United States Courthouse, Mobile AL 


Architect: Moshe Safdie & Associates

Feasibility Study Phase


A Long-Term Foundation 

The Feasibility Study process has the single greatest 

influence on a project’s 

development for success. 

Years after its completion, 

the quality of the Feasibility 

Study continues to 

support or constrain the 

project team’s response to 

unforeseen conditions, 

revised customer needs, 

customer expectations, 

and site acquisition. 

Feasibility Study Phase


Overview of the Feasibility Study Phase 

In GSA’s Capital Investment and Leasing Program (CILP), the Feasibility Study 

supports a request for site and design funding. In this, the GSA project team, their 

customer, and, sometimes, national stakeholders consider alternatives and set a course 

for the project. The recommended alternative sets a sound basis for project design, 

execution, and budget parameters for design and for site acquisition. 

The Feasibility Study defines project goals, scopes customer need, and assesses 

alternatives to satisfy both. GSA has standard scopes of work that describe detailed 

deliverables that can be customized to meet each project’s needs (see “Appendix F”). 

A Feasibility Study should be completed for all GSA capital projects—whether initiated 

by GSA’s internal planning or congressional requests to evaluate community needs, 

such as an 11-(b) request. The only exceptions are limited-scope projects. 

This Guide suggests a process to begin, conduct, and complete a successful 

Feasibility Study and to deliver a funding request for a successful project. (See Exhibit 

4.1: Feasibility Study Process and Exhibit 4.4: Feasibility Study Process Schedule). 

The Feasibility Study phase comprises these basic steps: 

Recommended Activities 

Step 1 Confirm Readiness 

Determines whether a project is “ripe” for a Feasibility Study. 

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

Authorizes the development of the scope, as appropriate for the project’s needs 

and evaluation. 

Step 3 Conduct the Feasibility Study 

Works with customers and stakeholders to develop and evaluate alternatives and to 

create the Implementation Plan. This is the heart of the Feasibility Study. 

Step 4 Prepare and Submit the Site/Design Prospectus Package 

Develops the submittal Prospectus package for site and design funding. 

Outcome 

• Submission of project to Capital Program for funding 

Duration 

This entire Feasibility Study phase typically takes twenty-five (25) weeks. 

53 
Exhibit 4.1: Feasibility Study Process

Step 1 Step 2 Step 3 Step 4 

Confirm Develop the Scope of Work / Conduct the Feasibility Study Prepare and Submit the Site / 

Readiness Select Feasibility Study Contractors Design Prospectus Package 

Resources 

assembled 

Contractor or 

GSA staff on board 

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 

4.1 

Prepare Capital Program 

submission (including PDRI) 

4.2 

Submit project 

for funding 

2.1 

Develop the scope of work 

2.2 

Choose in-house or 

contracted services 

1.1 

Assess basic needs 

and supporting data 

1.2 

Affirm Feasibilbity Study 

funds and schedule 

1.3 

Assemble GSA and customer 

Feasibility Study team 

1.4 

Develop a Work Plan and a 

Communications Plan 

Feasibility Study 

completed 

Project submitted to 

Capital Program 

54 
Exhibit 4.2: Keys for Feasibility Study Success


Set Expectations 

The GSA team, rather than the Feasibility Study contractor, acts as the leader and sets expectations. Feasibility Study expectations 

often last throughout the project’s lifetime. Make sure that all stakeholders understand the Feasibility Study process and 

the status of alternatives. A customer or community who understands the process and their role can be the project’s greatest ally. 

Customize the Scope of Work 

Standard scopes of work are invaluable tools, but only a starting point. Ensure that each Feasibility Study is focused, complete, 

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

Emphasize the Project Management Plan 

Create a Project Management Plan at the beginning of the Feasibility Study process and update it throughout. Use the PMP as a 

tool to focus the efforts of the team, the customer, and the contractor. 

Ensure In-House Knowledge 

GSA holds responsibility for the general understanding of the project, from housing plans and phasing, to community coordination 

and procurement methods. GSA’s in-house team must have in-depth knowledge of the project and be able to answer questions 

in support of the project throughout the approval process. The team may hold important roles in the future (during the site 

selection, design, or construction phases) and continue to support the project over the long term. The Feasibility Study contractor 

develops project costs, but the regional Office of Real Property Asset Management must conduct the analyses required for 

the Capital Program. 

Keep the Feasibility Study Team Engaged 

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

strategy, ensure an effective Feasibility Study, and manage expectations prior to the Capital Program submission. After the 

program is submitted, the team should be ready to respond to questions from national stakeholders. 

Evaluate a Broad Range of Alternatives 

Examine all reasonable options to meet customer needs and project requirements. Start broadly and refine the alternatives during 

the Feasibility Study. Only limited-scope projects, such as single-system projects, should begin the Feasibility Study with predefined solutions. 

Conduct the PDRI Process 

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

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

55 
Step 1: Confirm Readiness


Through the ongoing management of GSA facilities and customer needs, it is an Asset 

Business Team that usually identifies when major capital projects are warranted 

to meet new or changing needs. For all courthouse projects, Feasibility Studies should 

be performed in accordance with the Administrative Office of the U.S. Courts’ 

(AOUSC) 5-Year Plan. 

First, the team leader must determine whether the project is “ripe” to begin a Feasibility 

Study. This informal assessment is based on the professional judgments of GSA 

staff and is determined by their collective knowledge of customer needs, facility 

requirements, and the available resources to satisfy both. It considers customer needs, 

asset condition and supply, and the availability of people and resources to conduct 

an effective study. Property Managers, Realty Specialists, and Portfolio Managers, 

those closest to the customer’s needs, are key information sources. Relevant documents 

include Building Evaluation Reports (BERs), Building Preservation Plans (BPPs), 

Asset Business Plans (ABPs), and Local Portfolio Plans (LPPs). 

Readiness is confirmed when the team leader determines that the facility requirements 

or customer needs can only be met through a Prospectus-level project. 

The Feasibility Study team leader assembles a team, establishes a basic understanding of 

the project’s drivers, uses this to scope an effective approach, and develops a Work Plan 

and a schedule to guide the study through completion. 

Recommended Activities 

1.1 Assess basic needs and supporting data 

Focus on GSA’s understanding of customer needs and the availability 

of existing resources. 

1.2 Affirm Feasibility Study funds and schedule 

Ensure availability of funds and the viability of schedule. 

1.3 Assemble GSA and customer Feasibility Study team 

Gather GSA experts to support the project. 

1.4 Develop a Work Plan and a Communications Plan 

Create a Work Plan that addresses the scope, schedule, approval process, 

and budget for the Feasibility Study. Develop a Communications Plan to manage 

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

support the schedule; and enhance coordination within the team and with the 

customer agency. 

Step 1 

Confirm 

Readiness 

Resources 

assembled 

1.1 

Assess basic needs 

and supporting data 

1.2 

Affirm Feasibilbity Study 

funds and schedule 

1.3 

Assemble GSA and customer 

Feasibility Study team 

1.4 

Develop a Work Plan and a 

Communications Plan 

56 
Ready to Begin? 

At this early stage, the 

Feasibility Study team 

assesses four key areas: 

•	 What they know. 

•	 What they need to know 

more about. 

•	 Where the project can 

be located. 

•	 Who can help them. 

Who Leads the Team? 

Most regions develop 

the Capital Program 

in their regional Office of 

Real Property Asset 

Management. Consequently, 

the Asset Business 

Manager who leads the 

Asset Business Team 

for the affected buildings 

is often named the 

Feasibility Study team leader. 

Feasibility Study Phase 

Outcome 

• Confirmation of adequate resources available to conduct the study 

Duration 

This task typically takes two (2) weeks. 

