E. Barrett Prettyman United States Courthouse Annex, Washington DC 

Architect: Michael Graves and Associates 
Program Development Study Phase


The Long Life of the PDS 

Years after its completion, the 

quality of the PDS continues 

to guide or constrain the 

project team’s response to 

unforeseen conditions, the 

customer’s revised needs, 

constructability issues, and 

ever-changing material and 

labor costs. In many ways, 

the PDS is the last chance to 

“get it right” (see Exhibit 5.2: 

Keys for PDS Success). 

Program Development Study Phase


Overview of the Program Development Study (PDS) Phase 

The Program Development Study (PDS) phase provides GSA with a sound foundation 

to pursue the construction funding and design start for a project. A PDS is required 

for all GSA capital projects. In the typical project development and funding cycle, 

the PDS usually follows the Feasibility Study phase by two years. The PDS is also a 

good method to establish project requirements for Prospectus-level build-to-suit 

lease projects. 

During the PDS phase, the project team, customer agency, and stakeholders use the 

PDS to develop the project described in the Feasibility Study in greater detail. The PDS 

reviews and revalidates (or revises) all previous project assumptions, plans, and budgets. 

It proposes a reliable construction budget and implementation strategy for the project. 

In GSA’s Capital Investment and Leasing Program (CILP), the PDS serves as the “last 

chance” to ensure that the project has the proper scope and budget before requesting 

construction funding. It provides the foundation for the architect/engineer (A/E) to 

begin design and establish budget parameters for the design process. 

A successful PDS fulfills these key roles: 

•	 Updates site information and costs, based on latest knowledge; 

•	 Evaluates the Feasibility Study and other assumptions and confirms the 

best alternative; 

•	 Identifies design directives to maximize the project’s opportunities by 

proposing the optimal budget and scope; 

•	 Identifies and minimizes constraints and risks by proposing the right budget 

and implementation strategy; 

•	 Details the strategy, schedule, and budget for the procurement of 

construction services; 

•	 Finalizes budgets for the shell, tenant improvement (TI), and security 

(e.g., progressive collapse, blast mitigation, glass fragmentation line items); and 

• Provides detailed backup for the Construction Prospectus.


This section of the Guide summarizes PDS deliverables, describes the tools for


conducting the PDS, and outlines a process to improve successful completion.


(See Exhibits 5.1, 5.3, and 5.4.)


93 
Confirm 

Readiness 

Contract for 

the PDS 

Conduct 

the Study 

Prepare and Submit the 

Capital Program Package 

Exhibit 5.1: PDS Process 

1.1 

Affirm project status 

and PDS resources 

1.2 

Assess supporting 

documents 

Resources 

assembled 

2.1 

Confirm A/E 

delivery method 

2.2 

Develop the PDS 

scope of work 

2.3 

Select the 

PDS contractor 

Contractor 

on board 

3.1 

Begin discussions 

with stakeholders 

3.2 

Affirm 

program goals 

3.3 

Develop 

design directives 

3.4 

Produce the 

Implementation Plan 

3.5 

Prepare a 

detailed budget 

1.3 

Assemble the 

PDS team 

1.4 

Update the PMP and 

develop the Work Plan and 

Communications Plan 

PDS 

completed 

4.1 

Prepare submission 

per Planning Call 

4.2 

Submit project 

for funding 

Project submitted 

to Capital Program 

Step 1 Step 2 Step 3 Step 4 

94 
Exhibit 5.2: Keys for PDS Success


Emphasize the Project Management Plan (PMP) 

Create a PMP at the beginning of the PDS process and revise it throughout. Use it as a tool to focus the efforts of the PDS team, 

the customer, and the contractor. 

Keep the PDS Team Engaged 

Assemble a broad-based team early and keep members involved. In-house GSA experts and customers are crucial to help set 

strategy, ensure an effective PDS, and manage expectations. 

Re-Evaluate the Feasibility Study 

Reconsider the Feasibility Study’s assumptions and conclusions. Since its completion, customer needs, local context, site 

availability and costs, security, and other requirements and expectations may have changed significantly. Any of these may 

fundamentally alter the proposed project. 

Customize the Scope of Work 

GSA’s standard scopes of work are an invaluable tool, but they are only a starting point. Ensure that the PDS is focused, complete, 

and on time by customizing the scope of work to meet the project’s specific requirements. 

Ensure In-House Knowledge 

GSA’s in-house team is called upon to answer questions in support of the project throughout the approval process—and they form 

the core of the future design team. They must have in-depth knowledge of the project to support it over the long term. This is 

especially true of economic analyses: The PDS contractor develops project costs, but the regional Office of Real Property Asset 

Management conducts the analyses required by the Capital Program. 

Conduct the PDRI Process 

Using the Project Definition Rating Index (PDRI) process can help to identify strengths and weaknesses in the PDS and Prospectus 

early on. See the Planning Call for more details on the process and its requirements. 

95 
Program Development Study Phase 

Recommended Activities 

Step 1 Confirm Readiness 

Reviews the project status, funding, and PDS team resources and how 

they contribute to the development of a viable Work Plan. 

