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S to ra g e

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Senate H ea r in g s ^ ^

Before the Committee on Appropriations

DOCUMENTS

MAR 2 9 1976

"T r*i — Y

KANSAS STA TE U N IV E R S IT Y Su pplem ental 

Legislative Branch 

Ap prop ria tio ns

Fiscal Year 1976

94th CONG RESS, SECOND SES SIO N

LIBRARY OF CONGRESS JAMES MADISON MEMORIA L BUILDING

ARCHITECT OF THE CAPITOL

LIBRARY OF CONGRESS

SUPPLEMENTAL LEGISL ATIVE BRANCH

APPROPRIATIONS FOR 1976

H E A R IN G S

BEFO RE A

SUBCOMMITTEE OF THE

COMMITTEE ON APPROPRIATIONS 

UNIT ED STATES SENAT E

NIN ETY-F OU RTH CONGRESS

SECOND SESSION

Printed for the use of the Committee on Appropriations

LIBRARY OF CONGRESS JAMES MADISON

MEMORIAL BUILDING

ARCHITECT OF THE CAPITOL

LIBRARY OF CONGRESS

66-482 O

U.S. GOVERNM ENT PRINTING OFFICE

WASHINGTON : 1976
COMMITTEE ON APPROPRIATIONS

Subcommittee on the Legislative Branch

ERNEST F. ROLLINGS, South Carolina, Chairman

JOHN L. McCLELLAN, Arkansas RICHARD S. SCHWEIKER, Pennsylvania

WALTER D. HUDDLESTON, Kentucky CHARLES McC. MATHIAS, Jr., Maryland

MILTON R. YOUNG, North Dakota, ex officio

Warren W. Kane, Neilson A. McGown, and Joel E. Bonner (Mino rity )

Staff A ssist an ts, L egisla tive Branch

(II )
C O N T E N T S

Opening rem ark s by Chairman Hollings-------------------------------------------

Ju stific at io n_____________________________________________________

Stateme nt of George M. White, Arch itect of the Capitol----------------------

Explanation of bidding proced ure---------------------------------------------

Breakdown of item s not in original program-------------------------------

Statem ent of Daniel J. Boorstin, Libra rian of Congress-----------------------

Lib rary effort hampered by space problem-----------------------------------

Exp lanatio n of increased cost--------------------------------------------------

Discussion of additive item s-----------------------------------------------------

Bidding procedure--------------------------------------------------------------------

Need for ano ther building in the fu tu re --------------------------------------

Additional questions submitted by subcommittee--------------------------------

Pa ge

1

2

23

24 

26 

26 

27 

29 

32 

37 

39 

41

(in)

SUPPLEMENTAL LEGISLATIVE BRANCH

APPROPRIATIONS FOR FISCAL YEAR 1976

MONDAY, FEBRUARY 16, 1976

U.S. Senate,

Subcommittee on Legislative Branch,

Washin gton , D.C.

Th e su bc om mitt ee met at 3:05 p.m ., in room S-1 46 , the Ca pitol, 

Ho n. Er ne st F. Hollings (c ha irm an ) pre siding.

Presen t: Se na tors Hollings an d Schw eik er.

JAME S MA DISON MEM OR IAL BU ILD ING

Architect of the Capitol

STATEMENT OF GEORGE M. WHITE, ARCHITECT OF THE CAPITOL 

ACCOMPANIED BY:

MARIO E. CAMPIOLI, ASSISTANT ARCHITECT OF THE CAPITOL 

CHARLES A. HENLOCK, ADMINISTRATIVE OFFICER 

J. RAYMOND CARROLL, COORDINATING ENGINEER 

WILLIAM F. RAINES, ADMINISTRATIVE ASSISTANT 

F. W. WINKELMANN, GENERAL COUNSEL 

Library of Congress

STATEMENT OF DANIEL J. BOORSTIN, LIBRARIAN OF CONGRESS 

ACCOMPANIED BY:

WILLIAM J. WELSH, DEPUTY LIBRARIAN OF CONGRESS 

ADOREEN M. McCORMICK, LEGISLATIVE LIAISON OFFICER 

F. E. CROXTON, DIRECTOR, ADMINISTRATIVE DEPARTMENT 

SPECIAL SUPPLEMENTAL REQUEST

Se na tor Hollings. This af ternoo n we are considering a spe cia l supplem en tal re qu es t for $33 million for the Libra ry of Co ngres s Jam es 

Madiso n Mem ori al Building.

