Frank F. Moss United States District Courthouse Annex, Salt Lake City UT 

Architect: Thomas Phifer & Partners 
Appendices

122 

Definitions 

11-(b): An 11-(b) is a congressionally requested study in which GSA reports to Congress regarding the housing needs of a specific 

locality. This study may or may not recommend a new project. If it does, then the need for the project must be justified through a study 

such as a Local Portfolio Plan or a Program Development Study. 

Allowance Document: The Allowance Document transfers the appropriated funds to the Region. 

Architect/Engineer (A/E): The A/E is the architecture/engineering firm selected to perform the design of a project. 

Asset Business Plan (ABP): The GSA Asset Business Plan is a Web-based asset management tool that provides building history and 

projections for many areas, including space and income, that are used to develop long-range strategies for the asset, reinvestment 

plans, and capital investment priorities. The ABP is a document that provides all information, strategy, and long-term plans necessary to 

manage the business of operating and optimizing an asset. 

Building Evaluation Report (BER): The Building Condition Assessment is done through a BER that documents the condition and 

deficiencies of a building. GSA will identify the BER work (called work items) that is to be addressed by the Program Development 

Study (PDS). However, a PDS also must recognize other impacted work that may not be fully described in the BER work items or 

the Feasibility Study. 

Building Owners and Managers Association (BOMA): BOMA provides information to and a network forum for industry professionals. 

Capital Investment and Leasing Program (CILP): The CILP is GSA‘s prescribed method for evaluating, proposing, and securing 

funding for capital projects. Feasibility Studies and Program Development Studies form the foundation of the Capital Program. 

Categorical Exclusion (CATEX): Under the National Environmental Policy Act, a CATEX is an action that normally does not require the 

preparation of an Environmental Assessment or an Environmental Impact Statement. 

Communications Plan: A Communications Plan identifies spokespersons for GSA, the customer agency, and stakeholders; schedules 

key communications to be disseminated in conjunction with project milestones; identifies potential issues; and includes strategies 

for responding to those issues. 

Computer-Aided Design (CAD): All new construction and major renovations entail drawings created in a standard GSA format, with 

the help of computer-based programs such as CAD. 

Cost Benchmark: A Cost Benchmark is the cost model, based on real, similar facilities, used to evaluate project costs for a similar 

type of building. 

Customer Billing Record (CBR): The CBR is the mechanism that GSA uses to establish rent billing and is based on the business 

terms contained in the Occupancy Agreement. 

Appendix A: Glossary 
123 

Delineated Area: This is the suitable area from which a site may be selected (for new construction) or a leased building may be 

located. A delineated area must satisfy the project‘s goals, GSA‘s Location Policy, applicable Executive Orders, and so forth. 

Design Excellence: For projects that require significant architectural and engineering treatment, programming direction must reflect 

GSA’s commitment to Design Excellence. General design principles and philosophies are presented in the architecture and interior 

design chapter of the Facilities Standards for the Public Buildings Handbook (Public Buildings Service, U.S. General Services 

Administration, September 1998.) 

Due Diligence: “Environmental Due Diligence” is a term that describes the responsibilities of a landowner, such as GSA, to conduct 

an appropriate inquiry prior to the purchase or development of a parcel of commercial real estate and ensure that all “recognized 

conditions” have been identified. 

Environmental Assessment (EA): The EA is a concise public document that is prepared pursuant to the National Environmental Policy 

Act (NEPA) to determine whether a federal action would significantly affect the environment and thus require preparation of a more 

detailed Environmental Impact Statement (EIS). It also 

• Briefly provides sufficient evidence and analysis for determining whether to prepare an EIS or a Finding of No Significant Impact (FONSI); 

• Aids in an agency’s compliance with the NEPA when no EIS is necessary, which leads to a FONSI; and 

• Facilitates preparation of an EIS when one is necessary. 

Environmental Impact Statement (EIS): The National Environmental Policy Act requires that federal agencies prepare an EIS for 

major projects or legislative proposals that significantly affect the environment. It is a decision-making tool that describes the positive 

and negative effects of the undertaking and lists alternative actions. An EIS is a detailed study that leads to a Record of Decision. 

It records decisions made and mitigation measures that relate to the environmental impacts of a project. 

Environmental Site Assessment (ESA): An ESA is a study of a property’s past use, the environmental conditions at the site and 

adjoining sites, and the likely presence of hazardous substances. An ESA can contribute to the “innocent landowner” defense under 

the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA). 

Facilities Standards for the Public Buildings Service (P-100): The P-100 is the primary GSA design criteria/standards document and 

is typically referenced for compliance in architecture/engineering firm contracts. 

Feasibility Study: GSA uses this study to evaluate Prospectus-level proposed projects to ensure that they meet tenant agency 

space needs and government-owned facility requirements. This study determines the preferred alternative and basis for preparing 

a Program Development Study, which will meet the housing needs of the customer agency. The Feasibility Study supports a 

Prospectus proposal for site/design funding. 

Funding Appropriation: Congress sets aside funding for a project or a particular use. 

Funding Authorization: Congress approves funding for a project or a particular use. (Funds must be authorized and appropriated 

before becoming available for a project.) 
124 

General Construction Cost Review Guide (GCCRG): The Public Buildings Service General Construction Cost Review Guide, which 

is generally published yearly, provides costs to construct space by space type, escalation and location factors by localities, and a 

system for developing Cost Benchmarks. 