Step 2 Contract for the PDS 

Develops the scope of work and selects the appropriate contractor. 

Step 3 Conduct the Study 

Prepares the PDS with help from stakeholders, the customer agency, 

and GSA associates. 

Step 4 Prepare and Submit the Capital Program Package 

Submits the completed package for construction funding. 

Outcome 

•	 Submission of a completed PDS and Construction Prospectus 

Duration 

This task typically takes thirty-six (36) weeks. Factors impacting duration: 

•	 The complexity of the project 

•	 Changes to the conditions or requirements since completion of the 

Feasibility Study 

96 
Step 1: Confirm Readiness


Confirm 

Readiness 

1.1 

Affirm project status 

and PDS resources 

1.2 

Assess supporting 

documents 

Resources 

assembled 

1.3 

Assemble the 

PDS team 

1.4 

Update the PMP and 

develop the Work Plan and 

Communications Plan 

Step 1 The Project Manager must review the project and confirm that it is appropriate to 

begin a PDS. This informal assessment is based on a review of the Site/Design 

Prospectus, site selection activities, the quality of previously conducted studies 

(including the Feasibility Study), the progress of the authorization process, and the 

availability of staff and resources to conduct an effective study. 

Several years may have passed since the completion of the Feasibility Study. Many local, 

customer agency, and project conditions may have changed during the interim. The 

PDS should be an assessment of where the project is today and where the project needs 

to go. As a first step, the project team becomes well versed in the project’s background 

and history in order to scope the appropriate PDS and guide it to completion. 

Recommended Activities 

1.1 Affirm project status and PDS resources 

Determine whether the time is right to begin the PDS. 

1.2 Assess supporting documents 

Assess validity of supporting documents and review project history. 

1.3 Assemble the PDS team 

Identify all required GSA and customer agency team members and 

ensure that the sufficient expertise is allocated for the PDS. 

1.4 Update the PMP and develop the Work Plan and Communications Plan 

Create a PDS Work Plan and Communications Plan in coordination with 

the overall PMP. 

Outcomes 

• Clear direction for the PDS 

• Identification of the resources and strategy to be successful 

• Sufficient information to contract for the PDS 

Duration 

This task typically takes three (3) weeks. 

97 
Program Development Study Phase 

1.1 Affirm Project Status and PDS Resources 

The Project Manager or team leader for the PDS reviews all project developments 

and determines whether it is the right time to begin a PDS. The availability of adequate 

resources to prepare the PDS also should be confirmed. This task is essentially the 

continuation of good project communications between the Regional Office and its 

customer agency in the period after submittal of the Site/Design Prospectus and joint 

planning for the PDS preparation. 

Recommended Activities 

Check progress status of the Site/Design Prospectus. 

•	 Determine whether the project is still on track for submittal of the construction 

request in the planned fiscal year. 

Affirm that the customer agency supports the project. 

•	 Make certain that the customer agency is ready to support the construction 

request for the proposed year. 

•	 Review the status and disposition of site selection and other project developments 

and confirm that the customer still supports the project and schedule proposed 

in the Feasibility Study. 

Assess changes to the project’s fundamental requirements. 

•	 Determine whether the project’s requirements have changed so significantly that 

the project needs to be reconceptualized. 

Confirm the timetable. 

•	 Confirm that the PDS can be funded and finished in time to support an effective 

Capital Program submittal. 

•	 Check that sufficient BA61 (e.g., Regional Operating) funds are set aside to 

support preparation of the PDS. 

Outcome 

• Customer and regional management support for preparation of a successful PDS 

Duration 

This task typically takes one (1) week. 

Who Leads the Team? 

Although an Asset Manager 

generally leads the 

Feasibility Study, a Project 

Manager usually leads the 

PDS. This can vary from 

region to region. 

98 
Document Review Precedes 

PDS Commencement 

Ideally, each member of 

the project team assesses 

the available documents 

and their validity in light of 

current conditions and 

recommends any new data 

or studies that are needed. 

Program Development Study Phase 

1.2 Assess Supporting Documents 

This task focuses on understanding the project’s history and background in depth, 

rather than simply reviewing a host of documents. Conversations with those who are 

familiar with the project and its development can enhance the review. In order to 

build an effective team and create the scope of work for the PDS, the Project Manager 

and the team must begin with a thorough analysis of the Feasibility Study and the 

project’s history. 

Recommended Activities 

Start with the Feasibility Study. 

•	 Identify issues or uncertainties that need to be developed more fully since 

the Feasibility Study was completed. 

•	 Look for Feasibility Study assumptions that may have changed. 

Identify the key risks and opportunities. 

•	 Determine whether technical issues have been sufficiently analyzed and resolved 

in the Feasibility Study. 

•	 Review the Project Management Plan (PMP). The PDS scope of work should 

respond to any outstanding risks. 

Review other studies and background information. 

•	 Check for and review any substudies referenced in the Feasibility Study. 

(See “Appendix B” for a list of typical Feasibility Study Input Documents.) 

•	 Identify any special studies (e.g., seismic, blast, historic preservation, fire 

protection) that need to be completed or included in the PDS. 

Re-engage the project contacts from the Feasibility Study or its supporting studies. 