1.1 Assess Basic Needs and Supporting Data 

This step focuses on understanding basic needs and assessing the impact of meeting 

those needs with existing assets (e.g., buildings and projects). The Feasibility Study 

team leader uses a number of documents to make this assessment, but this task involves 

more than reviewing documents. The team leader often confers with others who have 

more detailed and up-to-date information about the asset, the customer’s requirements, 

and local conditions. By gathering and reviewing all information, the team leader gains 

a solid understanding of the project’s background, builds an effective Feasibility Study 

team, and tailors the scope of work. 

Recommended Activities 

Review background information and documents. 

•	 Identify what studies are already on hand. Look for existing studies that address 

key portions of the relevant needs and affected facilities. For a list of typical 

supporting studies that can provide background information, see “Appendix B: 

Input Documents.” 

•	 Determine the key needs, issues, and asset plans that must be fully investigated. 

•	 Assemble all of the information that will be provided to the Feasibility


Study contractor.


Manage customer expectations. 

•	 Talk with the customer about the Feasibility Study process and how their needs 

could be met. Discover whether they have any assumptions about how to 

meet their needs, such as a new building or a particular site. Ensure that some 

alternatives are not being ruled out without thorough evaluation. 

•	 Discuss where the customer prefers to be located and whether this conforms to 

relevant policies and regulations. Develop a plan to reconcile any differences. 

•	 Encourage candid discussions and an open-minded approach so the team can 

pursue the best project without dashing expectations later. 

57 
Feasibility Study Phase 

Identify gaps in knowledge. 

•	 Determine the need to commission any special studies (e.g., seismic, progressive 

collapse, blast, historic preservation) before beginning the Feasibility Study. 

Include these special studies within the scope of work and coordinate with the 

project Work Plan and schedule. 

•	 Concentrate on understanding key issues, uncertainties, expectations, and basic 

project drivers by talking with GSA, the customer, and other stakeholders. Many 

of these persons may join the Feasibility Study team later; tap their knowledge 

now to help shape the approach and the scope of work. 

Outcomes 

• Adequate understanding of projection conditions 

• Identification of gaps in background documentation 

• Key elements for the scope of work 

• Background information to shape the Feasibility Study team composition 

Duration 

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

• Availability of staff members and documents 

1.2 Affirm Feasibility Study Funds and Schedule 

The Feasibility Study team leader must ensure that adequate resources and time are 

available to prepare the Feasibility Study and the Site/Design Prospectus properly. The 

team leader and regional management must gauge the customer’s own priorities and 

level of support for this work effort and timetable. 

Recommended Activities 

Assess status of the customer’s basic needs. 

•	 Affirm that the customer supports a design request for the proposed year. 

If not, determine whether regional resources for the upcoming Capital Program 

submission should be shifted to another project. For new courthouse construction, 

be sure to follow the directed Planning Call (based on the AOUSC’s 5-Year Plan). 

Confirm timely completion. 

•	 Ensure that sufficient BA61 (regional operating) funds are set aside to pay for the 

Feasibility Study and any supporting studies that are required. 

Omaha, NE 

GSA collaborated with the 

city on a donated site for 

a build-to-suit National Park 

Service (NPS) building. 

This building was planned 

as an important early 

anchor for Omaha’s 

waterfront redevelopment, 

and the site was ideal for 

NPS’s interpretive programs. 

GSA convened a community workshop and 

incorporated the city’s 

needs into the competitive 

procurement. The customer 

has the right site, and 

Omaha moves forward on 

its waterfront project. 

58 
A Good Team 

Successful projects 

require strong teams. 

Assemble the team as the 

project begins. A strong 

and inclusive core team 

serves the project for 

several years—through 

the Planning Call, 

project authorization, 

and implementation. 

Additional expertise 

from both in-house 

and contract experts, 

as well as outside 

stakeholders, may supplement your core team at 

different points in the 

project, but the core team 

maintains the project’s 

memory and integrity 

throughout the process. 

Use the best talent 

available. 

Feasibility Study Phase 

•	 Determine how much time is needed to perform the supporting studies, 

conduct appropriate preliminary consultations and reviews (including NHPA 

Section 106 and NEPA), and prepare a comprehensive Prospectus package, 

as outlined in the annual Planning Call. 

Outcome 

•	 Confirmation of customer’s and regional management’s support for a successful 

Feasibility Study 

Duration 

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

•	 Level of communication between Regional Office and the customer 

•	 Regional Office support of Feasibility Study’s preparation 

1.3 Assemble GSA and Customer Feasibility Study Team 

GSA expertise is a key resource that benefits every project. Although various experts 

may be brought in during the review of the Feasibility Study, the entire team should be 

assembled now. Their subject matter expertise and knowledge of project specifics are 

needed to develop an effective Feasibility Study scope of work. 

Recommended Activities 

Match project issues with GSA expertise. 

•	 Identify the Feasibility Study team leader if different from the planned


Project Manager.


•	 Identify the GSA experts who work with the customer and the affected 

facilities and include them on the Feasibility Study team. If there is a GSA 

Customer Relations Manager for the agency, make sure to use their expertise. 

•	 Use the worksheets in Exhibit 4.3 and “Appendix E” to ensure that all


relevant experts are identified and recruited for the team.


Match customer needs with appropriate agency representation. 

•	 Review the customer’s special needs or concerns as cited in the project’s 

background information. Include representatives from the customer agency 

with the right expertise to help shape and review the Feasibility Study. 

•	 Make sure to consider all customer agencies impacted by the project, not just 

the largest customers or the lead agency. 

59 
Feasibility Study Phase 

Consider outside stakeholders. 

•	 Address issues or opportunities influenced by outside factors. Examples include 

potential sites and availability, local impacts (e.g., parking, neighboring 

properties), additional construction costs, or the ability to phase coordination 

with nearby developments (e.g., local plans, preservation features). Be inclusive, 

broad, and proactive in considering outside issues and local stakeholders. 

Outcome 

•	 Recruitment of a strong team of GSA and non-GSA experts to shape the scope 

of work and ensure the project’s success 

Duration 

This task typically takes one (1) week. 

1.4 Develop a Work Plan and a Communications Plan 

The Work Plan is a crucial tool to ensure that the Feasibility Study 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. 

The Communications Plan helps to manage the expectations of all involved in the 

project; build consensus; support the schedule; and enhance coordination among all 

parties. The Communications Specialist team member assists the team leader and 

others with these activities. 

The Project Management Plan (PMP) and the Work Plan include some of the same 

information. At the earliest stages of project development, the Project Management 

Plan may function as a preliminary “Work Plan” for the preparation of the Feasibility 

Study and the Capital Program submission. Draft PMPs are required with the 

Site/Design Prospectus package submission. 

The Role of the Project 

Management Plan 

The Project Management 

Plan is separate from the 

Feasibility Study, but they 

should be developed in 

tandem. When possible, 

the Feasibility Study’s scope 

should be tailored to inform 

the PMP’s requirements. 

In the long run, a wellwritten PMP will conserve 

far more effort than it took 

to prepare. The Office of 

the Chief Architect (OCA) 

can supply guidelines on the 

preparation of the PMP. 

60 
Exhibit 4.3: Feasibility Study Team Member Worksheet


FS Team: GSA 

Team Leader Asset/Portfolio Manager 

Contracting Officer Regional Historic Preservation Officer 

Property Development Manager Other GSA Specialists 

Regional Counsel Appraiser 

Office of the Chief Architect Representatives Archaeologist 

Center for Courthouse Programs Architect/Interior Designer 

Border Station Center Civil/Structural Engineer 

Urban Development Program Regional Environmental Quality Advisor 

Site Selection Specialist Regional Fine Arts Officer 

Project Manager Regional Fire Protection Engineer 

FS Team: Customer Agency 

Administrative Services Representative Human Resources Representative 

Facilities Group Representative National Office Representative 

FS Team: Contractor/Consultant 

Acquisition Law Advisor Land Use Planner 

Archaeologist Real Estate Appraiser 

Architect Real Estate Broker 

Civil Engineer Registered Fire Protection Engineer 

Code Review Expert Security/Blast Assessment Consultant 

Constructability Advisor Structural Engineer (Seismic) 

Cost Estimator Title Search Consultant 

Environmental Engineer (Conservation) Traffic Engineer 

Environmental Scientist Urban Planner 

Financial Advisor Zoning Attorney 

Geotechnical Engineer 

Historic/Cultural Preservation Consultant 

Industrial Hygienist 

61 
Feasibility Study Phase 

Recommended Activities 

Use the Feasibility Study Checklist (see “Appendix C”). 