Housing Plan: The housing plan identifies the customer agency’s space needs. 

Indefinite Delivery Indefinite Quantity (IDIQ) Contract: An IDIQ contract may be used to acquire services when exact times and/or 

quantities of future deliveries are not known at the time of the contract award. The IDIQ contract provides for an indefinite quantity, 

within stated minimum and maximum limits, of services to be furnished during a fixed period, with deliveries or performance to be 

scheduled by placing orders with the contractor. 

Input Document: An input document is a supporting document, study, or report used to complete the Feasibility Study. 

Leadership in Energy and Environmental Design (LEED): LEED is a national consensus-based, market-driven building rating system 

designed to accelerate the development and implementation of green building practices. GSA has adopted the LEED rating system 

of the U.S. Green Building Council as a measure for sustainable design. The P-100 and the Capital Investment and Leasing Program 

(CILP) require that all new and fully renovated building projects meet the criteria for basic LEED Certification (higher levels of 

achievement are Silver, Gold, and Platinum). 

Lease Construction: Lease construction refers to new construction of a facility for government use by the private sector in response 

to GSA’s formal solicitation for offers. The construction may be on either a preselected site assigned by GSA to the successful 

offeror or the offeror’s site. 

Local Portfolio Plan (LPP): The LPP is a document that provides the method for managing local portfolios and client needs within a 

specific locality. The LPP provides the basis for market considerations; long-term tenant needs; existing leased and owned facilities; 

and community considerations to make decisions related to markets, tenant housing, and hold/divest situations. 

Occupancy Agreement (OA): The OA is a complete, concise statement of the business terms governing the relationship between the 

Public Buildings Service and the customer agency for a specific space assignment.. The OA serves as a preview of the customer 

agency’s total rent charges. 

Planning Call: The Planning Call is issued annually in advance of the Capital Program submissions. It describes the content for each 

Feasibility Study and Program Development Study to be submitted that year. The specific format requirements of each Planning Call 

vary, but many of the same topics are included each year. 

Pro Forma: The investment pro forma analyzes the predicted return on investment and income potential of the project. 

Project Definition Rating Index (PDRI): The GSA project team performs a project evaluation, utilizing the Construction Industry 

Institute’s PDRI process, prior to submitting the Feasibility Study or Program Development Study for funding a capital project. 

This process determines the project team’s effectiveness in preparing a quality submission and assures minimization of risks and 

mitigation of potential negative issues. This self-evaluation aids in determining areas of project development that may need 

additional work or study prior to the project’s submission for funding. 

Appendix A: Glossary (cont.) 
125 

Project Management Plan (PMP): This is defined on the GSA/PBS Web site. For Project Management Plan requirements, 

visit the Web site. 

Prospectus: The Prospectus is a formal document sent to the Office of Management and Budget and Congress to receive funding 

authorization. It includes project scope information, budget, and schedule, plus a housing plan. This, if approved, results in authorization 

letters from both the House and Senate that approve the project, whereas an appropriations bill actually funds the project. 

Public Buildings Service (PBS): The General Services Administration’s (GSA) Public Buildings Service organization manages, owns, 

and constructs space for housing federal agencies. 

Site Directive (also referred to as Limited Site Directive): The Office of the Chief Architect issues the Site Directive either after the 

president’s proposed Budget (which includes the Site/Design Prospectus) is submitted to Congress or after Congress approves and 

the president signs the Budget. With receipt of the Site Directive, Regions are authorized to begin formal site selection actions (and 

acquisition and professional services procurement actions) up to the point of award. The award is contingent upon project authorization 

and funding appropriation by Congress. 

State Historic Preservation Officer (SHPO): The SHPO is the official appointed or designated pursuant to section 101(b)(1) of the 

National Historic Preservation Act to administer the state historic preservation program or a representative designated to act for the 

state Historic Preservation Officer. 

System for Tracking and Administering Real Property (STAR): STAR is GSA’s building inventory database for space management, 

leases, and rent billing. 

Total Building Commissioning: The National Conference on Building Commissioning has established an official definition 

of “Total Building Commissioning” as follows: 

“The systematic process of assuring by verification and documentation, from the design phase to a minimum of one year after 

construction, that all facility systems perform interactively and in accordance with the design documentation and intent, in 

accordance with the owner’s needs, including preparation of operating personnel.” 

Work Plan: The Work Plan is a key tool that the project team can use to manage the Feasibility Study and PDS process. 

The Work Plan includes information relating to a project’s staff, schedule, scope, budget, approvals, controls, and communications. 