•	 Concentrate on key issues, uncertainties, and expectations. 

•	 Contact others (GSA, the customer, and stakeholders) who can explain the 

background of the project’s requirements. Some of these persons may join the 

PDS project team later; tap their knowledge now to help shape the approach 

and scope of work. 

Review site selection efforts and the Site Investigation Report. 

•	 Talk to the Site Investigation Team to learn more about conditions that may 

impact construction costs or about commitments for special studies or actions 

during construction. 

99 
Program Development Study Phase 

Outcomes 

• Familiarity with the project’s background 

• A basis for informed choices about the PDS team composition 

• Identification of gaps in background documentation composition 

• General direction to shape the scope of work 

Duration 

This task typically takes one (1) week. Factor impacting duration: 

• Availability of personnel and documents 

1.3 Assemble the PDS Team 

The entire team should be assembled now (even if some team members’ expertise is 

not used until later in the PDS development). Each project uses a variety of GSA 

associates as resources. Their topic expertise and knowledge of specific project areas help 

to develop an effective PDS scope. 

Recommended Activities 

Develop a team roster. 

•	 Select a slate that pairs the project’s issues with GSA expertise. 

Consult “Appendix E,” which describes the roles and responsibilities of the 

team members, to develop the roster. 

Include customer agency representatives. 

•	 Rely on customer agency representatives to provide knowledge about the 

customer’s requirements and to handle communications and coordination with 

the customer agency. 

•	 Review any special needs or concerns discussed in the Feasibility Study 

and then include customer representatives with the right expertise to help shape 

and review the PDS. 

Leverage outside stakeholders as a source of local knowledge and support. 

•	 Determine whether there are issues or opportunities influenced by


outside factors. 


•	 Use stakeholders to bring local input into the PDS process. They can provide 

strategies for viable local approaches: funding additional construction costs 

through local or state agencies and coordinating with nearby utilities, road repair, 

local plans, or preservation features. 

Capitalize on Earlier GSA 

Participation 

Don’t overlook the 

significant advantages of 

involving the GSA experts 

who participated during the 

project’s Feasibility Study, 

site selection, and Design 

Excellence review. 

100 
Program Development Study Phase 

Outcome 

•	 Availability of GSA and other experts to shape the PDS scope of work 

Duration 

This task typically takes two (2) weeks. Factor impacting duration: 

•	 Availability of appropriate Feasibility Study team members and stakeholders 

for the PDS preparation 

1.4 Update the PMP and Develop the Work Plan and Communications Plan 

The Work Plan is a crucial tool to ensure that the PDS achieves its goals, stays 

within budget, and remains on schedule. The team leader is responsible for mapping 

out all of the tasks, determining who does what and when, and defining the 

deliverables for each step. Once the project begins, the team leader uses the Work Plan 

to troubleshoot the process, the deliverables, and the schedule. 

Effective communications bring important benefits to the project by managing 

customer agency, stakeholder, and community expectations; building consensus; 

supporting the project schedule; and enhancing coordination within the team 

and with the customer agency. The Communications Specialist team member can 

assist the team leader and others with these activities. 

Recommended Activities 

Review the PMP that was submitted with the Feasibility Study. 

•	 Review the PMP’s recommendations for design procurement and the 


implementation strategy as inputs to the Work Plan. 


•	 Verify whether the PMP has been updated since the completion of the 


Site/Design Prospectus or the beginning of the design phase. 


•	 Use the PMP to guide the PDS process. Don’t limit the PMP update to the 

submission for the Capital Program. Drafting the PMP begins earlier in 

the capital development process, and the PMP is updated throughout the PDS 

activities. Update the PMP in concert with the development of the Work Plan. 

Use the PDS Checklist (see “Appendix D”). 

•	 Refer to the PDS Checklist for a list of typical contents and tasks for a PDS. 

Not every project needs all of the elements in the PDS Checklist. However, using 

the PDS Checklist helps to review the project’s requirements and select the 

appropriate PDS elements for each project. 

101 
Program Development Study Phase 

Review project background. 

•	 Review the project’s characteristics. Identify unique factors about the project or 

the location that may impact the Work Plan and plan for their resolution in the 

scope, schedule, and budget. 

•	 Review the project’s history and local context. 

•	 Verify coordination with other studies (either completed or ongoing). 

Create a Work Plan for conducting the PDS. 

•	 Work with the PDS team to develop a Work Plan and schedule that includes 

these tasks: write the scope of work, begin the PDS, review progress, revise and 

finalize the PDS, and submit the project to the Regional Office’s Capital 

Program. The schedule should conclude with the completion of the Regional 

Office’s Capital Program submission of the project. 

•	 Identify project decision-making processes and coordination requirements. 

Review the approval processes for GSA, the customer agency, local government, 

and others. Determine typical time frames and milestones and add this 

information to the project schedule. 

Develop a Communications Plan for GSA stakeholders and the public. 

•	 Understand the context of the project and the community by reviewing previous 

communications approaches and strategies. Review contacts made with federal, 

state, and local agencies during the Feasibility Study. 

·· Reviewing project and local history, local issues, and activities that may create 

interest or controversy, such as local elections and other development activities. 