•	 Refer to the Feasibility Study Checklist for a list of typical contents


and tasks. Not every project requires all of the Checklist elements.


However, using the Checklist helps to review the project’s requirements


and select the appropriate elements for each project.


Create a Work Plan for conducting the Feasibility Study. 

•	 Work with the Feasibility Study team to develop a Work Plan and a 

schedule for key tasks. The schedule should conclude with the completion of 

the Regional Office’s Capital Program submission for the project. 

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

location that impact the Work Plan and identify criteria that impact the scope, 

schedule, and budget. 

•	 Verify coordination with other studies—either completed or ongoing. 

•	 Identify the project’s 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 schedule. 

Begin a Project Management Plan. 

•	 Create a PMP that reflects the Work Plan for the Feasibility Study. 

•	 Use the PMP to guide the Feasibility Study process. Don’t limit the plan to the 

submission for the Capital Program. The PMP gains detail over time, but it 

should be drafted early in the process and updated throughout the Feasibility 

Study process. 

•	 Ensure that the PMP incorporates all elements of the PBS Pricing Policy, with 

particular emphasis on establishing separate budgets for the shell, each tenant’s 

TI, and GSA-provided security. 

•	 Include the Communications Plan in the PMP to cover the duration of 

the project. 

Create a Communications Plan. 

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

previous communications approaches and strategies, plus contacts 

made with federal, state, and local agencies during the Pre-Planning phase. 

Reasons to Create the PMP 

During the Feasibility Study: 

•	 The team is more 

engaged and contributes 

more effectively. 

•	 Focus is on the final 

product at the beginning 

of the process. 

•	 Feasibility Study’s scope 

is tailored to support PMP 

preparation. 

62 
Feasibility Study Phase 

•	 Assess project and local history, local issues, and activities that may


create interest or controversy around the project, such as local elections


and other development activities.


•	 Identify key stakeholders in terms of the following:


·· Organization (size and structure);


·· Project stakeholders;


·· Level of influence;


·· Issues of interest; and


·· Leaders and spokespersons, for contact information.


•	 Include plans for involving key stakeholders in the Feasibility Study preparation. 

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


customer agency, GSA Regional Office, and GSA Central Office. 


•	 Assemble names, addresses, and contact information of key stakeholders and 

media personnel. 

•	 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 and communications deadlines. 

•	 Summarize this information and prepare the Communications Plan. Review 

the Communications Plan with the Feasibility Study team and the communications staff for the Region, GSA Central Office, and customer agency. 

Outcomes 

•	 Provision of the resources, knowledge, and Work Plan for completion of the 

Feasibility Study 

•	 Effective linkage of the Feasibility Study and the Project Management Plan 

•	 Development of the Work Plan as the foundation for the scope of work and 

Request for Proposal (RFP) preparation 

•	 Development of Communications Plan 

Duration 

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

•	 Number of stakeholders 

•	 Size and scope of project 

63 
Exhibit 4.4: Feasibility Study Process Schedule


Task Name 

Step 1: Confirm readiness 

Duration 

2 weeks 

1.1 Assess basic needs and supporting data 1 week 

1.2 Affirm Feasibility Study funds and schedule 1 week 

1.3 Assemble GSA and customer Feasibility Study team 1 week 

1.4 Develop a Work Plan and a Communications Plan 2 weeks 

Step 2: Develop the Scope of Work/Select Feasibility Study Contractors 4 weeks 

2.1 Develop the scope of work 1 week 

2.2 Choose in-house or contracted services 3 weeks 

Step 3: Conduct the Feasibility Study 16 weeks 

3.1 Begin discussions with stakeholders 15 weeks 

3.2 Establish project goals and requirements 4 weeks 

3.3 Define alternatives 2 weeks 

3.4 Evaluate viable alternatives 4 weeks 

3.5 Identify and develop the preferred alternative 4 weeks 

3.6 Prepare the Implementation Plan 1 week 

3.7 Produce the budget 1 week 

Step 4: Prepare and Submit the Site/Design Prospectus Package 3 weeks 

4.1 Prepare Capital Program submission (including PDRI) 3 weeks 

4.2 Submit project for funding 1 day 

Summary of Tasks 

Task 

Milestone 

64 
WK1 

Month 1 

WK2 WK3 WK4 WK5 WK6 WK7 

Month 2 

WK8 WK9 WK10 WK11 WK12 

Month 3 

WK13 WK14 WK15 WK16 

Month 4 

WK17 WK18 WK19 WK20 WK21 

Month 5 

WK22 WK23 WK24 WK25 

Month 6 

WK26 

65 
Step 2: Develop the Scope of Work/ 

Select Feasibility Study Contractors 

The Feasibility Study team must use the most up-to-date background information to 

create a scope of work that effectively assesses customer needs and facility requirements, 

evaluates alternatives, and proposes the right project. After developing the scope of 

work, the team must decide whether it is best to use in-house or contracted personnel 

to conduct the study. This decision is based on the requirements of the study and 

the resources available. At the completion of this step, the team is ready to begin the 

Feasibility Study. 

Recommended Activities 

2.1 Develop the scope of work 

Understand that a clear, complete scope of work is necessary to hire outside 

contractors successfully. The scope is an invaluable tool to support the work process 

and guide the team. 

2.2 Choose in-house or contracted services 

Choose the best expertise for the job, based on the project requirements, the 

customer agency’s needs, and available resources. When a professional services firm 

is to be engaged, a GSA Contracting Officer and a member of the Feasibility Study 

team shepherd the selection process. 

Outcome 

•	 Full readiness of people, funds, and plans for conducting a high-quality 

Feasibility Study 

Duration 

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

•	 The complexity of the project 

•	 Any modification from a standard Feasibility Study scope of work 

•	 The availability of Indefinite Delivery Indefinite Quantity (IDIQ) contractors or 

Federal Supply Schedule (FSS) Management Operation and Business Improvement 

Services (MOBIS) Schedule contractors 

2.1 Develop the Scope of Work 

The Feasibility Study’s scope of work provides the detailed blueprint for conducting the 

study. The scope of work should be developed before deciding who will perform the 

individual activities involved in the effort. If GSA staff prepares the Feasibility Study, 

Step 2 

Develop the Scope of Work / 

Select Feasibility Study Contractors 

Contractor or 

GSA staff on board 

2.1 

Develop the scope of work 

2.2 

Choose in-house or 

contracted services 

66 
Resources for 

Feasibility Studies 

•	 Exhibit 4.2: Keys for 

Feasibility Study Success 

• “Appendix C: Feasibility 

Study Checklist” 

• “Appendix F: GSA’s 

Standard Scopes of 

Work” 

These materials are 

continually updated on the 

OCA‘s Construction 

Excellence and Project 

Management Division 

Web site. 

Standard Scopes of Work 

GSA has developed standard 

scopes of work for Feasibility 

Studies and PDSs that 

support both renovation 

and new construction 

projects. These scopes of 

work provide detailed 

deliverables for Feasibility 

Studies and PDSs that 

can be customized to meet 

each project’s needs. 

Contact the OCA’s 

Construction Excellence 

and Project Management 

Division for the latest 

documents or check 

the Project Management 

Web site. (See also 

Exhibit 4.5.) 

Feasibility Study Phase 

the scope of work is an invaluable guide. When contractor assistance is required to 

conduct the study, the scope of work is imperative. 