Workplace 20-20 Program: This GSA research initiative examines and measures the relationship between workplace environments 

and productivity. The program aims to accumulate best practices for incorporation into future projects. 
Input Documents Repair and New Construction Leasing 

Alteration 

Studies/Surveys 

Accessibility Survey 

Agency Requirements/Requests or Judge/Courtroom and 

Any Court Model (Courthouse only) 

Appraisals 

Asset Business Plan (ABP) 

Blast Studies (Progressive Collapse & Glazing Protection) 

Building Evaluation Report (BER) or 

Existing Conditions Report (ECR) 

Building Preservation Plan (BPP) or other Historic Studies 

Construction Cost Estimate 

Cultural Resource Study 

Environmental Studies (EA, EIS) 

Fire Protection and Life Safety Assessment 

Floodplain Analysis 

Hazardous Materials Survey 

Housing Plans 

Local Portfolio Plan (LPP) 

Market Analysis 

Master Plan 

Occupancy Agreements (OAs) 

Parking Study Supplemental Data Sheet 

Appendix B: Input Documents 

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Input Documents Repair and New Construction Leasing 

Alteration 

Retention/Disposal Studies 

Seismic Studies 

Site/Geotechnical Studies 

Threat/Risk Assessment 

Wetland Determination 

Guidance/Codes 

Central Business District Map 

Congressional District Map 

Facilities Standards for the Public Buildings Service, 

P-100 (Latest Version) 

LEED Green Building Rating System 

Local Plans/Design Guidelines 

State/Local Regulations 

The Site Selection Guide 

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The Feasibility Study (FS) evaluates customer needs, facility requirements, options to meet both, and impacts to GSA’s inventory and 

business goals. Alternative scenarios are developed, evaluated, and used to define a recommended solution. 

The Feasibility Study process has a greater impact than the PDS on the success of the project because it defines the project’s basic 

parameters. Essentially, it defines what the project will be. Once the project’s direction and scope are committed, delaying key issues 

until the PDS stage is far too late. The biggest difference is that the FS generally deals with strategic-scale issues and macro-level 

data, while the PDS addresses tactical-level issues and uses more detailed data. The following checklist outlines the fundamental roles 

of the Feasibility Study by topic. 

Customer Considerations 

Customer Moves and Phasing 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). 

Housing Plans 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. 

Provides square-foot information for Occupancy Agreements (OAs) and pricing plans. 

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

Site/Design Prospectus. 

Pricing Policy 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). 

Physical Plant and Structure 

Building Systems and Envelopes Defines the project’s program goals and performance requirements, which influence 

systems decisions. 

Highlights special needs and alternative choices to meet those needs. 

Appendix C: Feasibility Study Checklist 
129 

Fire Protection Engineering and Life Safety 

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. 

Hazardous Materials 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. 

Life-Cycle Costing Compares the relative life-cycle costs of the alternatives. 

Security Requirements Establishes security-level requirements for the customer agency and the 

facility and the performance requirements for glass fragmentation, perimeter security, 

and so forth. 

Evaluates special requirements and costs associated with sensitive occupancy or 

facility types. 

Evaluates each alternative’s ability to meet security needs. 

Seismic Safety 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. 

Telecommunications and IT 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. 

Total Building Commissioning Determines appropriate building commissioning practice for the project and budgets 

for related costs. 

Identifies the process for quality assurance. 
Appendix C: Feasibility Study Checklist (cont.) 

Legacy Activities 

Art in Architecture Assesses the public nature of the building and the resulting public art opportunities. 

Determines the appropriate funding level for art. 

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

Includes a commissioning process in the submitted Project Management Plan. 

Design Excellence 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. 

First Impressions Identifies First Impressions enhancements that should be included in the 

capital project. 

Historic Resources 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 macro-level 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. 

NEPA 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. 

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Site Selection 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. 

Sustainable Design 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. 

Urban Development Proactively identifies community issues and opportunities to support goals. 

Begins informal consultations with local officials and stakeholders to create positive 

impacts and manage risks. 

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. 

Project Implementation 

Cost Estimates 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. 

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. 
Appendix C: Feasibility Study Checklist (cont.) 

Procurement Method Sets project delivery method. 

Confines delivery options based on parameters established in the Site/Design Prospectus. 

Project Management Plan (PMP) 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. 

Capital Program Support 

Asset Planning Evaluates broad alternatives that may impact multiple GSA properties and the community. 

Relies on the LPP and relevant ABPs. 

Budget Development Ensures that the site budget for future site acquisition is sufficient, based on macrolevel 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. 

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 GSA-provided 

security improvements. 

Financial Analysis 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. 

The Planning Call Provides analysis and a recommended alternative for the Site/Design Prospectus. 

Supports the recommendation of the delineated area cited in the 

Site/Design Prospectus. 

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Appendix D: PDS Checklist


The PDS takes the project developed in the Feasibility Study, affirms that it is still the best course of action; and develops a detailed 

implementation strategy, cost estimates, and design directives. These support the Construction Prospectus and the design start. 

The Feasibility Study generally deals with strategic-scale issues and macro-level data, while the PDS addresses tactical-level issues 

and uses more detailed data. The following checklist outlines the fundamental roles of the PDS by topic. 

Customer Considerations 

Customer Moves and Phasing Assesses micro-level alternatives, such as moves and planned buildouts within a building. 

Housing Plans Refines the housing plans to support the Construction Prospectus and the 

initiation of the design phase. 

Occupancy Agreements Refines the occupancy schedule, terms, and costs associated with customer buildouts. 

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

Pricing Policy 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 

Building Systems and Envelopes Makes general systems choices, based on performance and program requirements. 

Fire Protection Engineering and Life Safety 

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 Develops detailed costs and programs to address requirements regarding the treatment 

of hazardous materials. 

Life-Cycle Costing Considers multiple micro-level alternatives and compares the life-cycle costs of various 

options (especially regarding building systems choices). 