•	 Identify key stakeholders in terms of the following:


·· Organization (size and structure);


·· Project stake;


·· Level of influence and issues of interest; and


·· Leaders and spokespersons, for contact information.


•	 Include the Communications Plan in the PMP to cover the project duration. 

•	 Include plans for involving various stakeholders (e.g., the customer agency, 

the community, local officials) in the PDS preparation. 

•	 Plan to review the draft Work Plan with key stakeholders, including the customer 

agency, GSA Regional Office, and GSA Central Office. Confirm coordination 

requirements within GSA and among GSA, tenant agencies, and other outside 

organizations, such as local government and community organizations. 

Key Advantages to Updating 

the PMP During the PDS 

•	 The team is more 

engaged and contributes 

more effectively. 

•	 Early focus is on the final 

product. 

•	 The PDS refines the PMP 

finalization. 

102 
PMP’s Role 

The Project Management 

Plan (PMP) is a tool that 

supports effective project 

development. The Project 

Management Plan is 

separate from the PDS, 

but the two should be 

developed in tandem. The 

PMP saves far more effort 

over the life of the project 

than it takes to prepare. 

Consequently, it pays to 

prepare the PMP correctly. 

PMP Aid 

Contact the OCA’s 

Construction Excellence 

and Project Management 

Division for resources 

to help develop PMPs that 

will make each project 

successful. 

Program Development Study Phase 

•	 Provide a clear understanding of who does what, when, and why. Use this 

information to gain understanding, develop support, or announce progress, 

as appropriate. 

•	 Identify project milestones. 

•	 Develop a schedule of planned communications around project milestones, such 

as activity commencement and completion dates. Develop a protocol for tracking 

and responding to potential problems. 

•	 Identify communications venues that may be used to distribute information 

about the project, such as the following: 

·· GSA Web site and/or customer agency Web site or newsletter. 

·· City or local agency Web site and local interest newsletters and Web sites. 

·· Local newspapers, TV, and radio. 

•	 Summarize this information and prepare the Communications Plan. Review the 

Communications Plan with the Site Investigation Team and the communications 

staff for the Region, GSA Central Office, and customer agency. 

Revise the current PMP during the PDS process. 

•	 Don’t wait until the Capital Program to dust off the PMP. It should be updated 

continually throughout the process. The PDS scope of work can be tailored to 

address issues to support the project strategy. 

Outcomes 

•	 An effective strategy for conducting the PDS 

•	 Development of the PMP in concert with the PDS 

•	 Development of the Communications Plan with analysis of stakeholders, potential 

issues, and media venues 

Duration 

This task typically takes two (2) weeks. 

103 
Exhibit 5.3: PDS Process Schedule


Task Name 

Step 1: Confirm Readiness 

Duration 

3 weeks 

1.1 Affirm project status and PDS resources 1 week 

1.2 Assess supporting documents 1 week 

1.3 Assemble the PDS team 2 weeks 

1.4 Update the PMP and develop the Work Plan and Communications Plan 2 weeks 

Step 2: Contract for the PDS 4 weeks 

2.1 Confirm A/E delivery method 1 week 

2.2 Develop the PDS scope of work 1 week 

2.3 Select the PDS contractor 2 weeks 

Step 3: Conduct the Study 26 weeks 

3.1 Begin discussions with stakeholders 26 weeks 

3.2 Affirm program goals 4 weeks 

3.3 Develop design directives 14 weeks 

3.4 Produce the Implementation Plan 4 weeks 

3.5 Prepare a detailed budget 4 weeks 

Step 4: Prepare and Submit the Capital Program Package 3 weeks 

4.1 Prepare submission per Planning Call 3 weeks 

4.2 Submit project for funding 1 day 

Summary of Tasks 

Task 

Milestone 

104 
Month 1 

WK 1-2 WK 3-4 WK 5-6 WK 7-8 WK 9-10 WK 11-12 WK 13-14 WK 15-16 WK 17-18 WK 19-20 WK 21-22 WK 23-24 WK 25-26 WK 27-28 WK 29-30 WK 31-32 WK 33-34 WK 35-36 WK 37-38 

Month 2 Month 3 Month 4 Month 5 Month 6 Month 7 Month 8 Month 9 

105 
Step 2: Contract for the PDS


The Work Plan establishes the starting point to bring a qualified A/E contractor on 

board. The PDS team must use the latest project information to develop the 

appropriate scope of work and define the right firm for the work. 

Recommended Activities 

2.1 Confirm A/E delivery method 

Review the Feasibility Study and PMP to determine whether the recommended 

A/E selection strategy is still viable. 

2.2 Develop the PDS scope of work 

Begin with standard scopes and GSA expertise to craft the appropriate scope for 

each project. 

2.3 Select the PDS contractor 

Work closely with the Contracting Officer to bring the A/E contractor on board 

for the PDS. 