The Feasibility Study team should always customize the scope to ensure that it meets 

the requirements of the project and those of the relevant Capital Program. GSA has 

model scopes of work for Feasibility Studies that are helpful in developing the scope for 

each project (see “Appendix F”). Additionally, the standard PDS scopes of work for 

renovation and new construction projects may suggest key components to be included 

in the Feasibility Study. Both of these models are recommended as starting points for 

developing the project scope. 

Recommended Activities 

Review model scopes of work. 

• 	Evaluate the model scopes of work provided through the OCA and the 

Regional Office. Every project should evaluate project requirements, 

environmental factors, technical factors, and financial factors. Ensure that the 

scope fully addresses all of these categories. 

•	 Review the scopes of work from similar projects and incorporate the 

appropriate parts. Consult their Project Managers to discover what worked best. 

Customize the scope to meet the latest project specifics. 

• 	Convene the Feasibility Study team to help shape the scope of work. 

•	 Ensure that the scope fills in any gaps left by previous studies, addresses 

known issues, and investigates all known and potentially viable alternatives. 

•	 Encourage the exploration of creative options, including adaptive reuse of 

historic buildings and intergovernmental property exchanges. Ensure that the 

scope leads the Feasibility Study process to look for a creative alternative. 

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

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

Representative on your Feasibility Study team to review the Planning Call 

issued for the targeted funding year. Requirements change from year to year 

(e.g., parking plans, courtroom matrices), so use the current version. 

•	 Consider the long-term informational role that the Feasibility Study plays. 

In addition to shaping the funding request, these data form the foundation that 

supports the project through the Design Excellence process, site selection, 

and development of the PDS. 

67 
Exhibit 4.5: Feasibility Study Deliverables


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

ultimately, stakeholders in the administration and in Congress. 

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

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

• Creates building requirements. Creates the customer’s housing plan, taking into 

consideration any special space requirements, required adjacencies and square 

footage, and future uncertainties. 

• Identifies the project’s requirements and the consequences if action is not taken. 

Asset and Portfolio Goals • Defines the project within the context of other available master plans. 

• Addresses the project’s impact on all affected GSA assets and interdependent projects 

and describes customer-pricing implications. 

• Discusses facility operation, durability, and life-cycle costing requirements. 

• Addresses opportunities, risks, and required actions to meet accessibility, historic 

preservation, environmental, urban development, and Design Excellence goals. 

• Identifies special requirements for foundations, structures, exteriors, electrical and 

mechanical systems, site work and landscaping opportunities, geotechnical analysis of 

site, and considerations for special construction and demolition, among other items. 

Program Goals • Addresses opportunities, risks, and required actions to meet accessibility, historic 

preservation, fire protection engineering, life safety, urban development, environmental, 

and Design Excellence goals. 

Alternatives • Develops creative and broad alternatives as the heart of the Feasibility Study. 

• Evaluates a range of alternatives to shape the appropriate project. 

• Identifies, defines, and evaluates alternatives. 

• Considers macro-level alternatives (e.g., combinations of new construction, 

renovation, and leasing). 

• Chooses a preferred alternative, as well as “sub-alternatives” within the preferred 

alternative (e.g., tenant mix or phasing options within a renovation project). 

• Identifies special requirements for foundations, structures, exteriors, electrical and 

mechanical systems, fire protection and life safety systems, site work and landscaping 

opportunities, and considerations for special construction and demolition, among other items. 

68 
Implementation Plan • Describes key project milestones, stakeholders, funding sources, and uncertainties 

(included in the PMP) about or risks to the project’s delivery. 

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

utilities coordination, construction phasing, and building turnover plans. 

• Describes required stakeholder funding approvals and 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, and tenant improvement (TI) costs 

for the alternatives. 

• Ensures that all estimates meet the latest Planning Call requirements. 

• Uses benchmarks established for new courthouse and border station projects. 

Project Management • Describes required stakeholder funding approvals and strategies for meeting 

environmental, historic preservation, fire protection engineering, life safety, and urban 

development requirements. 

69 
Feasibility Study Phase 

Use knowledge of the required deliverables to focus the scope. 

•	 Ensure that the deliverables can be produced within the resources of the 


schedule, team, and budget.


Outcomes 

•	 The final scope of work and schedule 

•	 Adequate information for contractor selection and procurement 

•	 Guidance for the in-house team and the customer agency 

•	 A solid foundation for the project’s requirements and Capital Program Manager’s 

support of Site/Design Prospectus 

•	 A Feasibility Study document to support the project through the PDS 

Duration 

This task typically takes one (1) week. 

2.2 Choose In-House or Contracted Services 

The Feasibility Study team determines whether to contract with a professional services 

firm, use an in-house team, or use a combination of GSA and contractor resources. The 

decision is based on project complexity, the quality and availability of existing technical 

data, the availability of in-house resources, and the requirements described in the scope. 

If it is determined that a Feasibility Study contractor is required, the Contracting 

Officer leads the team through the selection process. Identify a contractor with the 

right personnel, local knowledge, technical experience, and understanding of both GSA 

and the project’s requirements. 

Recommended Activities 

Define the type of expertise required. 

•	 Assess the project’s complexity and location, as well as the customer agency’s 

characteristics. 

•	 Review the project’s requirements, plus technical and financial factors. 

•	 Determine whether the project is a limited-scope renovation (e.g., a single 

system). If so, then in-house services and resources may be adequate. 

•	 Determine whether the project involves multiple buildings or customer 

agencies, site selection or new construction, and extensive environmental or 

historic preservation work. These factors may require professional services. 

Data for the Future 

Support your project 

submission by presenting 

key data in easily usable 

formats (e.g., tables 

and matrices). These are 

referred to frequently 

throughout the approval 

process. 

70 
Feasibility Study Phase 

Determine whether the project can be performed by GSA staff. 

• If so, assemble the team and move on to Step 3: Conduct the Feasibility Study. 

Consider the complexity of the project and the expertise required. 

•	 Determine whether a contractor should be used. 

•	 Review the capabilities of professional services firms already on board


(e.g., IDIQ contracts, FSS/MOBIS). 


•	 Consult with Contracting Officers and other Project Managers who have 


worked with the available contractors to judge their suitability for this 


Feasibility Study.


Include specialists with appropriate expertise. 

•	 Ensure that any IDIQ contractor hired for the project has the right expertise. 

•	 Include specialists who meet the Department of the Interior’s professional 

qualification standards if the alternatives may affect historic resources. 

•	 Include specialists who have experience selecting and valuing the affected 

submarket and can make well-supported projections of future site costs and site 

suitability if the Feasibility Study develops new construction or site acquisition 

alternatives. 

Consult with the Contracting Officer. 

•	 Work with the Contracting Officer to issue an RFP or Work Order that 


includes the project’s scope of work. 


•	 Determine the time required to bring a firm on board. An IDIQ firm may be 

brought on board fairly quickly. If a standard solicitation process is required, then 

allocate additional time. 

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

Outcome 

• Issuance of notice to proceed to the Feasibility Study contractor or GSA team 

Duration 

This task typically takes three (3) weeks. Factor impacting duration: 

• Use of a non-IDIQ contractor 

71 
Step 3: Conduct the Feasibility Study


The Feasibility Study defines the project and establishes project requirements, identifies 

key technical factors (e.g., zoning, engineering, or sustainability requirements), and 

defines financial factors for the project. It considers alternatives to meet customer 

needs and facility requirements in light of regional and national business strategies, 

technical merit, capital costs, financial impact to the Federal Buildings Fund (FBF), 

and local context. 

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

input and guidance. GSA’s role is to guide the study, coordinate reviews, keep 

stakeholders informed and involved, and ensure that the Feasibility Study is responsive 

to the needs of the customer and the requirements of the federal government. 

