United States Courthouse, Buffalo NY 

Architect: Kohn Pedersen Fox Associates 
What’s Important and When


Like Buying a Car 

The project development 

process can be like buying 

a car. 

First (in the Feasibility Study 

phase), you consider 

alternative modes of transportation, vehicle types, 

ownership options, and 

expenses. You may 

conclude that the best 

way to meet your family’s 

needs is with a small 

wagon that can tow a trailer. 

Next (in the PDS phase), you 

explore various makes and 

models, options packages, 

financing options, and 

dealers. You decide to lease 

a wagon from a specific 

dealer and waive the rustproofing option, but choose 

the manual transmission. 

The success of both phases 

depends on the preplanning phase, knowing 

your family’s future needs. 

Of course, GSA’s Feasibility 

Study and PDS approaches 

entail very different 

options and issues. But as 

the car analogy suggests, 

each has a fundamental 

influence on the final 

product’s affordability, 

reliability, and suitability for 

the task at hand. 

What’s Important and When


This section discusses the key categories for successful GSA project development and 

delivery. It highlights the comparative roles of facility management operations (the preplanning phase), the Feasibility Study, and the Program Development Study (PDS) 

in addressing each category. Refer to “Appendix C: Feasibility Study Checklist” and 

“Appendix D: PDS Checklist” for further comparisons. 

The Pre-Planning phase represents the day-to-day facilities management and client 

services that lay the groundwork for project development. Knowledge gained and 

working relationships developed during this stage play a key role in the ultimate success 

of the Feasibility Study and the PDS. 

The Feasibility Study evaluates the customer’s goals and needs, the facility’s requirements, and options to meet those needs, as well as their impact on GSA’s inventory and 

business goals. Alternative scenarios are developed, evaluated, and refined to select a 

recommended direction. Don’t be tempted to give the Feasibility Study less consideration than the PDS. The Feasibility Study process has the greatest impact on a project’s 

success because it defines the project’s basic parameters. It defines what the project will be. 

The Feasibility Study must identify and address all of the project’s fundamental issues. 

Delaying the consideration of any key issues until the PDS phase is far too late. Put 

plainly, once the Feasibility Study is complete, the project team has already committed 

to the “small wagon with the trailer” (see “Like Buying a Car” sidebar). The Feasibility 

Study focuses on the scope and basic parameters of the project. The PDS looks at 

the same topics, but at a more detailed level of analysis. 

The PDS begins with the recommendation of the Feasibility Study; determines 

whether it is still the best course of action; and then develops the detailed 

implementation strategy, cost estimates, and design directives. These studies support 

the Construction Prospectus. 

The comparison of the Pre-Planning, Feasibility Study, and PDS phases is organized 

into five categories; each has key comparison points: 

1. Customer Considerations 

2. Physical Plant and Structure 

3. Legacy Activities 

4. Project Implementation 

5. Capital Program Support 

23 
What’s Important and When 

Customer Considerations 

PBS’s approach to providing superior workplaces for federal workers must include 

a solid understanding of the customer’s needs. These include the customer’s 

strategic business goals, human capital issues, ability to respond to change, use of 

high-performance environments, and work processes and settings. Customer 

needs and project requirements must be addressed throughout the process, but the 

Feasibility Study and PDS address them differently. 

Customer Moves and Phasing 

The strategy for managing customer moves before, during, and after construction 

significantly impacts project cost, customer mission, and customer satisfaction. 

Alternatives examined during both the Feasibility Study and the PDS must 

consider these issues. Pay special attention to options that can execute projects 

efficiently in occupied space or constrained sites and minimize construction 

impact on operational activities. 

Pre-Planning 

•	 Lays groundwork to understand client needs and business cycles, as appropriate. 

Feasibility Study 

•	 Assesses alternative impacts on customer moves and phasing. 

•	 Includes phasing and swing space plans for renovations in occupied buildings 

that take into account customer business cycles. 

•	 Proposes the design and construction budget for the preferred alternative. 

The budget should reflect realistically the range of potential changes in project 

definition before construction begins (e.g., site acquisition and development, 

change in agency operation, cost increases). 

Program Development Study 

•	 Assesses micro-level alternatives, such as moves and planned buildouts 


within a building.


Housing Plans 

Housing plans, which identify customer space needs, are an important underpinning 

for the site/design and the construction funding requests, as well as the facility 

design process. GSA Project and Portfolio Managers rely on the housing plans in the 

Feasibility Study and the PDS to answer OMB and congressional questions and to 

Special Projects, 

Unique Processes 

Border stations and courthouses are considered 

“non-standard” new construction projects. GSA 

and its customer agencies 

have developed specific 

tools to determine the 

programming, scope, and 

cost of these facilities, 

based on projected 

business loads. 

These tools (e.g., traffic 

generation models, construction benchmarks, 

design standards) promote 

consistency nationwide 

and support the review by 

GSA’s outside stakeholders. 

These analysis tools and 

results are required for 

any capital project proposal 

involving the courts or 

border agencies. 

24 
OAs Demonstrate 

Customer Commitment 

As customer needs always 

outstrip the capital 

funds available in a given 

year, those projects 

that have customer commitments will have more 

favorable consideration 

for funding. 