Outcomes 

•	 Development of a scope of work for the PDS 

•	 Selection of A/E contractor 

Duration 

This task typically takes four (4) weeks. Factor impacting duration: 

•	 Adequate time to access a qualified existing IDIQ contractor or the 

Designer of Record 

2.1 Confirm A/E Delivery Method 

The Feasibility Study examined the advantages and disadvantages of design/build, 

traditional design-bid-build, and other methods and recommended the best 

implementation and procurement strategy for the project. The selected implementation 

strategy should influence the process for selecting the PDS contractor. 

Contract for 

the PDS 

2.1 

Confirm A/E 

delivery method 

2.2 

Develop the PDS 

scope of work 

2.3 

Select the 

PDS contractor 

Contractor 

on board 

Step 2 

106 
Program Development Study Phase 

For most projects, the best course is to select the design A/E and Architect of Record 

through GSA’s Design Excellence program and use the selected A/E to prepare the PDS 

before proceeding into design. However, other design procurement strategies may 

remain valid options for some projects (e.g., a limited-scope renovation that does not 

require a Feasibility Study or a design/build project). In those cases, another A/E may 

be contracted to complete the PDS. 

Recommended Activities 

Validate the A/E delivery method. 

•	 Review the Feasibility Study and the PMP to determine whether


current conditions warrant following the recommendation or selecting


a different process. 


Determine whether the project is a limited-scope renovation (such as for a single system); 

if so, include the A/E procurement method as part of the PDS. 

Outcome 

• Validation of A/E and PDS contractor procurement strategy 

Duration 

This task typically takes one (1) week. 

2.2 Develop the PDS Scope of Work 

The most important task for the project team is preparing the scope of work. A 

carefully crafted scope of work defines the project’s needs, provides Capital Program 

managers with the data to support the construction funding request, and delivers a 

document that guides the project through the early stages of design. 

GSA has developed model scopes of work for renovation and new construction projects 

(see “Appendix F: GSA’s Standard Scopes of Work”). Reviewing these standard scopes is 

a good starting point for defining the scope of work for the project. The PDS team 

must customize each project’s scope to ensure that it addresses both project 

requirements and those of the relevant Capital Program. 

107 
Exhibit 5.4: PDS Deliverables


The PDS must present the following information for decision-makers at GSA and at the customer agency and, ultimately, for 

stakeholders in the administration and in Congress. 

Customer Agency’s Business Goals • Reviews the customer agency’s business goals and their impact on facility requirements. 

• Confirms that the project is needed, supports customer agency’s business goals, and 

discusses the implications if the project is not completed. 

• Reviews and validates alternatives from the Feasibility Study, addresses the impact 

on all affected GSA assets and interdependent projects, and explains customer-pricing 

implications. 

Project Goals • Refers to GSA’s portfolio goals as the context for the project. 

• Describes workplace performance goals, space assignments, and flexibility needs. 

• Discusses facility operation, automation, materials handling, durability, and life-cycle 

costing requirements. 

• Creates the housing plan, taking into consideration any special space 

requirements, required adjacencies and square footage, and potential response to 

future uncertainties. 

• Includes directives to meet accessibility, historic preservation, urban development, and 

Design Excellence goals. 

Building Requirements • Lists goals for acoustic and indoor air quality, sustainable design, energy efficiency, 

water conservation, and moisture protection. 

• Addresses risks posed by seismic activity, blast events, chemical and biohazards, fire, 

and other threats to persons and property under GSA’s care. 

• Describes site and surroundings, plus Design Excellence and urban development goals. 

• Discusses operations and maintenance requirements, as well as GSA’s Total Building 

Commissioning strategy. 

108 
109 

Building Systems • Establishes design directives for foundations, structures, exterior walls and windows, 

flooring and roofing, internal partitioning, finishes, conveyance systems, plumbing, 

HVAC systems, fire protection, life safety, electrical service and distribution, lighting, 

communications and security systems, equipment and furnishings, site work and 

landscaping opportunities, and considerations for special construction and demolition. 

Implementation Plan • Identifies key project milestones, stakeholders, funding sources, and uncertainties 

about or risks to the project’s delivery. 

• Proposes the project delivery method and assumptions. 

• Discusses phasing and swing space requirements, potential agency interruptions, 

utilities coordination, construction phasing, and building turnover plans. 

• Describes required stakeholder funding approvals, plus strategies for meeting 

environmental, historic preservation, and urban development requirements. 

Cost Estimating • Provides project data, estimated construction costs (ECC), estimated total project costs 

(ETPC), estimated customer relocation costs, cost of shell improvements, cost of each 

tenant’s TI, and the cost of security improvement (e.g., progressive collapse, blast 

mitigation, glass fragmentation) to meet GSA cost estimating requirements (currently 

based on Project Cost Estimate form UNIFORMAT II, Level 3). The OCA’s Center for 

Courthouse Programs develops a construction benchmark for the projects proposing 

new courthouse construction. 
Program Development Study Phase 

Recommended Activities 

Review copies of model scopes of work. 

•	 Begin with the generic scopes of work provided through the OCA. 

•	 Review the scopes of work used for similar projects and choose those elements 

that are appropriate for this project. Documents and project-specific 

guidance are available from the OCA’s Construction Excellence and Project 

Management Division (see “Appendix G: GSA Organizations and Resources”) 

and through other Project Managers in each region. 