App ropr iatio ns total ing $90 million fo r the full am ou nt pre sen tly 

au thor ized have alr eady be en en ac ted for the Jam es Ma dison Mem orial Building.

JUSTIFICATION

Th e Arc hi te ct estim ate s an additio na l $33 million is requ ire d to 

co mplete this building. Th e justi fic ations as well as ma ter ial from 

the Libra ry of Co ngress will be inserte d in the reco rd at this point.

[T he ju stifica tio ns and mate ria l follow:]

(1)
Justification

LIBRARY OF CONGRESS JAMES MADISON MEMORIAL BUILDING PROJECT

Sup ple m en ta l a p p ro p ria tio n re q u e ste d ............................................................................................... $33t 000 ,000

T his p ro je c t was a u th o riz e d by P u b lic Law 89-2 60, ap pr ov ed O ctober 19, 196 5, a t a lim it o f c o s t 

o f $75,0 00,0 00. The lim it o f c o s t was in cre ased to $90,0 00,0 00 by P u b li c Law 91-2 14, ap prov ed 

March 16, 1970. The f u l l amount a u th o riz e d has been a p p ro p ria te d . O b li g a ti o n s and e xp e n d itu re s 

in c u rr e d to Ja nu ar y 1, 1976, to ta le d $45,0 36,4 00. To com ple te th e p r o je c t, based on

c o m p e ti ti v e b id s re ce iv e d fo r th e f in a l sta ge o f c o n s tr u c tio n wor k and o th e r re q u ir e d , p ro je c te d 

e x p e n d it u re s , i t is now e stim a te d th a t an in cre ase o f $33,0 00,0 00 in th e a u th o riz e d lim it o f co st 

and an a d d it io n a l a p p ro p ria ti o n in th a t amount w i ll be re q u ir e d . The basis o f th is p ro je c tio n 

is shown on th e fin a n c ia l sta te m ent a t th e end o f my re p o rt.

S ta tu s o f P ro je c t

Work un de r th is p ro je c t is bein g per form ed in 4 c o n s tr u c tio n ph as es . Phase I "E xcava tion s and 

fo u n d a ti o n s " has been co m ple te d a t a co st o f $7,3 01,2 24. Phase II "Q u a rry in g , fa b r ic a tio n , 

and d e li v e r y o f th e e x te r io r m arb le and g ra n it e and o th e r e x te r io r st onew ork re q u ir e d fo r
th e s u p e rs tr u c tu re " is now co m ple te d a t a co st o f $5,3 04,8 02. Phase I I I "C o n s tr u c ti o n o f

th e S u p e rs tr u c tu re " (e x c lu d in g in t e r io r w ork , fi n is h e d in t e r io r s , and o th e r ite ms re la te d 

to such in t e r io r w ork , to be per form ed un de r a separa te c o n tr a c t) is now a p p ro x im a te ly 99 

perc ent co mplet ed at a c u rre n t c o n tr a c t co st o f $25,2 73,8 28. Phase IV " I n t e r io r and R ela te d 

w ork " remains to be c o n tr a c te d and perf orm ed.

C o m p e titive b id s fo r Phase IV w ork , in v it e d and re c e iv e d , we re opened on J u ly 23, 1975* Because o f 

th e a p p ro p ria ti o n and a u th o riz a tio n lim it a t io n o f $90,0 00,0 00, th e in v ita tio n s to b id re q u ir e d 

b id de rs to su bm it s e p a ra te ly s ta te d , a base b id c o v e ri n g minimum c o n s tr u c tio n wor k un de r Phase IV , 

and a ls o , s e p a ra te ly s ta te d , bid p ric e s on 17 a d d it iv e s and 1 a lt e r n a te . The a d d it iv e s in clu ded 

c o n s tr u c tio n wor k un de r th e o r ig in a l ap pr ov ed Phase IV prog ram and o th e r c o n s tr u c tio n wor k not 

in clu de d in th e o r ig in a l ap pr ov ed pro gr am , but subsequently ap pr ov ed fo r in c lu s io n as m o d if ic a ti o n s 

to such pro gr am .