What’s Important and When 

manage the project. The housing plan must meet the specific information requirements 

outlined in the applicable Planning Call for the project. 

Pre-Planning 

•	 Uses the Asset Business Team’s knowledge of current customer needs and 


concerns; conducts master plan and programming studies, as needed.


Feasibility Study 

•	 Creates housing plans for the considered alternatives, which support the 


alternatives’ analysis and Site/Design Prospectus. 


•	 Includes typical space layouts to ensure proper fit of the customer agency’s 

requirements, based on professional programming analysis. Provides square-foot 

information for Occupancy Agreements (OAs) and pricing plans. 

Program Development Study 

•	 Refines the housing plans to support the Construction Prospectus and the 

initiation of the design phase. 

Occupancy Agreements 

GSA requires that Occupancy Agreements (OAs) be prepared for projects included in 

the Capital Investment and Leasing Program (with the exception of border station 

projects and projects that do not have tenant-specific components). The OA must lay 

out the financial terms, conditions, and schedule under which a customer occupies 

GSA-managed space. It records the choices that GSA and the customer make during 

project development, shows the monthly rent bill that would result from those choices, 

and memorializes the customer’s commitment to the project. Please reference the 

applicable Planning Call for OA submission requirements. 

Pre-Planning 

•	 Maintains accurate occupancy and billing data in PBS systems to establish 

a true baseline. 

Feasibility Study 

•	 Creates a draft OA to demonstrate the customer agency’s support for the 


Site/Design Prospectus.


Program Development Study 

•	 Refines the occupancy schedule, terms, and costs associated with


customer buildouts. 


•	 Supports revisions to the final OA between GSA and the customer. 

25 
What’s Important and When 

Pricing Policy 

PBS’s pricing policy separately accounts for the costs of building shell, TI, and other 

amortized costs in rent (e.g., security, raised flooring). This process is modeled on the 

private sector’s approach to real estate development. The shell, TI, and security budgets 

are initially set in the Feasibility Study. These budgets are refined during the PDS and 

design process. A boundary between building shell (including security improvements) 

and tenant work constitutes an impermeable barrier, or “firewall,” across which funding 

cannot move. Shell and TI budgets are independent and may not be commingled. 

The best source for navigating this process during the Feasibility Study and PDS phases 

is the GSA Pricing Desk Guide. 

Pre-Planning 

•	 Maintains accurate occupancy and billing data in PBS systems to establish 

a true baseline. 

Feasibility Study 

•	 Establishes building shell, TI, and security budgets. 

•	 Defines a firewall between GSA’s budget responsibility (shell, including


security improvements) and the customer’s budget responsibility (TI). 


Program Development Study 

•	 Revalidates and refines the estimates for specific buildouts and systems 

that affect shell, TI, and security costs. However, the firewall set during the 

Feasibility Study should not change significantly. 

Physical Plant and Structure 

The requirements of a building’s physical plant and structure must be addressed 

during program development. Valid project proposals for repair and alteration (R&A) 

must be based on updated and comprehensive Building Evaluation Reports (BERs). 

Requirements for renovation and new construction projects must be defined to meet 

P-100 requirements. 

Building Systems and Envelopes 

Choices for building systems are considered throughout the project’s development. 

Balance in performance, alternative energy sources, high-efficiency systems, life-cycle 

costs, and initial investment are key areas of analysis. It is important to recognize the 

significance of integrated building systems design in the overall efficiency of the design. 

Pricing Guidance 

Pricing documents and 

project-specific guidance 

are available from the 

Office of Real Property 

Asset Management and 

the Office of the Chief 

Architect’s (OCA) Construction Excellence and 

Project Management 

Division (see “Appendix G”). 

26 
What’s Important and When 

GSA’s Facilities Standards 

for the Public Buildings 

Service (P-100) 

The P-100 lays out the 

performance standards for 

new construction and 

major renovation projects. 

Updated regularly, it is 

the principal source for the 

systems and structural 

standards that must be met 

in GSA buildings. 

Pre-Planning 

•	 Conducts BERs to evaluate building systems. 

Feasibility Study 

•	 Defines the project’s program goals and performance requirements,


which influence systems decisions. 


•	 Highlights special needs and alternative choices to meet those needs. 

Program Development Study 

•	 Makes general systems choices, based on performance and


program requirements.


Fire Protection Engineering and Life Safety 

It is the policy of GSA to provide a safe and healthful workplace for federal employees, 

contractors, and the visiting public; to protect federal real and personal property; 

to ensure continuity of the missions of occupant agencies; and to provide safeguards 

to allow emergency forces to accomplish their missions safely. To ensure that no aspect 

of a building’s design or operation presents an unacceptable risk, a fire protection 

engineering and life safety assessment is required in the Pre-Planning phase prior to 

the Feasibility Study. Fire protection and life safety issues have some impact on all 

aspects of any project design, be it a ventilation system design, security enhancements, 

or historic preservation, to name a few. 

Pre-Planning 

•	 Completes a fire protection engineering and life safety assessment for all of 

the GSA facilities that may be affected. 

