Mark Stanford, Sweetgrass Port

Joni Teter, Denver FB

Tim Trubey, Manhattan FB

Steven Underhill, Las Vegas CT

Christopher Wentzell, Sweetgrass Port

Stephen West, Scowcroft FB

Ryan Wilcoxen, Denver FB

Bruce Williams, Las Vegas CT

U.S. General Services Administration

Public Buildings Service

1800 F Street, NW

Washington, DC 20405

www.gsa.gov