Security Requirements 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. 

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Appendix D: PDS Checklist (cont.) 

Seismic Safety Refines the project’s design strategy and costs to meet seismic performance requirements. 

Telecommunications and IT Develops budget and implementation strategies to support the Construction Prospectus. 

Total Building Commissioning Establishes the team for building commissioning. 

Refines the process for quality assurance. 

Develops budget for building commissioning, based on Commissioning Practice Level. 

Legacy Activities 

Art in Architecture Includes design directives for Art in Architecture. 

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

warrant additional funding. 

Design Excellence Ensures adequate construction funding to cover “the right scope” with appropriate 

fixtures, finishes, and site development. 

First Impressions Includes First Impressions projects in the overall project design and funding strategy. 

Historic Resources 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. 

NEPA Ensures that required NEPA mitigation measures that affect the construction budget or 

schedule are incorporated into the construction request. 

Site Selection 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 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. 

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Urban Development 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, and other activities as needed. 

Project Implementation 

Cost Estimates 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 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) 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. 

Capital Program Support 

Asset Planning Evaluates more focused micro-level alternatives, often within a single GSA property. 

Relies most heavily on ABPs. 

Budget Development 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 Provides sound estimates for construction cost and implementation analysis, including 

sufficient estimates required to compare the preferred alternative to other viable alternatives. 

The Planning Call Supports the Construction Prospectus. 
Appendix E: FS & PDS Team Roles/Responsibilities and Worksheets


Roles/Responsibilities FS PDS 

Team Leader 

The FS/PDS team leader can be from any discipline, including, real estate, asset management, or 

project management, as long as he or she has thorough knowledge of project development, the Capital 

Program, client needs development, team management, and asset planning. Typically, the Feasibility 

Study team leader is an Asset Manager, and the PDS team leader is a Program Manager. 

Some of these duties also can be accomplished by other GSA staff and consultants. The team leader 

allocates distribution of duties and is responsible for the overall project effort. 

• Understands overall GSA and project goals, complexity, and issues and has the expertise required 

to address them effectively. 

• Plans, coordinates, leads, and assigns tasks to team. 

• Knows requirements of Capital Program and how to perform the required analysis. 

• Ensures that project submittal (e.g., FS, PDS) meets the information requirements of the Planning 

Call and supplies good background information for long-term management of the process. 

• Develops public outreach communications strategies that might be required. 

• Understands the stakeholder’s point of view and sets realistic client and community expectations 

early in the project. 

• Ensures a creative and determined look at viable alternatives. 

Project Manager 

An experienced Project Manager is a valuable resource to lead or advise the team during 

project planning. 

• Advises the team on appropriate FS and PDS scopes to address project needs and issues and on 

the professional services that are required to complete the work. 

• Provides expertise to identify potential risks to the project’s schedule and budget that should be 

accounted for during project planning. 

• Evaluates viable alternatives in FS and PDS to ensure appropriate assessments. 

• Develops the Implementation Plan and project delivery strategy. 

• Develops the Project Management Plan (PMP). 

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Roles/Responsibilities FS PDS 

Asset/Portfolio Manager 

• Supplies expertise on the goals and requirements of the Capital Program. 

• Supplies expertise on the business goals of affected assets (e.g., Asset Business Plans 

and Local Portfolio Plan). 

• Ensures that viable alternatives and proposed project are developed in concert with local 

portfolio goals. 

• Leads financial analysis required of the Planning Call. 

• Ensures that outside stakeholder concerns are addressed during project development 

(e.g., consideration of local plans). 

Communications Specialist 

• Works with the team leader to develop the project’s Communications Plan. 

• Assists in outreach to community and stakeholders. 

• Drafts communications for release to the public and the media. 

• Assists the team leader with the development and release of all external 

and internal communications. 

Local GSA Regional Officer/Urban Development Specialist 

This person may be an Asset Manager, Realty Specialist, Property Manager, or Project Manager, 

but should have good local relationships and an understanding of how the project may affect 

local context and plans. 

• Provides the team input and guidance regarding the coordination with local communities 

and stakeholders. 

• Identifies local entities that can bring alternate sites or solutions to bear on the project planning, 

including opportunities to coordinate with local activity. 

• Coordinates meetings with local officials, development organizations, and other stakeholders to 

provide input for the project team. 

• Ensures that potential future issues or controversies are addressed early and included in the 

alternatives‘ analysis. 

• Helps to set realistic client and local stakeholder expectations about the project. 
Appendix E: FS & PDS Team Roles/Responsibilities and Worksheets (cont.) 

Roles/Responsibilities FS PDS 

Regional Counsel 

This is a team support member who is called upon as needed for legal advice and may not 

accompany the team in its daily efforts. 

• Provides legal advice to the team to assist in project strategy and budgeting (especially regarding 

projects that propose site acquisition, relocation, or potential controversies). 

Regional Environmental Quality Advisor 

• Provides technical advice to the team. 

• Manages and reviews all GSA NEPA analyses. 

• Acts as primary contact for NEPA activities and oversees NEPA process for projects in the Region. 

Regional Fine Arts Officer 

This team member is the regional expert on all matters pertaining to fine art and related program policies 

and procedures. 