F iv e b id s were re ceiv ed fo r th e Phase IV w ork . The base b id s rang ed from a low bid o f $44,4 80,0 00 

to a hig h bid o f $49,2 00,0 00. The low b id fo r th e a d d it iv e s to ta le d $22,5 55,3 00, w hich when addedto th e low base bid amoun ted to a gr an d to ta l low b id o f $67,0 35,3 00
T his am ou nt, when added to a ll o b li g a tio n s in c u rr e d to January 1, 1976 un de r the $90,0 00,0 00 

a p p ro p ria ti o n and to p ro je c te d o b li g a tio n s re q u ir e d fo r ite ms o th e r than Phase IV c o n s tr u c tio n 

work to co m ple te th e p r o je c t, in d ic a te th e n e c e s s it y o f an in cre ase o f a p p ro xim a te 1'/ $33,0 00,0 00 

in th e a u th o riz e d lim it o f co st and a co rr e sp o n d in g need o f an a d d it io n a l a p p ro p ria ti o n in th a t 

am ou nt, b e fo re a c o n tr a c t may be aw ar de d.

By d ir e c tio n o f th e House O ff ic e B u il d in g Com miss ion, Se nate O ffic e B u il d in g C orm is sio n, and 

J o in t Com mittee on th e L ib ra r y , veste d by law w it h a u th o r it y over th e p r o je c t, th e fiv e b id de rs 

were re quest ed to ex te nd th e tim e fo r acce pta nce o f th e ir b id s from th e re q u ir e d acc epta nce 

date o f September 21 , 1975 to November 21 , 1975, w hic h a ll fiv e ag re ed to do. They were 

again re quest ed to exten d th e m o d if ie d acce pta nce date from November 21, 1975 to Janu ar y 21 , 

1976, whi ch two o f th e fiv e b id d e rs ag re ed to do. Those two b id d e rs we re fu rth e r re quest ed 

to ext en d th e acc epta nce date from Ja nu ar y 21 , 1976 to Febru ary 21 , 197 6, whi ch th ey bot h 

ag reed to do. One o f th ese two b id d e rs was th e b id d e r who subm itte d th e lo w est b id fo r th e 

ove ra 11 p ro j e c t .

■U
66 -482 O - 76

I t is th us im p e ra ti v e , i f th e go ve rn men t is to hav e th e b e n e fit o f th e low b id , th a t 

le g is la tiv e a c ti o n be ta ke n w hich w i ll p ro v id e fu nds p r io r to Febru ary 21, 197 6. A lthough 

th e re is some in d ic a tio n o f th e p o s s ib ilit y o f an a d d it io n a l e x te n s io n o f th a t date u n t il 

a p p ro x im a te ly March 3, 197 6, no fir m le g a l comm itm ent has been e ff e c te d in th a t re g a rd .

The fo ll o w in g fin a n c ia l sta te m ent is subm itte d fo r th e in fo rm a ti o n o f th e Com mittee .

T o ta l A u th o ri z e d L im it o f Cos t o f P r o je c t................................................................................. $ go,0 00,0 00

T o ta l A p p ro p ri a te d fo r P r o je c t...................................................................... $ 90,0 00,0 00T o ta l Expended and O b lig a te d to Ja nuary 1, 19 76 :

Phase I: E xcavations and F o u n d a tio n s.................. 7,3 01,2 24

Phase I I : E x te rio r S to ne............................................... 5,3 04,8 02

Phase I I I : S u p e rs tr u c tu re ............................................... 25,2 73,8 28Shop In s p e c ti o n o f s tr u c tu r a l s t e e l........................... 9,6 29R e lo c a ti o n o f w ate r and sewer li n e s and s tr e e t

and curb w o rk ......................................................................... 26 8,85 8

S o il te s tin g , s u rv e ys, and m is ce lla n eo us

c o n s tr u c tio n c o s ts ............................................................. 10 ,855
10 0,00 0

50 ,0 00

24, 500

8,1 50

3,9 00

70,0 00

4,0 70,7 49

2,5 39,9 05

M o d e llin g and c a rv in g Ma dis on s ta tu e .........................