•	 Identifies all potential exposures to risk of loss of life or property, or federal 

tenant mission interruption from the effects of fire. 

•	 Recommends appropriate risk-reduction strategies. 

Feasibility Study 

•	 Establishes the project’s direction and scope, based on the risk-reduction 

strategies identified in the fire protection engineering and life safety assessment. 

•	 Develops a plan to implement the risk-reduction strategies. 

•	 Establishes design budgets that are sufficient to incorporate the risk-


reduction strategies.


27 
What’s Important and When 

Program Development Study 

•	 Evaluates the fire protection engineering and life safety assessment, based on 

the project’s direction established in the Feasibility Study. 

•	 Ensures that the proposed construction costs are sufficient to support the 

fire protection engineering and life safety goals for the project. 

•	 Ensures that required fire protection and life safety mitigating measures 

that affect the construction budget or schedule are incorporated into the 

construction request. 

Hazardous Materials 

Asbestos, lead, and PCBs are the remnants of now-discarded building technologies 

with known potential for harm. An assessment of these materials and any other 

hazardous conditions is needed for all R&A projects of facilities constructed in the era 

when these materials were used. An accurate inventory that includes the locations of 

these materials in existing facilities can help the project team plan for encapsulation, 

mitigation, or removal and is important for preparing the project budget and schedule. 

Pre-Planning 

•	 Conducts an assessment of hazardous materials, prepares abatement strategies, 

and acquires abatement materials as appropriate. 

Feasibility Study 

•	 Defines the extent of any contamination due to hazardous materials. 

•	 Identifies strategies for the treatment of hazardous materials. 

•	 Highlights special needs, alternative choices, and costs. 

Program Development Study 

•	 Develops detailed costs and programs to address requirements regarding the 

treatment of hazardous materials. 

Life-Cycle Costing 

Project development always requires finding a balance among product performance, 

initial investment, operations and maintenance, environmental impact, and long-term 

replacement. This is especially true in selecting building systems, fixtures, and finishes. 

Life-cycle costing evaluates all ownership costs by comparing a product’s initial 

investment costs to its future costs for operations, maintenance, repair, and replacement 

(refer to the P-100). 

28 
Setback or Isolation? 

The standoff distance 

required for many federal 

facilities can have an 

unfortunate impact on the 

image and potential use 

of the site if they are not 

carefully planned and 

designed. Thoughtful 

planning should address the 

site design of public spaces 

and facility perimeters. 

What’s Important and When 

Pre-Planning 

• Understands current facility operating costs compared to desired benchmarks. 

Feasibility Study 

•	 Compares the relative life-cycle costs of the alternatives. 

Program Development Study 

•	 Considers multiple micro-level alternatives and compares the life-cycle costs 

of various options (especially regarding building systems choices). 

Security Requirements 

Security requirements may consist of progressive collapse, blast mitigation, glass 

fragmentation, and standoff distances, among others. Security requirements differ 

significantly from one facility and customer agency to another, as do the key agencies 

responsible for providing security at a facility. The Federal Protective Service, U.S. 

Marshals, security specialists for law enforcement customers, and Building Security 

Committees play key roles. As detailed security requirements continue to evolve, 

consult these individuals and include them on the Feasibility Study and PDS teams. 

During pre-planning or early in project development, a security/risk assessment process 

is performed to determine the protection level classification deemed necessary for the 

facility. The process includes a blast and progressive collapse analysis of the structure, 

based on the current Interagency Security Committee (ISC) security requirements, and 

a risk analysis per the procedures of the latest PBS guidance and the P-100 design 

requirements. Security costs must be tracked separately and are reflected on the OA as 

Building-Specific Security. 

Pre-Planning 

•	 Works with Building Security Committees; conduct studies to identify threats 

and appropriate countermeasures. 

•	 Assesses progressive collapse potential of existing buildings, using 


performance criteria set by ISC/GSA guidelines. 


Feasibility Study 

•	 Establishes security-level requirements for the customer agency and the 

facility and the performance requirements for glass fragmentation, perimeter 

security, and so forth. 

29 
What’s Important and When 

•	 Evaluates special requirements and costs associated with sensitive occupancy 

or facility types. 

•	 Evaluates each alternative’s ability to meet security needs. 

Program Development Study 

•	 Refines specific countermeasures and costs associated with the


preferred alternative.


•	 Refines the project’s design strategy and costs to meet performance 


requirements for progressive collapse.


Seismic Safety 

Detailed solutions for seismic safety are developed during the project’s design phase. 

Fundamental decisions about the mix of existing or new buildings that can meet 

the project’s goals are developed during the Feasibility Study, whereas the PDS refines 

the solution and develops specific construction costs. 

Pre-Planning 

•	 Conducts seismic studies to evaluate building risk and requirements. 

Feasibility Study 

•	 Assesses the ability of existing buildings to meet seismic performance 


requirements for their construction type and seismic conditions set by


ICSSC/Federal Emergency Management Agency (FEMA). 


•	 Completes studies needed to make such assessments, estimates associated 

costs, and includes needed work in site/design funding proposal. 