Immediately following the notice to proceed, the team leader must provide all 

background materials to the contractor. This includes copies of studies, drawings, 

and reports, as well as contact information for customer agency representatives, 

GSA Building Managers, and GSA experts. 

Recommended Activities 

3.1	 Begin discussions with stakeholders 

Use input from stakeholders to understand the customer agency’s requirements 

and concerns, as well as local opportunities and issues. 

3.2	 Establish project goals and requirements 

Determine the customer agency’s requirements for location, site, housing plan, 

and schedule and define asset needs (especially for R&A projects). 

3.3	 Define alternatives 

Generate a broad range of creative alternatives to support the development 

of an appropriate solution. 

3.4	 Evaluate viable alternatives 

Evaluate the viable alternatives, test their approaches, and understand their impacts. 

3.5	 Identify and develop the preferred alternative 

Describe and support the preferred alternative. 

3.6	 Prepare the Implementation Plan 

Detail the activities to accomplish the project. 

3.7	 Produce the budget 

Finalize the construction cost estimate and total project costs. 

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 

Feasibility Study 

completed 

72 
Launching the 

Feasibility Study 

To start the contractors in 

the right direction, the team 

leader provides substantial 

background information, 

arranges introductions, opens 

channels of communication, 

and helps with activity 

coordination during the first 

two weeks. 

Hold a Kickoff Meeting 

This is a crucial early step 

that supports the coordination of team members, 

contractors, and customer 

agency representatives. 

Review the Work Plan, 

schedule, contact information, required documents, 

and participants’ roles. 

Complete the Feasibility 

Study Checklist 

(”Appendix C“) and identify 

which items are to be 

addressed and whether 

they have a major or 

minor impact. 

GSA specialists with 

expertise in historic 

preservation, green building, 

progressive collapse, 

and other specialties 

should be included in the 

Kickoff Meeting. 

Feasibility Study Phase 

Outcome 

•	 A complete Feasibility Study, including project requirements, the technical 

evaluation, and the financial analysis 

Duration 

Conducting the Feasibility Study typically takes sixteen (16) weeks. 

Factors impacting duration: 

•	 The complexity of the project 

•	 The time needed to complete specialized studies 

•	 The availability of the GSA Feasibility Study team and the customer agency to 

provide information and make interim decisions 

•	 The time need to review, digest, and develop the draft into a solid Capital Program 

funding proposal 

3.1 Begin Discussions with Stakeholders 

The GSA Feasibility Study team and the contractor must meet with the customer 

agency, Building Managers, Asset Business Teams, local community, and other 

stakeholders to identify key issues, potential sites, individual interests, and project 

requirements and to shape a Feasibility Study that effectively addresses their 

requirements (see Exhibit 4.6: Sample Agenda). These discussions allow the customer 

agency to describe their needs, desires, and concerns. 

The team may also talk with outside stakeholders to understand their plans. The 

project may create opportunities or risks that must be addressed early. This information 

enables the Feasibility Study team to strategize and budget accordingly. 

Recommended Activities 

Meet with the customer agency within the first two weeks of the project. 

•	 Learn about the customer’s business, vision, and mission and how these impact 

the agency’s future, especially how they drive their real estate requirements. 

•	 Describe the assistance that is needed from the agency to support the study. 

•	 Identify which customer agency staff members are designated to coordinate 

requests from the contractor or the Feasibility Study team for interviews; 

access to work spaces and potential secure areas; tenant space standards for test 

fits; and tenant move and cost estimates, among others. 

73 
Exhibit 4.6: 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 Feasibility Study 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 Feasibility Study process? 

• Have they been involved in a Feasibility Study 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? 

74 
Outline Existing Data 

The Feasibility Study scope 

should list completed 

studies and supporting data, 

as well as analyses and 

studies to be conducted. 

Confusion on these issues 

affects the cost, schedule, 

and success of the project. 

Acknowledge and 

Understand Outside 

Stakeholders’ Interests 

Understanding stakeholders’ 

interests results in a higher 

quality project, delivered on 

time and under budget. 

For renovation projects, 

stakeholders often focus on 

impact to historic resources, 

need to relocate valued 

public service agencies, or 

opportunities to enhance 

public spaces. Consider the 

project’s potential to 

advance local plans (e.g., 

streetscape improvements, 

additional employment). 

Stakeholders sharing GSA’s 

goals may be able to 

contribute additional 

resources to resolve GSA, 

customer agency, or local 

community concerns. Early 

and open conversation 

with relevant stakeholders 

is the best way to develop 

shared goals and an 

effective solution. 

Feasibility Study Phase 

•	 Review the Work Plan, especially the meetings, presentations, or reviews 

that the customer agency staff should attend. The professional services firm 

contractor also should attend these meetings. 

•	 Review and discuss the Communications Plan with the customer agency 

and the Feasibility Study team to finalize the strategy for publicity, press releases, 

and other communications activities. If the Feasibility Study team does not 

have a Communications Specialist, then designate someone who will issue 

information and address inquiries and potential problems. Review schedules 

for internal and external communications milestones. 

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 either the team leader or the Project Manager as the control point to 

approve all communications. 

Determine whether meetings are required with other key stakeholders. 

•	 Consider meeting with the GSA Central Office or the congressional delegation 

to discuss project goals (use Exhibit 4.6: Sample Agenda). 

Consider meetings with representatives of local government. 

•	 Determine whether representatives of civic organizations, including fine arts 

commissions, fire marshals, planning commissions, and local/urban design review 

boards, should be consulted on development issues. Explore the potential 

to leverage federal and local development efforts and to fine-tune the evaluation 

factors to support the project’s requirements and the local community’s needs. 

Consult those involved in the NHPA Section 106 and NEPA processes. 

•	 Contact the state environmental agency, State Historic Preservation Office 

(SHPO), and other relevant agencies. 

75 
Feasibility Study Phase 

Outcomes 

•	 Close coordination with customer agency 

•	 Support for communications efforts, leading to an effective working relationship 

among all project stakeholders 

Duration 

This task typically takes fifteen (15) weeks. Factor impacting duration: 

•	 Number of meetings, based on the agencies and groups of the local area and their 

shared purpose or competing nature 

3.2 Establish Project Goals and Requirements 

Responding to customer needs and addressing building deficiencies are the key forces 

that drive Feasibility Studies. Meeting with the customer agency; reviewing their 

requirements; and developing financial criteria are important steps. 

The project requirements include the following five items: 

1. 	Location 

2.	 Site 

3. 	Housing Plans 

4. 	Schedule 

5. 	Business Needs 

Recommended Activities 

Determine the customer agency’s requirements. 

•	 Identify key drivers for change in the customer agency’s business and 

operations; identify how the project location and the workplace environment 

should support the agency’s business goals and effectiveness. 

•	 Discuss what works well currently and what is needed for future operations. 

•	 Review the agency’s space standards, population (head count) projections, 

technology specifications, and security requirements, as well as any special 

requirements. 

Border Highways 

Significant changes 

to border stations usually 

require extensive road 

or highway work. Without 

the required road 

investments, the projects 

are not viable. Be sure 

to coordinate project 

planning with State and 

Federal Highway Officials. 

Clearly document the 

required coordination and 

commitments in the 

Feasibility Study and 

the PDS. Contact the 

Border Station Center for 

more guidance 

(see ”Appendix G“). 

76 
Feasibility Study Phase 

Discuss customer agency’s location preferences. 

•	 Assess the following factors: 

·· Interaction with the public. 

·· Security requirements. 

·· Interaction with other federal, state, or local agencies. 

·· Access to transportation, including highways, mass and public transportation, 

parking; and availability of amenities and services, such as retail, business 

services, and child care, among others. 

Review opportunities to support local planning initiatives. 

•	 Consider the location and development of the project, the development of the 

site, and other facilities. 

Identify the site requirements for new buildings. 

•	 Include the following factors:


·· Visibility of the site and the image of the facility.


·· Number of access points from local streets.