Convene the PDS project team to help shape the scope of work. 

•	 Customize each project’s scope to meet the project’s latest specific requirements. 

•	 Ensure that the scope fills in any gaps left by the Feasibility Study, paying special 

attention to previously identified issues and those that have come up since its 

completion. 

•	 Determine whether the scope suits the program. The new courthouse or border 

station programs have highly developed benchmarking systems that supersede 

any other estimating methods. When using these models, it may be possible to 

streamline the PDS scope to concentrate on confirming conditions, procurement 

methods, and site issues, rather than on standard construction or program items. 

Customize the scope to meet the requirements of the relevant Capital Program. 

•	 Consult with the Office of Real Property Asset Management or the Regional 

Office representative from Real Property Asset Management to review the 

Planning Call issued for the planned funding year. Data requirements change 

from year to year (e.g., parking plans, courtroom matrices). Support the 

development of the Capital Program for the project by ensuring that the PDS 

presents key data in easily usable formats. 

Outcome 

• A solid scope for professional services 

Duration 

This task typically takes one (1) week. Factors impacting duration: 

• The complexity of the project 

• Requirements that deviate from the standard PDS scope of work 

Standard Scopes for PDSs 

GSA has developed standard 

scopes of work for PDSs 

that support both renovation 

and new construction 

projects. These scopes of 

work provide detailed 

deliverables for PDSs and 

a “workbook” format to 

customize the PDS to 

meet each project’s needs. 

Contact the OCA’s 

Construction Excellence 

and Project Management 

Division for the latest 

documents. 

110 
A/E Fee Adjustment 

The A/E’s fee may need to 

be adjusted as the PDS’s 

scope definition and subsequent estimates provide 

more accurate details than 

the Feasibility Study’s ECC. 

Plan a strategy to identify 

and address any scope 

changes during the development of the Construction 

Prospectus. 

Program Development Study Phase 

2.3 Select the PDS Contractor 

The GSA Contracting Officer, a key member of the PDS team, shepherds the team 

through the contractor selection process. In a traditional Design Excellence 

procurement, the Architect of Record performs the PDS and designs the facility, so 

there is no separate procurement for a PDS contractor. 

When another A/E delivery method is recommended (e.g., limited-scope systems 

project), it will be necessary to select a PDS contractor. In many cases, the PDS firm 

already may be on board or easily procured via a Regional Indefinite Delivery Indefinite 

Quantity (IDIQ) contract or other contracting mechanism. 

Recommended Activities 

Review capabilities of professional services firms. 

• Check the qualifications of firms already on board (e.g., IDIQ, FSS/MOBIS 


contracts) in light of the complexity of the project and required expertise. 


• Take advantage of the expertise of the Contracting Officer and other Project 


Managers to evaluate the suitability of available contractors for this PDS. 


Establish the procurement timeline. 

•	 Check with the Contracting Officer about the time required to bring a firm on 

board. This varies significantly, depending whether the firm is under an existing 

contract or whether the PDS needs to begin a solicitation from scratch. 

Issue the RFP. 

•	 Use the scope of work created in the previous step (2.2), to issue the RFP. 

Award the job. 

•	 Receive offers, negotiate the terms, and award the contract. 


Complete procurement activities with the Contracting Officer.


Outcome 

• Issuance of a notice to proceed to the PDS contractor 

Duration 

This task typically takes two (2) weeks. Factor impacting duration: 

• Use of a non-IDIQ contractor 

111 
Step 3: Conduct the Study


The PDS contractor is responsible for completing the study with the PDS team’s 

input and guidance. GSA guides the PDS, coordinates reviews, and keeps the customer 

agency and stakeholders informed and involved. See “Chapter 2: What’s Important 

and When” to help review and guide the PDS development. 

The PDS scope of work provides the detailed blueprint for conducting the study. 

Following is a brief summary of some of the key steps. 

Recommended Activities 

3.1 Begin discussions with stakeholders 

Use input from stakeholders to understand the customer agency, local context, 

stakeholders’ concerns, and opportunities. 

3.2 Affirm program goals 

Confirm or revise the program goals outlined in the Feasibility Study 

and update specific goals and targets. 

3.3 Develop design directives 

Develop detailed design directives to support sound project implementation, 

appropriate budget, and phasing. 

3.4 Produce the Implementation Plan 

Update the PMP to describe key project milestones, risk management strategies, 

and other relevant information. 

3.5 Prepare a detailed budget 

Apply the most up-to-date project data to ensure that the proposed budget 

is sufficient to deliver the project. 

Outcome 

•	 A completed PDS 

Duration 

This task typically takes twenty-six (26) weeks. Factors impacting duration: 

•	 The complexity of the project 

•	 The inclusion of specialized studies 

•	 The time needed to review, digest, and develop the PDS into a solid 

funding proposal 

Conduct 

the Study 

3.1 

Begin discussions 

with stakeholders 

3.2 

Affirm 

program goals 

3.3 

Develop 

design directives 

3.4 

Produce the 

Implementation Plan 

3.5 

Prepare a 

detailed budget 

PDS 

completed 

Step 3 

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Program Development Study Phase 

3.1 Begin Discussions With Stakeholders 

Use discussions with the customer agency and local communities to define 

development, construction, and phasing requirements and to understand the project’s 

potential to support local planning and development activities. 