Program Development Study 

•	 Refines the project’s design strategy and costs to meet seismic


performance requirements. 


Telecommunications and IT 

GSA provides infrastructure for distribution of telecommunications systems. Customer 

agencies are responsible for service distribution costs. 

During project development, project teams gather telecommunications requirements 

from the tenant agency’s representatives and GSA’s Federal Technology Service (FTS). 

FTS is the source of the most current GSA Telecommunications Policy. Telecom issues 

affecting project development include impacts on schedule, design and construction 

coordination, facility support needs, and pricing. 

30 
What’s Important and When 

Pre-Planning 

•	 Tracks operation of current systems and stays aware of changing 


customer requirements.


Feasibility Study 

•	 Highlights special telecommunications needs that impact project design 

strategy, phasing, or costs (e.g., 24-hour operations, allowable downtimes, 

sensitive equipment, and operations). These are also incorporated into the 

Project Management Plan’s implementation strategy. 

Program Development Study 

•	 Develops budget and implementation strategies to support the


Construction Prospectus. 


Total Building Commissioning 

Total Building Commissioning is the PBS process for quality assurance in new 

construction and facility modernization. It is the process for achieving, validating, and 

documenting that the performance of the total building and its systems meet the 

owner’s design needs and requirements. 

Pre-Planning 

•	 Becomes familiar with building commissioning process. 

Feasibility Study 

•	 Determines appropriate building commissioning practice for the project 

and budgets for related costs. 

•	 Identifies the process for quality assurance. 

Program Development Study 

•	 Establishes the team for building commissioning. 

•	 Refines the process for quality assurance. 

•	 Develops budget for building commissioning, based on Commissioning 

Practice Level. 

31 
What’s Important and When 

Legacy Activities 

Legacy activities go beyond basic customer needs and facility requirements to exemplify 

the long-term value that the federal facilities and programs contribute to the protection 

of national resources and improved quality of the built environment. 

Art in Architecture 

GSA’s Art in Architecture program incorporates fine art into the design of new 

federal buildings and major renovation projects. The commissioning process includes 

public participation and is coordinated with the early stages of the design process. 

Project budgets must reserve a minimum of one-half of one percent of the estimated 

construction cost to commission original works by living artists. This minimum 

can be increased if the Regional Office and the Art in Architecture program staff 

believe that an increase is appropriate (e.g., the estimated construction cost is too small 

for an appropriate commission, or the project could make a significant public art 

contribution to the community). Documents and project-specific guidance are available 

from each Regional Fine Arts Officer and the OCA’s Center for Design Excellence 

and the Arts (see “Appendix G”). 

Pre-Planning 

• Conserves existing commissioned pieces and conducts studies as appropriate. 

Feasibility Study 

•	 Assesses the public nature of the building and the resulting public art opportunities. 

•	 Determines the appropriate funding level of art. 

•	 Includes a budget for Art in Architecture in the Site/Design Prospectus proposal. 

•	 Includes a commissioning process in the submitted Project Management Plan. 

Program Development Study 

•	 Includes design directives for Art in Architecture. 

•	 Proposes design directives and a budget to reflect unique opportunities that may 

warrant additional funding. 

Money Matters 

Like all project 

considerations, Design 

Excellence, urban 

development, historic 

preservation, and other 

legacy goals depend on 

budgets set years 

before design begins. 

While the project teams 

must always manage the 

budget and make trade-offs, 

quality projects require 

that these legacy goals be 

planned for throughout 

the process. 

32 
Early Expectations 

Influence Later Abilities 

The flexibility accorded 

to any design team is 

largely established years 

before design begins. 

The Feasibility Study must 

anticipate the impact of 

planning and site decisions 

on design possibilities 

and avoid problems based 

on inaccurate assumptions. 

Addressing customer 

expectations during the 

Feasibility Study and PDS 

processes is paramount. 

What’s Important and When 

Design Excellence 

GSA’s Design Excellence program seeks to bring the world’s top design talent to GSA 

projects. The selection of the architect/engineer (A/E) is an early step in the process. 

Its success is dependent upon effective project development during the Feasibility Stage. 

Successful projects deliver buildings that support the customer and proudly represent 

the quality and stature of the federal government to both building users and the 

community. 

Pre-Planning 

•	 Develops basic understanding of the Design Excellence program. 

Feasibility Study 

•	 Establishes the fundamental project parameters and the scope for the project. 

•	 Ensures adequate site acquisition and design budgets. 

•	 Sets customer expectations to allow for a high-quality design effort later. 

•	 Addresses community expectations. 

Program Development Study 

•	 Ensures adequate construction funding to cover “the right scope” with 


appropriate fixtures, finishes, and site development. 


First Impressions 

The First Impressions program seeks to enhance the public’s perception of the 

federal government by improving the appearance and experience of working in and 

visiting GSA’s public buildings. The program concentrates on renovations to existing 

properties: improving the quality of the asset by enhancing lobbies, streamlining 

security, and addressing other key features that make up the “first impression” of the 

building. The program offers a network of resources to assist Property Managers 

and project teams in addressing these issues. 