• Directs implementation of the Art in Architecture program for the Regional Office. 

• Assures reference of the Art in Architecture program in all budget estimates and appropriate 

documents, including the PDS and design directives. 

• Communicates and coordinates with the Center for Design Excellence and the Arts and works in 

tandem with the Center to accomplish program goals. 

• Implements the community liaison effort for each Art in Architecture project, in consultation with 

the project team and associates from the Center for Design Excellence and the Arts. 

Regional Historic Preservation Officer 

• Determines need for archaeological/cultural resource studies. 

• Communicates and coordinates with SHPO and Advisory Council on Historic Preservation. 

• Reviews consultants’ reports and summarizes results and recommendations. 

• Acts as the Contracting Officer’s Technical Representative (COTR) for consultants’ contracts. 

• Participates in and/or leads public meetings regarding the cultural resources impacted by the 

project, for example, historic buildings or districts, archaeological resources. 

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Roles/Responsibilities FS PDS 

Regional Fire Protection Engineer 

• Engaged in all aspects of the project planning and is empowered to make decisions affecting fire 

protection and life safety strategies for the project. 

• Evaluates, presents, and suggests fire protection and life safety strategies that address potential 

risk exposures to loss of life or property, or federal tenant mission interruption from fire. 

• Provides specialized fire protection and life safety expertise throughout the project (e.g., planning, 

concepts, design, construction, commissioning). 

• Ensures that all fire protection and life safety systems are complete, inspected, fully tested, and approved. 

• Ensures that all outstanding fire and life safety deficiencies have been corrected. 

• Issues Certificate of Occupancy prior to occupancy. 

Regional Realty Representative or Designee 

This person participates as the customer agency liaison. This person (or persons) should have strong 

working relationships with all customers affected by the project. 

• Serves as expert on and liaison regarding customer needs and issues. 

• Provides expertise on local market conditions or trends that may impact project planning. 

• Helps to set the customer’s expectations in project development. 

• Applies knowledge of local players to recommend local stakeholders who should be consulted. 

Customer Agency Representative 

• Evaluates, presents, and suggests strategies to meet customer needs. 

• Remains engaged in all aspects of project planning and is empowered to make decisions 

affecting project planning and evaluation of alternatives. 

• Assists the project team in explaining project drivers to the internal agency and 

outside stakeholders. 
Appendix E: FS & PDS Team Roles/Responsibilities and Worksheets (cont.) 

Roles/Responsibilities FS PDS 

Architect/Engineer/Interior Designer 

Architect/Engineer/Interior Designer services are an invaluable part of project planning—to help 

assess and strategize approaches to specific needs and develop general implementation strategies. 

• Evaluates customer needs and goals, develops the program goals, and analyzes the ability of 

existing buildings to meet those goals. 

• Develops layouts and test fits to meet customer needs in new or existing buildings and sites. 

• Develops cost estimates with shell and tenant improvements (TIs) broken out separately, to inform 

Occupancy Agreements (OAs). 

• Ensures that alternatives‘ analysis has a complete base of information for general and specialized 

needs (e.g., seismic, systems efficiencies). 

• Takes the lead in the technical analysis of alternatives. 

• Ensures that proposed budgets are appropriate for project phasing, underlying issues and 

conditions, and other items. 

• Provides specialized expertise as needed during project planning (e.g., civil engineering, blast, 

geotechnical, seismic, archaeological, preservation, and NEPA specialists). 

Real Estate Appraiser 

• Gathers ownership information for any affected sites. 

• Establishes appropriate rental rates for OAs and financial analysis. 

• Develops sound estimates of the future acquisition and relocation costs of needed sites. 

Security Assessment Specialist 

• Verifies all federal security requirements. 

• Coordinates federal security requirements with fire protection engineering and life safety 

requirements. 

• Meets with the Regional GSA Fire Protection Engineer. 

• Ensures that proper security design criteria, setbacks, and so forth are incorporated into site plans 

and Feasibility Studies. 

• Provides crime statistics and special security studies as required. 

• Inspects sites with the project team and assists in analyzing the security risks and costs 

associated with each site. 

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Roles/Responsibilities FS PDS 

Construction Consultant 

• Provides detailed cost estimating. 

• Ensures constructability. 

Environmental Due Diligence Consultant 

Most regions use an umbrella environmental services contract. 

• Conducts NEPA study. 

• Conducts Phases I, II, and III Environmental Site Assessments, as required. 

• Assists with NHPA, archaeological, and cultural resource studies, as required. 

Real Estate Broker/Consultant 

• Assists in locating sites and providing demographic information. 

• Assists in title search, market research, and trends analysis. 

• Investigates viable sites and provides solid estimates of future acquisition cost, assessments of 

likely availability, and other documents. 

Using the FS & PDS Team Roles/Responsibilities Worksheets 

The team leader may use the following Worksheet to develop a complete roster of GSA team and contractor roles/expertise and to 

identify the appropriate level of responsibility for each team member for each step of the project. This exercise provides information 

to manage individual and team member activities, support efficient coordination across the team, and keep the activities moving 

smoothly and on schedule. 

To complete the Worksheet, select the appropriate roster of GSA team members and contractors for the project (adding or deleting 

roles as required). The descriptions of team roles and responsibilities on the previous pages may be helpful. Next, identify the level of 

responsibility for each step of their involvement. Finally, share the completed Worksheet with all GSA team members and contractors. 