Recommended Activities 

Meet with and engage project stakeholders. 

•	 Take advantage of meetings with the customer agency and local community to 

review project goals and local development goals. 

•	 Identify opportunities for stakeholders to work together. Typical participants 

may include GSA Central Office, local government, local planning agencies, 

community groups, and the congressional delegation. 

•	 Use Exhibit 5.5: Sample Agenda to help prepare for the meeting(s). 

Identify the control point for communications. 

•	 Select either the team leader or the Project Manager as the control point for all 

communications. Keep minutes or other reports for all meetings and phone calls. 

Coordinate all contact with local authorities through the appropriate GSA Regional staff. 

•	 Communicate regularly with the Regional Administrator. 

Identify other stakeholders. 

•	 Consider the need to meet with representatives of local government and civic 

organizations, including zoning boards, health departments, fine arts 

commissions, fire marshals, regional planning commissions, and local/urban 

design review boards, to ascertain construction design and issues. 

•	 Explore the potential to leverage federal and local development efforts and to 

fine-tune the project’s ability to support local needs. 

•	 Contact the state environmental agency and State Historic Preservation Office, 

when appropriate, and discuss the project’s compliance with state policies, 

programs, and regulations. 

Discuss the needs for publicity, press releases, and other communications activities. 

•	 Determine who will issue information that has been approved by the team 

leader and how inquiries and potential problems will be addressed. 

•	 Review schedules for internal and external communications of project milestones. 

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Exhibit 5.5: Sample Agenda


Meeting With Customer Agency or Community 

1. Introduce attendees. 

2. Review description of government project. 

3. Briefly describe overall process, including earlier studies. 

4. Review current PDS activities, purpose, outcome, and schedule. 

5. Inquire about agency planning procedures, sources of information, and key program needs. 

6. Identify potential opportunities and pitfalls (sites, local opportunities, timetable, phasing). 

7. Assign next steps 

• Collect further data 

• Plan additional meetings 

• Establish points of contact 

Fine-tune the sample agenda, based on project history and timeline. Consider these points in preparing for the meeting(s): 

• Are the meeting participants familiar with the proposed project and the PDS process? 

• Have they been involved in a PDS for other projects? 

• Is there a previous working relationship between this group and GSA and the team leader? Is this a first-time 

meeting or a follow-up? 

• What are the local impacts of the project? Consider the impact on urban design, job creation, transportation, growth, 

revitalization, and other local issues. 

• Has there been any previous community involvement? What will be planned? 

114 
Build Relationships 

With Allies 

Local historic preservation 

groups yield an enormous 

amount of influence in many 

communities, and they can 

become great allies when 

brought on board early. It is 

never a good approach to 

bring them on board late. 

Program Development Study Phase 

Outcomes 

•	 Development of trust and consensus through ongoing dialogue with all 

project stakeholders 

•	 Coordination of design and construction activities, based on local knowledge, 

customer agency and local input, and the process 

Duration 

This task typically takes twenty-six (26) weeks and continues throughout the PDS 

process. 

3.2	 Affirm Program Goals 

It is important to review and update the project goals identified in the Feasibility Study 

in light of current conditions and to evaluate their impact on the construction budget 

and Implementation Plan. Consider workplace performance goals, space requirements, 

sustainable design and energy usage targets, updated security and seismic requirements, 

compliance with historic preservation and environmental laws, and recommended 

coordination with local plans (see Exhibit 5.4: PDS Deliverables). 

Recommended Activities 

Affirm program goals. 

•	 Use input from the customer agency, GSA, and outside stakeholders. 

Provide specific targets. 

•	 Develop specific performance metrics or targets, as appropriate (e.g., LEED 

rating goals, energy usage) to evaluate success, as goals are updated or confirmed. 

Write goals carefully. 

•	 Ensure that goals are both sufficiently broad and appropriately detailed to guide 

effective design directives. 

Outcome 

•	 Up-to-date goals for the project with sufficient detail to guide design directives 

Duration 

This task typically takes four (4) weeks. 

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Program Development Study Phase 

3.3 Develop Design Directives 

Design directives provide micro-level alternatives to shape project decision-making and 

offer detailed direction for creating the project’s design and budget. 

Recommended Activities 

Match scope requirements with design directives. 

•	 Ensure that the PDS contractor develops design directives to meet the project 

goals and the requirements of the scope of work. 

Keep design directives on track. 

•	 Ensure that the design directives consider the most up-to-date project 

information, accomplish the defined project goals, and provide sufficient microlevel alternatives (e.g., systems choices, phasing options) for the project team. 

Coordinate with GSA headquarters. 

•	 Check in with stakeholders in the Office of Real Property Asset Management 

and the Office of the Chief Architect to understand submission requirements and 

project ranking factors. 

Outcome 

•	 Clearly defined design directives that describe the project’s elements, 

implementation, and budget 

Duration 

This task typically takes fourteen (14) weeks. 