Although many First Impressions projects are carried out below the Prospectus level, 

GSA’s Capital Program offers an excellent opportunity to incorporate the First 

Impressions principles throughout the inventory. Buildings under consideration for 

capital R&A projects should be carefully analyzed to determine how they would 

benefit from these types of upgrades. 

33 
What’s Important and When 

Pre-Planning 

•	 Examines the essential functions, overall appearance, and image of the 

building’s public areas; initiates First Impressions activities at the property 

management level. 

Feasibility Study 

•	 Identifies First Impressions enhancements that should be included in


the capital project.


Program Development Study 

•	 Includes First Impressions projects in the overall project design and


funding strategy.


Historic Resources 

GSA is committed to successful stewardship of all resources under its control, whether 

recently constructed facilities or those of historic, archaeological, and cultural 

status. Early planning and frequent, informal consultation is the key to successful 

stewardship of historic resources under GSA’s control or impact. GSA must complete 

the external compliance reviews prescribed by Section 106 of the NHPA before 

deciding on a specific project alternative. (See “Appendix H” for more information 

on NHPA Section 106). 

Building Preservation Plans (BPPs) provide essential information for selection of the 

basic project approach. As prescribed in the Planning Call, BPPs are required for all 

projects where the proposed alternative involves historic buildings. These include both 

federal and lease construction projects that affect or reuse historic buildings. BPPs 

should be prepared either in advance or in concert with the Feasibility Study for all 

GSA properties that may be affected. 

Project teams should consult their Regional Historic Preservation Officer (RHPO) at 

the earliest opportunity to identify potential preservation issues and create a plan to 

address any issues. The GSA Preservation Desk Guide provides detailed guidance to help 

develop scope and qualification standards for architect selection that will ensure GSA’s 

stewardship of historic resources, bolster GSA’s credibility with outside review groups, 

and minimize the risk of delay. 

Don’t Forget the 

Study Money 

The cost for additional 

historic preservation studies 

and remediation may be 

relatively small, but studies 

may be difficult to fund 

because of tight operational 

budgets (BA61). Make sure 

to include the cost of the 

studies in the project 

funding in order to fully 

understand and plan for the 

project’s design and 

construction requirements. 

34 
What’s Important and When 

Pre-Planning 

•	 Conducts BPPs. 

Feasibility Study 

•	 Sets customer expectations about the process and requirements of assessing, 

protecting, and renovating historic properties, archaeological sites, and 

cultural landscapes. 

•	 Identifies historic districts and properties that may be affected. 

•	 Develops a plan to implement the project in accordance with Section 106 

of the NHPA. 

•	 Uses BPPs to shape preferred alternatives and decisions about adaptive reuse. 

•	 Establishes the project’s direction, based on consideration of macrolevel alternatives that affect the fundamental disposition of historic resources 

(e.g., demolition, new construction, disposal, or restoration). 

•	 Suggests opportunities to further GSA’s preservation goals. 

•	 Establishes design budgets that are sufficient to meet NHPA Section 


106 obligations. 


•	 Ensures that project design/construction budgets include anticipated costs 

for archaeological resource identification, recovery, and construction as needed. 

•	 Provides time and resources to identify, understand, and address 


community interests.


Program Development Study 

•	 Conducts detailed investigations to guide the design effort and establish 

sufficient budgets in Construction Prospectus that can meet preservation goals. 

•	 Evaluates micro-level alternatives, based on the project direction established in the 

Feasibility Study (e.g., incorporation of modern systems into a historic building). 

•	 Uses BPPs to shape detailed proposals and cost estimates for projects that affect 

historic buildings and districts. 

35 
What’s Important and When 

NEPA 

As a federal agency, GSA must comply with the requirements of the National 

Environmental Policy Act (NEPA). This requires that GSA consider alternatives and 

relative impacts of its actions during the decision process. NEPA may be more relevant to 

new construction projects (in comparison to R&A), but it must always be considered. 

New projects may require more detailed actions, such as Environmental Assessments 

(EAs) or Environmental Impact Statements (EISs). Although some impacts cannot be 

addressed properly until the design phase, early evaluation of alternatives and the 

development of realistic customer expectations are key tasks. The GSA’s NEPA Desk 

Guide provides detailed information on both the NEPA requirements and the 

evaluation process. Much of the NEPA activity occurs during site selection, when 

alternate sites are evaluated and the preferred sites are fully examined before acquisition. 

Pre-Planning 

•	 Becomes familiar with conditions in the assets and community that may be 

addressed on the NEPA Checklist. 

Feasibility Study 

•	 Considers the NEPA-related impacts of various alternatives. 

•	 Begins informal consultations with local officials, stakeholders, and/or experts. 

•	 Ensures that the customer understands the NEPA process and sets 


expectations accordingly.


•	 Includes a plan for the NEPA process in the Project Management Plan that 

supports the Site/Design Prospectus. 

•	 Provides supporting information for GSA’s Environmental Checklist, which is 

submitted with the Site/Design Prospectus. 

Program Development Study 

•	 Ensures that required NEPA mitigation measures that affect the construction 

budget or schedule are incorporated into the construction request. 