The six levels of project responsibility are listed below. 

1. Authorizes and/or actuates 

2. Approves 

3. Performs 

4. Recommends and/or reviews and counsels 

5. Must be notified or consulted 

6. Receives documentation 

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Appendix E: FS Team Roles/Responsibilities Worksheet 

Team 

Selected for project team Leader

Asset/ 

Portfolio 

Manager 

Communications 

Specialist 

Urban 

Development 

Specialist 

Project 

Manager 

Regional 

Counsel 

Regional 

Environmental 

Quality Advisor 

Step 1: Confirm Readiness 

1.1 Assess basic needs 

and supporting data 

1.2 Affirm FS funds and schedule 

1.3 Assemble GSA and customer FS team 

1.4 Develop a Work Plan and 

a Communications Plan 

Step 2: Develop the Scope of Work/Select Feasibility Study Contractors 

2.1 Develop the scope of work 

2.2 Choose in-house or 

contracted services 

Step 3: Conduct the Feasibility Study 

3.1 Begin discussions with stakeholders 

3.2 Establish project goals 

and requirements 

3.3 Define alternatives 

3.4 Evaluate viable alternatives 

3.5 Identify and develop the 

preferred alternative 

3.6 Prepare the Implementation Plan 

3.7 Produce the budget 

Step 4: Prepare and Submit the Site/Design Prospectus Package 

4.1 Prepare Capital Program submission 

(including PDRI) 

4.2 Submit project for funding 
Regional Regional Historic Regional Regional Customer Architect/ Security Environmental Real Estate 

Fine Arts Preservation Fire Protection Realty Agency Engineer/ Real Estate Assessment Construction Due Diligence Broker/ 

Officer Officer Engineer Representative Representative Interior Designer Appraiser Specialist Consultant Consultant Consultant 

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Appendix E: PDS Team Roles/Responsibilities Worksheet 

Team 

Selected for project team Leader

Asset/ 

Portfolio 

Manager 

Communications 

Specialist 

Urban 

Development 

Specialist 

Project 

Manager 

Regional 

Counsel 

Regional 

Environmental 

Quality Advisor 

Step 1: Confirm Readiness 

1.1 Affirm project status and 

PDS resources 

1.2 Assess supporting documents 

1.3 Assemble the PDS team 

1.4 Update the PMP and develop the 

Work Plan and Communications Plan 

Step 2: 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 

Step 3: 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 

Step 4: Prepare and Submit the Capital Program Package 

4.1 Prepare submission per 

Planning Call 

4.2 Submit project for funding 
Regional Regional Historic Regional Regional Customer Architect/ Security Environmental Real Estate 

Fine Arts Preservation Fire Protection Realty Agency Engineer/ Real Estate Assessment Construction Due Diligence Broker/ 

Officer Officer Engineer Representative Representative Interior Designer Appraiser Specialist Consultant Consultant Consultant 

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The key to successful Feasibility Studies and Program Development Studies (PDSs) is a complete, customized, and focused 

scope of work (SOW). The best SOWs are those that are passed along from project team to project team, enhanced, and refined to 

address project-specific needs. 

The project management network is the best source for SOWs upon which to build a scope of work. Other Project Managers can 

provide valuable insight into how their scopes worked in developing their studies, how much they cost, and what they might change 

to make them more effective. 

Sample SOWs are available via other Project Managers and via the Construction Excellence and Project Management Division‘s 

Web site (contact the relevant OCA representative). 

Appendix F: GSA’s Standard Scopes of Work 
Appendix G: GSA Organizations and Resources


The following are the best GSA Public Buildings Service resources for technical, organizational, and project management advice 

during project planning. All represent experts in the field, and all have Web-based resources and tools. 

To access these resources directly, visit the home Web page for each organization and the PBS intranet site. 

Office of Applied Science 

• Provides guidance on NEPA, sustainable design (LEED), and property management. 

• Provides key tools for project planning, including the NEPA Desk Guide and LEED Green Building Rating System. 

• Provides guidance on the application of P-100 with regard to GSA fire protection engineering and life safety requirements. 

• Provides guidance on the application of P-100 with regard to Codes to utilize for projects. 

• Serves as the liaison between GSA and Local Building Code and Fire Code Officials on fire protection and life safety issues. 

• Provides guidance on Workplace 20-20 and sponsors the Workplace 20-20 process for developing an integrated workplace. 

Office of the Chief Architect 

Border Station Center 

• Provides guidance on the management of the border station construction program, including strategic planning, budgeting, 

benchmarking, and design guidance. The Border Wizard model is a key tool. 

Center for Courthouse Programs 

• Provides guidance on all levels of development of courthouse projects between GSA and OMB, AOC and Congress and 

serves as a liaison between all new courthouse projects. 

• Provides training for Project and Asset Managers regarding the latest U.S. Courts and U.S. Marshals requirements. 

• Provides benchmarks for Feasibility Studies and program submissions. 

Center for Design Excellence and the Arts 

• Provides guidance on A/E and artist selections under the Design Excellence and Art in Architecture programs, which can help 

shape project management strategies and budgets. 

• Manages National Peer Review program for projects in the design phase. 