3.4 Produce the Implementation Plan 

The PDS provides an Implementation Plan for executing the project and its defined 

design directives. It describes key project milestones, funding sources, and uncertainties 

or risks that may affect project delivery. Beginning with an evaluation of the Feasibility 

Study, the PDS proposes phasing, swing space plans, and building turnover plans. The 

Implementation Plan must describe required stakeholder approvals and consultations, 

as well as strategies for meeting environmental, historic preservation, and urban 

development requirements. 

Design Directives 

To develop valid interior 

renovation engineering 

concepts for the PDS, 

the team develops options 

for the distribution of 

services (mechanical, 

electrical, voice, and data), 

the perimeter conditions 

at window wall, and 

the corridor. 

Funding Cycles 

When developing a project 

schedule, recognize both 

the limitations of the funding 

cycle and when funds 

become available. 

116 
Check the Planning Call 

See the latest Planning 

Call and the detailed costestimating tools provided 

with the Planning Call. 

Contact the Office of Real 

Property Asset Management 

to ensure that your PDS 

covers all of the bases. 

Planning Call 

The Planning Call directs 

the requirements of the 

submission. It is important to 

anticipate and incorporate 

these requirements into the 

scope of work and throughout 

the process as they cannot 

be effectively “created” 

at the end of the process. 

When they are not included, 

significant revisions to the 

PDS may be required. In 

addition to the Prospectus, 

the required economic 

analyses, and final housing 

plans, team members also 

prepare an Environmental 

Checklist, the Project 

Management Plan, Occupancy Agreements, and 

other relevant documents 

during the same time period. 

Program Development Study Phase 

Recommended Activities 

Review the PMP and Feasibility Study’s proposed implementation methods. 

Assess key elements. Consider the design directives’ key factors. 

•	 Integrate the requirements of the schedule and known uncertainties with 


various coordination activities. 


Develop the Implementation Plan. 

•	 Use the plan to guide project phasing, construction procurement, and risk 

management. 

Incorporate key Implementation Plan strategies into the PMP. 

Outcome 

• A strategy to implement the project 

Duration 

This typically takes four (4) weeks. 

3.5 Prepare a Detailed Budget 

The PDS must propose design directives that have sound budgets, including additional 

costs for phasing, swing moves, and site conditions, as well as standard construction 

costs. Estimates must meet the requirements laid out in the Planning Call, which, for 

PDSs, are currently based on UNIFORMAT II, Level 3. 

Recommended Activities 

Develop base costs. 

•	 Use the Planning Call as a guide, as well as industry estimating standards


(such as Means).


Consider additional costs. 

• Evaluate special conditions and the requirements of the Implementation Plan. 

Revise Occupancy Agreements. 

• Use the more detailed cost estimates and project budgets contained in the PDS. 

Outcome 

• The most up-to-date construction costs to deliver the project 

Duration 

This task typically takes four (4) weeks. 

117 
Step 4: Prepare and Submit 

the Capital Program Package 

The PDS team must stay engaged with the project as it is developed into a 

Prospectus funding proposal. Although the regional Office of Real Property Asset 

Management generally puts the package together, other team members prepare specific 

parts of the funding package, based on the requirements of the Planning Call. 

The preparation of the Capital Program package will fill all available time (and that 

time will seem far too short). Work out reasonable delivery time frames with the 

regional Office of Real Property Asset Management. The complexity of the submission 

requirements seems to grow every year, so allow plenty of time to do it right. 

Recommended Activities 

4.1 Prepare submission per Planning Call 

4.2 Submit project for funding 

Outcome 

• Capital Program submission that accurately and effectively represents the project 

Duration 

This task typically takes three (3) weeks. 

4.1 Prepare Submission per Planning Call 

Consider Planning Call requirements and incorporate them into the development 

of the PDS. 

Recommended Activities 

Keep the PDS team involved. 

•	 The team may be needed throughout the development of the Capital Investment 

and Leasing Program (CILP) submission. 

Conduct a Project Development Rating Index (PDRI). 

• The PDRI assesses the strengths and weaknesses of the application. 

Ensure that the PDS and supporting documents meet Planning Call requirements. 

Outcome 

• A logical, well-defined proposal for construction funding 

Duration 

This task typically takes three (3) weeks. 

Prepare and Submit the 

Capital Program Package 

4.1 

Prepare submission 

per Planning Call 

4.2 

Submit project 

for funding 

Project submitted 

to Capital Program 

Step 4 

118 
Program Development Study Phase 

4.2 Submit Project for Funding 

Upon completion of the PDS and the Prospectus package, the Regional Office must 

prioritize the proposal along with the other projects it is submitting in that year’s 

Capital Program. 

Recommended Activities 

Ensure that the project is well represented. 

•	 Be aware that a clearly defined Prospectus, with driving factors highlighted, 

has a stronger chance of receiving proper priority. 

Prepare to answer questions. 

•	 Be ready to respond promptly to Regional Management; GSA stakeholders in 

Washington, DC; and representatives in the OMB who may need additional 

detail or clarification. 

Outcomes 

• Submission of project to Capital Program 

• Committed and knowledgeable staff ready to answer questions as they arise 

Duration 

This task typically takes one (1) day. 

119