·· Character of entry.


·· Capacity for surface and/or structured parking.


·· Security setbacks.


·· Provision of public open space, such as plazas and parks.


·· Unique foundation requirements.


·· On-site loading and materials handling.


·· Minimum site area.


• Refer to The Site Selection Guide for more detail on site requirements. 

For R&A projects, prepare the following analyses: 

•	 Summarize the building type and characteristics, including construction types, 

special features, and overall size. 

•	 Identify recommended improvements to mechanical systems and building 

envelope; perform security and risk assessment; identify hazardous materials; 

evaluate life safety systems; review compliance with the Americans With 

Disabilities Act, historic preservation requirements, and green building 

requirements; assess interior renovations and life-cycle cost considerations. 

•	 Develop interior planning concepts and sketches, as needed, to assess capacity. 

77 
Feasibility Study Phase 

Develop housing plans. 

•	 Determine appropriate types and quantities of work space (offices and openplan areas) and support space (meeting and conference rooms; lobbies; filing; 

local area network, or LAN, closets); and special space (libraries, cafeteria, 

command centers). 

•	 Assess the head count and growth functions. Discuss any significant future 

changes to the customer agency’s size and operation that can impact the 

housing plan. 

•	 Review the planning horizons and timeline with the customer agency to assess 

their impact on the customer agency’s requirements and future operation. 

Develop a list of project goals. 

•	 Define the criteria for a successful alternative. These goals and criteria form the 

basis for creating and evaluating the alternatives. 

Outcomes 

•	 Drivers identified for customer requirements and project goals 

•	 Comprehensive list of goals and criteria for customer agency requirements, 

site requirements, and asset recommendations 

•	 Review of project’s potential to benefit local plans 

Duration 

This task typically takes four (4) weeks. 

3.3 Define Alternatives 

After identifying the project’s goals and assessing the customer agency’s needs and the 

asset’s requirements, the Feasibility Study defines a number of alternatives that may 

satisfy these goals. Alternatives include alteration, new construction, lease, purchase, 

build-to-suit lease, disposal, outlease (including Section 111 historic outlease), status 

quo, and combinations thereof. The status quo alternative helps to define the urgency 

of the project, but it also may identify a realistic fallback position (in whole or in part). 

Alternatives should be identified broadly and creatively and then narrowed down as the 

analysis progresses. The customer agency, project team, and the Feasibility Study 

contractor should all participate in the development of alternatives. 

Setting the Level of Tenant 

Improvements 

Interior designers and space 

planners play important roles 

in assisting the customer 

agency to develop their 

desired level of TI investment 

early in the project. 

78 
Alternatives Workshop 

A workshop is a fast and 

effective way to generate 

and evaluate alternatives. 

All of the participants 

(GSA, customer agency, 

and contractors) provide 

input in the following 

agenda activities: 

•	 Confirm existing 

conditions, project goals, 

and evaluation criteria. 

•	 Generate creative 

potential alternatives. 

•	 Define and use the 

evaluation criteria to 

review all alternatives. 

•	 Select viable alternatives 

for further study. 

Feasibility Study Phase 

Recommended Activities 

List the project requirements and illustrate them with plans, sections, or diagrams. 

•	 Develop and illustrate a few standard alternatives for the team’s


review. Consider, for example, renovation and reuse of existing buildings,


new construction, disposal, and a combination of these options. 


Review the conclusions reached in Step 3.2. 

•	 Include all participants in the Feasibility Study to ensure complete agreement 

about customer agency needs, asset requirements, the housing plan, strategies for 

local coordination, and other project goals. 

•	 Be sure that the goals and criteria are clear. 

Brainstorm additional alternatives. 

•	 Hold a meeting or workshop to develop alternatives creatively. 

•	 Generate a number of alternatives; use the project goals and criteria to identify 

those viable alternatives worthy of additional study. The process should allow for 

additional alternatives to be considered as the analysis proceeds into greater 

detail. Consider inviting a few local stakeholders to participate if appropriate for 

the project. 

•	 Describe the potential locations that meet the project’s goals, GSA’s Location 

Policy, applicable Executive Orders, and so forth. This is an important step 

for several reasons. 

Outcome 

• A range of alternatives for further investigation 

Duration 

This task typically takes two (2) weeks. 

3.4 Evaluate Viable Alternatives 

The Feasibility Study should discuss all of the developed alternatives, including viable 

ones and others that were rejected early in the process. Strong consideration should 

be given to existing GSA-controlled assets, their ability to meet customer agency needs, 

and each alternative’s impact on GSA’s portfolio performance. 

Project and technical requirements analyses determine each alternative’s ability to 

meet customer agency needs, address technical factors for each alternative, and develop 

cost estimates. 

79 
Feasibility Study Phase 

After developing cost estimates, the team must perform a financial analysis for each 

alternative. In general, GSA’s financial analysis requires a pro forma and a 30-year 

present value analysis for each alternative (e.g., The Automated Prospectus System, 

or TAPS, analysis) and an Asset Business Plan (ABP) for each affected GSA property. 

The Planning Call outlines the specific analyses needed to satisfy the Capital Program. 

Meaningful analysis requires sound inputs. For various projects, these may include 

market appraisals of GSA assets, agency rent computations, defined TIs, and market 

surveys of appropriate sites and acquisition costs. Generally, the Feasibility Study 

contractor (or GSA staff, with the assistance of appropriate professionals) should 

develop the cost inputs for each alternative. 

Recommended Activities 

Analyze project and technical requirements. 

•	 Define Scope of Customer Needs: 

Compare each alternative’s ability to meet customer needs. These requirements 

may be defined in U.S. Courts’ Any Court model, Local Portfolio Plans (LPPs), 

Border Wizard simulation model, or a macro-level program of requirements. 

•	 Describe Tenant’s Move/Lease Actions: 

Provide an analysis of project-related move costs and impacts on the customer 

agency’s operation as a result of the temporary relocation of tenants, 

leasing of swing space, phased moves within a building, and final move-ins. 

•	 Assess Site Issues: 

Analyze both new construction and renovation alternatives. Consider the 

impact that siting would have on the project. Considerations include 

customer needs, local market conditions, and community impacts, as well as 

compliance with the National Environmental Policy Act (NEPA), GSA’s 

Location Policy (such as E.O. 12072 and E.O. 13006), and other regulations. 

For a new construction project, refer to the Site Selection Guide. Remember 

that the selection of the delineated area impacts the following factors: 

·· The potential relationship of the project to the local community. 

·· The potential to support other local and federal planning initiatives. 

·· The cost of site acquisition. 

·· The cost of construction, based on the site’s characteristics. 

Knowledge of 

Existing Conditions 

The Feasibility Study uses 

knowledge of existing 

conditions to frame future 

requirements and budgets. 

The size and shape of the 

windows, presence of 

radiators, location of standpipes and potential location 

of the dropped ceiling reflect 

a working knowledge of 

current conditions and inform 

the assumptions used to 

develop cost estimates in 

the Feasibility Study. 

Sharing Information 

Be ready to provide copies 

of reports, information, and 

customer agency contacts 

to your contractor. 

80 
Calexico, CA 

Stakeholders’ Discussions 

External stakeholders play 

critical roles on the 

Feasibility Study team. 

GSA invited city and 

Imperial County officials, 

Caltrans, Cal/EPA, and their 

Mexican counterparts to 

study upgrades for the 

border facilities at Calexico. 

The stakeholders shared 

land use and infrastructure 

plans, aerial photos, and key 

data and helped shape and 

review alternatives. As a 

result, the viable alternative 

was identified, two southbound lanes were created 

to eliminate a 2-mile backup 

that had paralyzed 

Calexico’s main street, and 

strong support of local 

officials was gained. 

In this project, the external 

stakeholders’ significant 

resources and longer 

budget cycles enhanced 

their value as Feasibility 

Study team members. 