• Provides such key tools as desk guides for Design Excellence and charrettes on special projects. 

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Center for Federal Building and Modernization 

• Provides guidance on project development, the application of P-100, and evaluation of non-financial criteria for the 

Capital Program. 

• Provides key tools for project planning, including P-100, The Site Selection Guide, and General Construction Cost Review Guide. 

• Provides energy goals. 

Center for Historic Buildings 

• Provides technical, collaborative, and management guidance in all phases of project development that involve historic buildings. 

• Supports Regional Historic Preservation Officers. 

• Manages a network of experts who offer help with historic preservation issues. 

• Serves as the liaison between GSA and national preservation bodies, including the Advisory Council on Historic Preservation and 

the National Trust for Historic Preservation. 

• Features the GSA Preservation Desk Guide; a technical database; and online project management tools, including contract 

language for contractor qualifications, solicitation language for E.O. 13006, and scopes of work for preservation projects. 

Construction Excellence and Project Management Division 

• Provides training and project management workshops that develop skills in all aspects of project development, from preliminary 

development through procurement and project delivery. 

• Comprises a network of Project Managers (with listserv) who offer help with project development issues. 

• Includes such tools as model scopes of work for Feasibility Studies, Program Development Studies, and Project Management Plans, 

as well as the Building Commissioning Guide. 

Urban Development/Good Neighbor Program 

• Provides training, best practices, and on-site project assistance to PBS staff working with communities on Good Neighbor issues 

during project scope development, design, and execution. 

• Comprises a network of Regional Urban Development Officers and national partner organizations (e.g., International Downtown 

Association, National Main Street Center) to help develop strategies and implement projects that support communities. 

• Provides the CivicSquare—Urban Development/Good Neighbor Insite and various urban policy and technical guidance. 

Appendix G: GSA Organizations and Resources (cont.) 
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Office of Real Property Asset Management 

• Issues the Planning Call to guide development of the annual Capital Investment and Leasing Program (Capital Program) 

submission. 

• Receives regional program submissions and prepares the national Capital Program for submission to OMB. 

• Provides training in TAPS, LPP, pro forma, Prospectus, PBS’s Pricing Policy, and OA preparation and other tools for 

the Capital Program. 

• Provides guidance to regional Real Property Asset Management Offices and serves as a liaison to GSA’s stakeholders in Congress 

and OMB. 

• Provides key tools for project development, including the Planning Call and the Real Property Asset Management intranet site. 

• Oversees and guides portfolio analyses and retention/disposal decisions for GSA assets. 
Appendix H: Major Federal Laws,


Executive Orders, Regulations, and GSA Directives


Real Property Acquisition Uniform Relocation Assistance and Real Property Acquisition Policies Act, 42 U.S.C. 

§§ 4601–4655; and implementing regulations in 49 CFR, Part 24 

40 U.S.C. §§ 3301–3315 (formerly the Public Buildings Act of 1959, 40 U.S.C. §§ 601–619) 

Federal Management Regulation Part 102–73—Real Estate Acquisition, 

41 CFR, Part 102–73 

PBS Commissioner’s Memorandum, “Implementation of the Interagency Security 

Committee (ISC) Design Criteria Regarding Site Selection,” April 26, 2002 

Location, Consultation, & Coordination Rural Development Act, 7 U.S.C. § 2204b-1 

Farmlands Protection Act, 7 U.S.C. §§ 4201 et seq. 

40 U.S.C. §§ 901–905 (formerly the Federal Urban Land Use Act, 40 U.S.C. §§ 531–535) 

Federal Management Regulation Part 102–83—Location of Space, 41 CFR, Part 102–83 

E.O. 11988, “Floodplain Management,” May 24, 1977 

E.O. 12072, “Federal Space Management,” August 16, 1978 

E.O. 13006, “Locating Federal Facilities on Historic Properties in Our Nation’s Central 

Cities,” May 21, 1996 

Historic Preservation American Indian Religious Freedom Act, 42 U.S.C. §§ 1996–1996a 

Archaeological Resource Protection Act, 16 U.S.C. §§ 470aa–470mm 

Federal Management Regulation Part 102–78—Historic Preservation, 41 CFR, Part 102–78 

National Historic Preservation Act, 16 U.S.C. §§ 470 et seq. 

Native American Graves Protection and Repatriation Act, 23 U.S.C. §§ 3001 et seq. 

Religious Freedom Restoration Act, 42 U.S.C. §§ 2000bb–2000bb-4 

E.O. 13007, “Indian Sacred Sites,” May 24, 1996 

Environmental Protection Clean Air Act, 42 U.S.C. §§ 7401 et seq. 

Clean Water Act, 33 U.S.C. §§ 1251–2 et seq. 

Coastal Zone Management Act, 16 U.S.C. §§ 1451 et seq. 

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Comprehensive Environmental Response, Compensation, and Liability Act, 

42 U.S.C. §§ 9601 et seq. 

Endangered Species Act, 16 U.S.C. §§ 1531 et seq. 

Energy Policy Act, 42 U.S.C. § 13201 et seq. 

Fish and Wildlife Coordination Act, 16 U.S.C. §§ 661 et seq. 

National Environmental Policy Act, 42 U.S.C. §§ 4321 et seq. 