Site Selection 

The site is not selected until after a thorough site investigation, which occurs later in 

the process, typically two or more years after the Feasibility Study’s completion. The 

Feasibility Study sets the parameters and direction that are crucial to the acquisition 

of a high-quality site that meets the project’s needs. The Site Selection Guide is a valuable 

tool to consult throughout the process, from the feasibility phase through final 

site acquisition. 

36 
Pointed in the Right 

Direction? 

The Feasibility Study 

investigates potential sites 

and constructability, 

estimates acquisition costs, 

and supports the site/ 

design funding request. 

During the authorization 

process, the project then 

“floats” forward on the 

quality of that initial work, 

along with the customer’s 

expectations, sometimes 

for several years before 

formal site selection and 

acquisition can begin. 

Then the site investigation 

process starts anew. 

Like a boat that has 

temporarily cut its engines 

(for two years), problems 

will arise if the project 

has been drifting in the 

wrong direction. 

What’s Important and When 

The Feasibility Study establishes the budget for site selection, including the costs for the 

site, tenant and utility relocation, demolition, and hazardous materials abatement. 

The Site Selection Study “informs” the PDS in matters of site design and construction. 

Pre-Planning 

•	 Develops working relationships with local stakeholders. 

•	 Shares long-range plans and becomes familiar with potential sites


in the community.


Feasibility Study 

•	 Proposes project size, scope, typical floor plate size, setbacks, and other 

requirements that drive the size, location requirements, and cost of the site 

and play a major role in building massing and design decisions. 

•	 Evaluates both the market capacity and the acquisition cost to supply a sufficient 

site at the time of acquisition. 

•	 Begins to set customer and community expectations about the future


site selection.


Program Development Study 

•	 Reviews the Site Selection Study and refines site preparation and construction 

costs. Construction costs for new courthouse projects are provided by the 

Center for Courthouse Programs. 

•	 Uses the most up-to-date site information (including subsoil, contamination, 

urban design, expansion requirements, demolition, and relocation) to 

ensure that the project funding request is sufficient to build on a typical site in 

the delineated area. 

Sustainable Design 

Building performance can be optimized and impacts to the environment and health 

can be reduced when sustainability concerns are addressed at the beginning of a 

project. GSA has adopted the Leadership in Energy and Environmental Design (LEED) 

rating system as a measure for sustainable design. All GSA projects for new and fully 

renovated buildings must achieve LEED Certification, and a Silver rating is encouraged. 

37 
What’s Important and When 

Choices made in the early stages of a project regarding siting, building footprint, 

use of resources, building systems, and fenestration will have lasting impacts on energy 

and water consumption and the indoor environmental quality for the occupants. 

Documents and project-specific guidance are available through the Regional Build 

Green Coordinator. 

Pre-Planning 

•	 Knows facility energy performance compared to benchmarks. 

Feasibility Study 

•	 Includes sufficient sustainable design strategies for the project. 

•	 Proposes and evaluates alternatives and full life-cycle implications accordingly. 

•	 Documents the discussion and decision process for the LEED Certification file. 

Program Development Study 

•	 Establishes sustainable design goals and refines architectural, systems, and 

operational choices in light of these goals. 

•	 Uses the LEED Checklist to identify specific sustainable design strategies to 

meet the project’s goals. 

•	 Proposes a construction budget that can accomplish sustainable design goals. 

Urban Development 

GSA is committed by policy and law to consult with communities about how our 

projects can support local development efforts. Early project development is key to 

identifying opportunities and potential risks associated with community issues. 

These discussions and the relationships and knowledge they provide are fundamental 

to a project’s success. Important topics include parking, urban design, transit planning, 

public spaces, site selection, and building operations and shared uses. The Feasibility 

Study and the PDS must proactively identify issues and opportunities and propose the 

scope, schedule, and funding that are responsive to local conditions. 

Pre-Planning 

•	 Develops working relationships with local stakeholders; shares long-range plans; 

and collaborates on client neighborhood needs and concerns. 

Feasibility Study 

•	 Proactively identifies community issues and opportunities to support goals. 

•	 Begins informal consultations with local officials and stakeholders to create 

positive impacts and manage risks. 

38 
What’s Important and When 

•	 Proposes responsive design scope and funding, including site/landscape 


development. 


•	 Outlines a process for early community consultation and coordination in the 

Project Management Plan. 

•	 Sets customer expectations. 

Program Development Study 

•	 Ensures that proposed construction costs are sufficient to support project’s 

community coordination, urban design, and public space (First Impressions) goals. 

•	 Ensures that project design/construction budgets include anticipated costs for 

archaeological resource identification and recovery, plus other activities as needed. 

Project Implementation 

Implementation strategies have a significant impact on a project’s success. Diligent 

planning, inspired design, and adequate budget preparation can all come undone 

without adequate coordination and attention during the implementation phase. 

Cost Estimates 

The level of cost estimate required of the Feasibility Study and PDS is one of their 

most significant differences. Requirements and estimating techniques also vary, 

depending on the type of project. In all cases, the relevant Planning Call specifies the 

required cost estimating. 