Feasibility Study Phase 

For expansion of an existing site, establish the capacity of undeveloped portions 

of the property within the existing zoning codes and the infrastructure’s capacity. 

Consider the potential to acquire additional adjacent land. 

•	 Examine Capital Costs: 

Prepare cost estimates to provide a basis for review and approval by GSA officials. 

Benchmark or parametric-level cost analyzes (using gross-square-foot costs) may 

be used as follows: 

·· New Construction 

GSA’s General Construction Cost Review Guide (GCCRG) provides data 

and calculation procedures to establish Feasibility Study phase cost estimates. 

Identify unique project/site conditions and related costs. For courthouse 

and border station construction, there are project-specific construction benchmarks and models to develop construction costs. 

·· Cost Benchmark 

Where alteration estimates are not appropriate, the Feasibility Study should 

cite cost-per-square-foot estimates (UNIFORMAT II, Level 3) or other reliable 

estimates based on prior studies (e.g., BERs, seismic, hazardous material studies). 

·· Leasing 

These projects may require market rent appraisals and lease scoring analysis for 

swing space leases and lease alternatives. 

·· Capital Cost Breakdown for Costs Amortized in Rent 

Shell, TI, and security costs (as defined in the GSA Pricing Desk Guide) must 

be separated to allow for rent structuring of project alternatives. To determine 

the TI allowance, the Feasibility Study team can use the agency’s general and 

customization allowance or benchmarks (if available), or obtain a cost estimate 

for functional space. Estimates are also required for joint-use space to complete 

the project’s budget. Non-market comparables (costs such as security and 

raised floors that are amortized in the rent) should be denoted separately from 

TI costs. 

•	 Evaluate Life-Cycle Cost: 

Evaluate each alternative based on its total life-cycle costs, including the 

comparative costs associated with the original construction/alteration, ownership, 

maintenance, and disposal. An alternative is the most cost-effective if it has the 

lowest life-cycle costs, expressed in net present value terms. 

81 
Feasibility Study Phase 

•	 Develop Project Delivery Schedule: 

Evaluate each viable alternative and include a project delivery schedule that 

shows critical events and milestones from the time of the GSA budget 

authorization/appropriation to tenant occupancy and their likely impact on ontime delivery. Environmental compliance actions, site acquisitions, swing space 

requirements, and lease terminations/relocations are examples of critical events 

that must be clearly identified as milestones on the schedule. 

Conduct the financial analysis required of the Capital Program. 

•	 Include analyses of the alternative’s impact on regional performance 

measurements, targets, and strategic goals within the financial analysis. GSA staff 

should use the Planning Call to define the financial analysis requirements. In 

recent Capital Programs, the Planning Call has required the following tools: 

·· Pro Forma 

This real property financial modeling tool analyzes a single facility. It provides 

a quantitative study of proposed capital investment requirements, investment 

decision-making, and income/expense information for new construction and 

R&A proposals. 

·· Multi-Asset Portfolio Planning (MAPP) Model (optional) 

Although no longer required by the latest Planning Call, the MAPP modeling 

tool performs analyses similar to the pro forma for multiple buildings or leases. 

·· The Automated Prospectus System (TAPS) 

TAPS is a present value cost model developed for GSA to meet the requirements of OMB Circular No. A-94. TAPS provides an analysis of lease, 

new construction, or R&A alternatives, based on the comparison of their 

30-year net present value. 

·· The Local Portfolio Plan (LPP) 

The LPP is GSA’s tool to provide a planning context for GSA assets at a 

community-wide or market level. 

·· The Asset Business Plan (ABP) 

The ABP is GSA’s Web-based asset management tool. It provides building-level 

income/expense history and projections, planned investment, and long-term 

holding plans for the building. 

82 
Evaluating Alternatives 

Each alternative should be 

evaluated on its ability to 

meet the following: 

•	 The project requirements in terms of the 

customer’s needs, 

and the facility’s and 

portfolio’s requirements. 

•	 The technical requirements, including key 

GSA program goals (e.g., 

sustainability, historic 

preservation, urban design). 

•	 Financial performance. 

Feasibility Study Phase 

Outcome 

• Financial and technical analyses of each viable alternative under evaluation 

Duration 

This task typically takes four (4) weeks. 

3.5 Identify and Develop the Preferred Alternative 

The preferred alternative is the best alternative to meet the objectives of the customer 

agency, asset, and portfolio. Based on the evaluation of the alternatives, the Feasibility 

Study should include a written summary that concisely documents the decisions, 

explains the findings, and provides justification for proceeding with the preferred 

alternative as part of GSA’s Capital Program. 

The description of the analysis should address the following issues and describe its 

advantages, compared to competing alternatives. 

Recommended Activities 

Discuss the preferred alternative. 

•	 Describe Customer Need: 

Identify the customer’s business goals and real estate impact, demand/customer 

plan, LPP, and physical asset requirements. 

•	 List Project Objectives, Portfolio Goals, and GSA Program Goals: 

Identify those project objectives that relate to the overall portfolio and 

project goals, as well as to GSA’s broad mission program goals. Include project 

requirements developed in response to federal law (e.g., NEPA, NHPA 

Section 106), GSA legacy programs (e.g., Design Excellence, Green Buildings), 

and other technical requirements. 

•	 Define Design Issues: 

Identify design constraints and unique requirements, including site issues. 

•	 Determine Schedule:


Identify schedule constraints and risk assessment for project delivery.


•	 Resolve Funding Sources and Budget Schedule: 

Identify funding sources (e.g., Budget Activity; TI costs, Reimbursable Work 

Authorization, donations, other sources) and budget schedule for project delivery. 

83 
Feasibility Study Phase 

•	 Identify Decision Criteria and Documentation: 

Establish capital cost, financial cost, advantages and disadvantages, and other 

decision criteria used for comparison. Compare each alternative to illustrate how 

the best alternative was identified. Provide a short narrative discussion on the 

deciding factors. 

•	 Develop Procurement Method: 

Identify the procurement method that can successfully deliver the proposed project. 

•	 Determine Performance Measurement: 

Identify how the proposed project impacts the performance measurements. 

•	 Provide Customer Assignment Drawings:


Recommend production of relevant blocking and stacking diagrams.


Outcome 

• Written analysis of the preferred alternative 

Duration 

This task typically takes four (4) weeks. 

3.6 Prepare the Implementation Plan 

The Implementation Plan outlines how the project can best be procured (e.g., designbid-build, design/build) and, for new construction alternatives, the area in which it 

will be located and how the site will be acquired. The Feasibility Study recommends a 

procurement method based on the complexity, risks, and potential cost savings 

presented by the preferred alternative. The procurement method has a significant 

impact on the schedule and location proposed in the Prospectus. 

Recommended Activities 

Delineate areas for site selection (for new construction) and lease acquisitions. 

•	 Realize that the eventual site selection must conform to the location cited in 

the Prospectus. 

•	 See The Site Selection Guide for detailed information about establishing 

delineated areas. The Planning Call and the Office of Real Property Asset 

Management can also provide assistance. 

Is Everybody On Board? 

Be sure to allow adequate 

time to meet with the 

customer agency to review 

the preferred alternative, 

collect comments, and 

receive confirmation that 

the Feasibility Study recommendation is correct from 

the customer’s point of view. 

Anticipate how much time it 

will take the customer to 

schedule meetings and 

complete reviews. Some 

agencies need more lead 

time than others to finish 

this task. 

Funding Cycles 

When developing the 

project schedule, recognize 

both the limitations of 

the funding cycle and when 

funds become available. 

For example, schedules with 

fourth quarter (4Q) awards 

or first quarter (1Q) funding 

may be problematic. 

Help With Site Selection 

GSA’s Site Selection Guide 

(2003) offers detailed 

assistance with site selection. 