Resource Conservation and Recovery Act, 42 U.S.C. § 6962 et seq. 

Safe Drinking Water Act, 42 U.S.C. §§ 300f et seq. 

Solid Waste Disposal Act, 42 U.S.C. §§ 6901 et seq. 

Toxic Substance Control Act, 15 U.S.C. §§ 2601 et seq. 

Wild and Scenic Rivers Act, 16 U.S.C. §§ 1271 et seq. 

E.O. 11514, “Protection and Enhancement of Environmental Quality,” March 5, 1970; 

as amended by E.O. 11991, May 24, 1977 

E.O. 11593, “Protection and Enhancement of Cultural Environment,” May 13, 1971 

E.O. 11990, “Protection of Wetlands,” May 24, 1977 

E.O. 12088, “Federal Compliance With Pollution Control Standards,” October 13, 1978; 

as amended by E.O. 12580, January 23, 1987 

E.O. 12580, “Superfund Implementation,” January 23, 1987; as amended by E.O. 12777, 

October 18, 1991, and E.O. 13016, August 28, 1996 

E.O. 12898, “Federal Actions to Address Environmental Justice in Minority Populations 

and Low-Income Populations,” February 11, 1994 

E.O. 13101, “Greening the Government Through Waste Prevention, Recycling, 

and Federal Acquisition,” September 14, 1998 

E.O. 13123, “Greening the Government Through Efficient Energy Management,” 

December 2, 1999 

E.O. 13148, “Greening the Government Through Leadership in Environmental 

Management,” April 21, 2000 

Fire Protection and Life Safety Fire Administration Authorization Act of 1992 (Fire Safety Act) 
Appendix I: Professional Organizations and Resources


Community Planning and Development 

International Downtown Association (IDA) 

1250 H St. NW, 10th Floor 

Washington, DC 20005 

Phone: 202-393-6801 / Fax: 202-393-6869 

www.ida-downtown.org 

IDA is a world leader and champion for vital and livable urban centers. It nurtures community-building partnerships and helps create 

healthy and dynamic centers that anchor the well-being of towns, cities, and regions throughout the world. It is a key GSA partner 

and good supplemental source for identifying local stakeholders. 

National Charrette Institute (NCI) 

3439 NE Sandy Blvd., Suite 349 

Portland, OR 97232 

Phone: 503-233-8486 / Fax: 503-233-1811 

info@charretteinstitute.org 

www.charretteinstitute.org 

NCI leads charrettes (community-oriented design workshops) and provides training in the collaborative planning process. NCI would 

be a good resource for developing the collaborative and communications skills of a project team prior to the design process. 

Sustainable Design 

U.S. Green Building Council (USGBC)/LEED 

1015 18th St. NW, Suite 805 

Washington, DC 20036 

Phone: 202-82-USGBC or 202-828-7422 / Fax: 202-828-5110 

info@usgbc.org 

www.usgbc.org 

USGBC is a coalition of leaders from across the building industry working to promote buildings that are environmentally responsible, 

profitable, and healthy places to live and work. USGBC developed and continues to refine the LEED (Leadership in Energy and 

Environmental Design) rating system for “green” buildings. 

Historic Preservation 

National Main Street Center of the National Trust for Historic Preservation 

1785 Massachusetts Ave. NW 

Washington, DC 20036 

Phone: 202-588-6219 / Fax: 202-588-6050 

mainstreet@nthp.org 

www.mainstreet.org 

The National Main Street Center works with communities across the nation to revitalize their historic or traditional commercial 

areas. Main Street works with more than 1,000 communities and may be a good supplemental resource for identifying local 

stakeholders, especially for projects that may affect historic resources or areas. 

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National Trust for Historic Preservation (NTHP) 

1785 Massachusetts Ave. NW 

Washington, DC 20036 

Phone: 202-588-6000 / Fax: 202-588-6038 

www.nationaltrust.org 

NTHP is the leader of the vigorous preservation movement that is saving the best of our past for the future. Activities include 

preservation advocacy services to local communities where historic resources are threatened. The Web site includes informative 

case studies and local contract information to supplement existing local contacts. 

Advisory Council on Historic Preservation (ACHP) 

1100 Pennsylvania Ave. NW, Suite 809 

Old Post Office Building 

Washington, DC 20004 

Phone: 202-606-8503 / Fax: 202-606-8672 

achp@achp.gov 

www.achp.gov 

ACHP promotes the preservation, enhancement, and productive use of our nation’s historic resources and advises the president 

and Congress on national historic preservation policy. 

Real Estate 

Appraisal Institute (AI) 

550 W Van Buren St., Suite 1000 

Chicago, IL 60607 

Phone: 312-335-4100 / Fax: 312-335-4400 

www.appraisalinstitute.org 

AI is a worldwide organization dedicated to real estate appraisal education, publications, and advocacy. AI is valuable primarily 

as a technical and professional development tool for the project team’s on-staff Appraiser. 

Building Owners and Managers Association (BOMA) International 

1201 New York Ave. NW, Suite 300 

Washington, DC 20005 

Phone: 202-408-2662 / Fax: 202-371-0181 

www.boma.org 

BOMA provides information to and a network forum for industry professionals. BOMA may be a valuable technical resource for the 

PDS contractor in developing specific design directives with the most relevant industry knowledge.