Pre-Planning Phase 

•	 Maintains familiarity with the latest GSA Pricing Desk Guide and cost


estimating policy.


Feasibility Study 

•	 Develops cost estimates based on the most recent General Construction Cost 

Review Guide (GCCRG) or other standards, per the Planning Call. 

•	 Provides cost estimates prepared by a third-party estimator who does not have 

a financial stake in the project’s total cost (e.g., excludes the A/E of Record or 

Construction Manager, CM, at Risk). 

•	 Applies applicable programming and pricing models to new courthouse and 

border station construction projects. 

39 
What’s Important and When 

•	 Derives cost estimates for existing buildings from prior-study cost information 

(e.g., BER, BPP, blast, seismic, hazardous materials), TI cost estimates, 

First Impressions program activities, charrettes, and detailed cost estimates where 

other cost information is not available. The Project Cost Estimate form 

(UNIFORMAT II) should be used for R&A estimates of existing buildings. 

•	 Establishes shell, TI, and security budgets. 

•	 Develops the site acquisition budget based on a short list of potential sites, 

test fits, projected costs, and likely future real estate market issues. 

Program Development Study 

•	 Provides Project Cost Estimate form in UNIFORMAT II, Level 3 or other 

documentation as required in the Planning Call (see “Appendix G”). 

•	 Incorporates knowledge gained by destructive testing/investigations. 

•	 Applies applicable programming and pricing models to new courthouse and 

border station construction projects. For projects proposing new courthouse 

construction, the OCA’s Center for Courthouse Programs develops benchmark 

construction costs. 

•	 Revalidates and refines shell, TI, and security budgets. 

Procurement Method 

Selection of the procurement method is an important task within the project’s 

implementation (and is included in the PMP). There are procurement choices for both 

the design and the construction processes. Procurement methods depend on the 

needs and complexity of each project. Designers should be hired through the Design 

Excellence program, using either the two-stage or three-stage (design competition 

or charrette) process. Construction may be procured through various options. These 

include the traditional design-bid-build, CM at Risk, design/build, and bridging 

methods. Primary consideration is always to select the best option to deliver a highquality project, on time, and under budget while managing risk and flexibility. 

Pre-Planning 

•	 Understands procurement methods and their strategies and weaknesses. 

Feasibility Study 

•	 Sets project delivery method. 

•	 Confines delivery options based on parameters established in the 


Site/Design Prospectus.


New Courthouse 

Construction Budgets 

These budgets are 

established via benchmark 

by the OCA’s Center for 

Courthouse Programs. If the 

site presents special needs 

or opportunities, the PDS 

and Site Selection Study 

must identify and address 

additional construction 

funding that is required. 

These additional site costs 

also must be approved by 

the OCA for incorporation 

into the project. 

40 
Traditional vs. New 

Thinking on Procurement 

GSA no longer recommends 

a “traditional” design-bidbuild method for every 

project. 

Instead, GSA recommends 

tailoring the delivery method 

to the needs of the project. 

Non-traditional techniques, 

such as CM at Risk, design/ 

build, and bridging, may 

provide significant gains in 

managing costs, improving 

quality, speeding delivery, 

and managing risk. 

Call on the Construction 

Excellence and Project 

Management Division 

Guidance for effective 

PMPs and project 

management practices is 

available through the 

Construction Excellence and 

Project Management 

Division (see “Appendix G”). 

What’s Important and When 

Program Development Study 

•	 Evaluates and refines proposed delivery method, based on current and 


more detailed information. 


•	 Informs choices about construction and construction management 


procurement methods.


Project Management Plan (PMP) 

The PMP describes how the project is to be accomplished. Cost, quality, and


schedule are key components of project implementation and critical factors of the PMP.


Development of the management strategy begins during the Feasibility Study;


continues through PDS development, the design process, and construction activities;


and concludes with the project’s turnover to building management and customer


occupancy—the point when the rent start is complete. 


Its scope includes all aspects of program management—Work Plan, schedule, quality


assurance, communications, and controls—to deliver maximum return in line with


GSA’s business goals. Implementation strategies are evaluated in the Feasibility Study


and PDS and then are presented and updated in the project’s PMP.


Pre-Planning 

•	 Prepares to support the development of the PMP with knowledge gained from 

day-to-day operations. 

Feasibility Study 

•	 Evaluates alternatives for project phasing and procurement. 

•	 Proposes the implementation strategy and incorporates the strategy into the PMP 

to support the Site/Design Prospectus. 

•	 Initiates the long-term strategies for success, such as enlisting community 

participation and planning for sustainable design. 

Program Development Study 

•	 Validates or modifies, then refines the Feasibility Study’s recommended actions 

for implementation, procurement strategies, and delivery method. 

•	 Refines implementation strategy in detail for project implementation and 

its PMP. 

41 
What’s Important and When 

Capital Program Support 

Asset Planning 

GSA must shape its Capital Program and portfolio decisions with consideration to their 

context. The Local Portfolio Plan (LPP) and Asset Business Plan (ABP) are important 

tools and typically are required by the Planning Call. The LPP helps to make GSA 

portfolio decisions within the larger community, with respect to GSA’s multi-asset 

needs in that community. The ABP helps to make asset-specific project decisions, with 

respect to each asset’s holistic needs and GSA’s long-term plans for the asset. 