Although it concentrates 

on the later stages of site 

investigation, evaluation, 

and selection, it is an 

excellent resource to shape 

site consideration during the 

Feasibility Study. It is 

available from the OCA. 84 
Greenville, SC 

The Feasibility Study has 

the key role in defining the 

site acquisition request 

figure. But it can be tough 

to get the right figure since 

it is a calculation based 

on future assumptions. 

Markets and the availability 

of suitable sites can change 

over time. Successfully 

predicting acquisition costs 

relies on assessing 

specific sites, assembly 

costs, market demand, 

and availability. 

The Feasibility Study team 

for a new courthouse 

in Greenville incorporated 

these factors into their 

scope of work, and a 

qualified real estate consultant calculated reliable 

acquisition costs. Local 

officials also participated in 

the initial feasibility discussions and will be involved 

during site selection. 

The region will apply both 

techniques in all future 

Feasibility Studies that 

propose site acquisition. 

Feasibility Study Phase 

Review project delivery options. 

•	 Determine whether the implementation of the project requires a specific 

type of delivery: 

The recommendation at this time restricts all future options to those defined in 

the Site/Design Prospectus (e.g., whether the project is going to be design/build 

or traditional design-bid-build). 

Develop strategies for project phasing. 

•	 Include any necessary swing space for interim tenant moves during renovation 

or consolidation projects. 

Consider the best Design Excellence approach for hiring a designer. 

•	 Determine whether the project would benefit from a two-stage or three-stage 

(design competition) process. The project team will have some flexibility 

to make this decision later, but the Feasibility Study should provide background, 

guidance, and a sufficient budget for the desired alternative. 

Develop the project delivery schedule. 

Complete draft OAs with move-in schedules. 

Outcome 

• Completed Implementation Plan for Capital Program submission 

Duration 

This task typically takes one (1) week. 

3.7 Produce the Budget 

The Feasibility Study should include accurate budgets for design, site acquisition, 

and construction. 

Cost estimates must conform to the standards dictated by the Planning Call. Although 

a significant portion of this effort is conducted during the analysis of alternatives, 

this step is the final effort to refine or confirm those estimates. 

The estimates for site and design costs are most crucial because they directly support 

the Site/Design Prospectus. Ideally, the costs presented in the Feasibility Study 

must forecast and align with the Construction Prospectus cost estimate, which is 

typically presented two years later and based on more detailed construction costs. 

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Feasibility Study Phase 

Recommended Activities 

Refine design costs. 

•	 Use applicable tables and consider whether the design costs should be adjusted 

for unusual complexity, design competition, unforeseen conditions, or other 

factors that may increase the design effort (e.g., complex or controversial NEPA 

processes). 

Refine site acquisition costs. 

•	 Use professional appraisal estimates based on representative (e.g., buildable) sites, 

rather than on unsuitable market comparisons. 

•	 Include estimates for demolition, decontamination, soil conditions, and tenant 

and utility relocations. 

•	 Ensure that the site acquisition request enables the purchase of a suitable site in 

the planned year of purchase. 

Estimate construction costs. 

•	 Ensure that construction cost estimates conform to Planning Call standards. 

Consider site-specific conditions that may affect costs, such as seismic zone, soil 

conditions, hardening requirements based on an achievable setback, landscape 

area, invasive testing, multiple phases, working in occupied buildings, and afterhours work, among other factors. 

•	 Use Cost Benchmark estimates for new courthouse construction projects. 

Complete draft OAs, based on project budgets for the preferred alternative. 

Outcome 

• Realistic, thorough project cost estimates 

Duration 

This task typically takes one (1) week. 

Review Budget 

Items Carefully 

Since workplace performance 

and customer involvement 

and satisfaction are high 

priorities, the budget should 

include fees for requirements 

development, space planning, 

and design development for 

the tenant spaces. Ensure 

that the budget can cover 

these important aspects of 

the project. 

Be Sure to Include These 

Costs in the Budget 

•	 R&A 

•	 Phasing 

•	 Swing space 

•	 Occupied space 

•	 Night/weekend work 

•	 Tenant relocation 

86 
Step 4 

Prepare and Submit the Site / 

Design Prospectus Package 

4.1 

Prepare Capital Program 

submission (including PDRI) 

4.2 

Submit project 

for funding 

Project submitted to 

Capital Program 

Step 4: Prepare and Submit the 

Site/Design Prospectus Package 

While the Feasibility Study is the key source of information for finalizing the Capital 

Program submission, the final product is a Prospectus funding proposal. Therefore, 

the Feasibility Study team must stay engaged until the Prospectus is completed. The 

package is generally prepared and assembled by the regional Office of Real Property 

Asset Management. It includes the Prospectus, the economic analyses, and final 

housing plans. 

The Planning Call directs the requirements of the submission. As discussed earlier, 

it is important to anticipate and incorporate these requirements into the scope of work 

and throughout the process. They cannot be “tacked on” at the end of the process. 

Feasibility Study team members may share the effort and prepare specific parts of the 

funding package, based on the requirements of the Planning Call. These often include 

an Environmental Checklist, the Project Management Plan, and Occupancy 

Agreements, among other items. 

The time to prepare the Capital Program submission always seems far too short. 

Plan a reasonable time frame with the staff in the Office of Real Property Asset 

Management who coordinate the development of the submission package, to ensure 

that there is adequate time to prepare an effective submission. 

Recommended Activities 

4.1	 Prepare Capital Program submission (including PDRI) 

Meet the specific requirements of the current Planning Call. 

4.2 Submit project for funding 

Complete the submission and deliver the Prospectus package to the regional Office 

of Real Property Asset Management. 

Outcome 

•	 Completed and submitted Prospectus (with sound project strategy 

and cost estimates) 

Duration 

This task typically takes three (3) weeks. 

87 
Feasibility Study Phase 

4.1 Prepare Capital Program Submission (including PDRI) 

The Planning Call issued by the Office of Real Property Asset Management 

provides the detailed requirements for the program submission. Each year 

the Planning Call varies slightly, in response to current concerns and requirements. 

Know the core components of the Planning Call, as well as requirements that 

have been changed or added. 

Recommended Activities 

Check with the Office of Real Property Asset Management. 

• Confirm the Planning Call requirements and the various due dates. 

Conduct a Project Development Rating Index (PDRI). 

•	 Assess the project’s strengths and weaknesses. 

Complete the submittal package. 

•	 Work with Feasibility Study team members to fine-tune the Site/Design 

Prospectus funding proposal. Allow sufficient time to review the document 

and ensure that it is complete, well written, and well organized. 

Outcomes 

• An understanding of the requirements of the current Planning Call 

• A fine-tuned submittal 

Duration 

This task typically takes three (3) weeks. 

Parkersburg, WV 

When the Bureau of Public 

Debt (BPD) asked for help 

with a major new lease, the 

project team knew they 

needed to work quickly. In 

just six weeks, working with 

a term A/E, the team 

assessed BPD’s eight 

current locations, developed 

an efficient strategy for 

phased moves, and worked 

with city officials and the 

local historic commission to 

evaluate alternatives. All 

existing buildable and 

developable sites were 

considered. The team 

proceeded with a build-tosuit construction, awarded 

via a design competition. 

This quick and thorough 

approach to planning can 

make all the difference to 

the client and the 

community. 

88 
Feasibility Study Phase 

4.2 Submit Project for Funding 

Once the project submission has been completed, it is prioritized within the Region 

and then included in the Regional Office’s Capital Investment and Leasing Program 

(CILP) request to GSA in Washington, DC. 

Recommended Activities 

Submit the Site/Design Prospectus funding proposal. Revise if requested. 

•	 Ensure that the Feasibility Study team leader works with the regional 

Office of Real Property Asset Management to respond to any requests for 

revision or clarification. The team leader coordinates this work with 

appropriate Feasibility Study team members and expedites the responses. 

Outcome 

• Completed and submitted Site/Design Prospectus package 

Duration 

This task typically takes one (1) day. 

89