Pre-Planning 

•	 Maintains up-to-date ABPs and forges effective asset team. 

Feasibility Study 

•	 Evaluates broad alternatives that may impact multiple GSA properties 


and the community. 


•	 Relies on the LPP and relevant ABPs. 

Program Development Study 

•	 Evaluates more focused micro-level alternatives, often within a single


GSA property. 


•	 Relies most heavily on ABPs. 

Budget Development 

The Feasibility Study and the PDS must incorporate the required cost estimate types 

and sources, as outlined in the latest Planning Call. Both studies must clearly define the 

firewall that separates the budgets for shell and TI costs. 

Pre-Planning 

•	 Tracks budget development and performance in GSA projects. 

Feasibility Study 

•	 Ensures that the site budget for future site acquisition is sufficient, based on 

macro-level program test fits, likely availabilities, and supportable market data. 

•	 Creates a budget that can accommodate potential changes in the project 

definition due to site acquisition issues, mission or operation changes at the 

customer agency, and increased costs. 

Erie, PA 

Visitors to the new Erie 

Courthouse complex see 

how GSA’s Capital Program 

meets customer needs and 

contributes to our national 

built legacy, but they won’t 

see all the planning that 

made it possible. 

Early in the Feasibility Study, 

it was clear that the court’s 

needs were growing faster 

than anticipated. The team 

needed a creative solution. 

After studying options, they 

recommended renovation of 

the endangered Beaux-Arts 

county library, an Art Deco 

men’s store, and a Moderne 

federal building linked 

together with a new annex. 

The complex testifies to the 

value of creative thinking 

and the positive impact of 

GSA’s Capital Program for 

an entire community. 

42 
You’ll Need a Site for That 

Sites are the most obvious 

prerequisite for a good 

project, but planning for site 

costs can be tricky. Land 

costs can vary significantly, 

even within a submarket, 

and a site’s availability and 

suitability can change. 

Although site acquisition 

occurs later, the Feasibility 

Study should identify the 

relevant site acquisition 

issues and potential volatility. 

A skilled appraiser who 

knows the local market must 

look at potential sites and 

provide supportable future 

site costs for input into the 

analysis. This is necessary 

to develop a sufficient 

budget that is defensible to 

stakeholders. 

The Site Selection Guide is 

a key resource to use when 

developing effective site 

acquisition strategies and 

budgets. 

What’s Important and When 

•	 Ensures that the design and management and inspection (M&I) budgets 

are sufficient. 

•	 Provides a sound estimate for construction costs of the shell, TI, and GSAprovided security improvements. 

Program Development Study 

•	 Ensures that the construction funding request is sufficient. 

•	 Refines construction or site prep costs, as needed, to provide a sound funding 

request for the shell, security improvements, and TIs. 

•	 Complies with courthouse or border station program and Cost Benchmarks, 

where applicable. 

Financial Analysis 

Both Feasibility Study and PDS documents, as well as the Capital Program submission 

that they support, must meet Planning Call requirements for financial analysis. 

Typically, these include the pro forma, the return on investment (ROI) analysis, and 

The Automated Prospectus System (TAPS) analyses for both design and construction 

phase funding requests. Although professional services firms may develop the inputs 

to these analyses (especially for complex projects), Real Property Asset Management 

staff and the project teams must run the final models and thoroughly understand the 

inputs in order to support the project through the authorization process. 

Pre-Planning 

•	 Maintains skills to perform financial analysis. 

Feasibility Study 

•	 Refines all of the estimates for feasibility analysis, including estimates required 

to compare the preferred alternative to other viable alternatives. 

•	 Provides inputs for financial analysis as specified in the Planning Call, including 

vacant space created during construction, and swing space costs. 

Program Development Study 

•	 Provides sound estimates for construction cost and implementation analysis, 

including sufficient estimates required to compare the preferred alternative to 

other viable alternatives. 

43 
What’s Important and When 

The Planning Call 

The Planning Call is issued annually in advance of the Capital Program submissions. 

It describes the content for each Feasibility Study and PDS to be submitted that year. 

The specific format requirements of each Planning Call vary, but many of the same 

topics are included each year. 

The Feasibility Study and the PDS play essential roles in developing the Capital 

Program. These studies shape the proposals, help explain them to stakeholders, and 

guide decision-making throughout the process. For these reasons, it is important that 

these studies meet the specific requirements of each Capital Program Planning Call. 

Pre-Planning 

•	 Provides background studies needed during feasibility and PDS phases. 

Feasibility Study 

•	 Provides analysis and a recommended alternative for the Site/Design Prospectus. 

•	 Supports the recommendation of the delineated area cited in the


Site/Design Prospectus. 


Program Development Study 

•	 Supports the Construction Prospectus. 

Planning Call 

The Planning Call provides 

the detailed submission 

requirements for each year’s 

Capital Program. The 

regional Real Property Asset 

Management staff can 

provide the latest requirements of the Planning Call. 

44