Des ign and in s t a lla t io n o f d e c o ra ti v e scre en, 

ma in e n tr a n c e ........................................................................

Des ign m odel, s c u lp tu ra l fo u n ta in ................................Des ign and s c u lp tu rin g o f 2 br onz e m e d a ll io n s ...D e s ig n -c a rv in g in g la ss L ib ra ry o f Co ngress 

s e a l............................................................................................

E x h ib it C o n su lta n t S e rv ic e s .............................................

A r c h it e c tu ra l and E n gin ee ri n g S e rv ic e s ,

in c lu d in g P re li m in a ry Plans and Su pp lemen ts 

to such P la n s ........................................................................

A d m in is tra tiv e and M is ce lla n eo us Exp en se s..............

T o ta l Expended and O b lig a te d to 1 /1 /7 6 .................................... ( -) 45,0 36,4 00

U no bliga te d Ba lanc e 1 /1 /7 6 . ........................................................ 44,9 63,6 00

U nobligate d bala nce, 1 /1 /7 6 , bro ught fo rw a rd ........................................... 44,9 63,6 00

P ro je cte d O b li g a ti o n s Req ui re d to Co mple te P r o je c t:

A d m in is tr a ti v e and M is ce lla n eo us expense s.............. 3,6 00,0 00

Minimum c o n s tr u c tio n wor k un de r Phase Iv

“ In te r io r Work" based on low b id 7 /2 3 /7 5 ......... 44^ 48 0, 00 0

A d d it io n a l a r c h it e c tu r a l and e n g in e e ri n g fe e , 

based on Minimum c o n s tr u c tio n w ork , Phase 

IV , low base b id ............................................................... 324 ,000
Oth er C o n s tr u c ti o n Work un de r o r ig in a l ap pr ov ed 

Phase IV pro gra m , based on low b id 7 /2 3 /7 5 fo r suc h ite m s, s ta te d as separa te " A d d it iv e " 

p ric e s over and above base b id ................................ 12,8 46,0 00

A d d it io n a l a r c h it e c tu r a l and e n g in e e ri n g fe e , 

based on O th er C o n s tr u c ti o n Work, Phase IV , 

low b id a d d it iv e s - o r ig in a l ap pr ov ed

pro gra m .................................................................................... 642 ,300 ( - ) 6 l ,8 92,3 00

Excess Co st bas ed on a 11 wor k in clu de d in

o r ig in a l, ap pro ve d pro gra m ...........................................................( —) 16,9 28,7 00

O th er C o n s tr u c ti o n Work, not ap pr ov ed in o r ig in a l 

ap pr ov ed pro gr am , but app ro ve d fo r in c lu s io n 

in m o d if ie d pro gr am , based on low b id 7 /2 3 /7 5 

fo r such item s, Phase IV , s ta te d as separa te 

" A d d it iv e " p ric e s , over and above base b id . . . . 9,7 09,3 00

A d d it io n a l a r c h it e c tu r a l and e n g in e e ri n g fe e , 

based on O th er C o n s tr u c ti o n Work, Phase IV , 

low bid a d d it iv e s , not in clu de d in o r ig in a l

ap pr ov ed pro gra m .................................................................. 48 5, 46 5

C o n tin g e n c y A ll o w a n c e ............................................................... 5 ,8 7 6 ,5 3 5

Exc ess Cos t to C om ple te P r o je c t .....................................................

( - ) 16,0 71.3 00

( - ) 3 3 ,0 0 0 ,0 0 0
8

Lihrarij o f Congress

Jan ies Madison Mem orial Building

o

Jam es Madiso n was th e fo re m ost sc h o la r in att e n d a n c e a t th e C o n s ti tu ti o n a l 

Con ve nt io n o f 1787, and a c h ie f a r c h ite c t o f th e B ill o f R ig hts which is 

em bodie d in th e f i r s t te n ame ndm ents to th e C o n s ti tu tio n . He was co -a u th o r 

o f th e in f lu e n t ia l F e d e r a lis t Pap er s which ad voca te d th e ad o p ti o n o f th e 

pr op ose d C o n s ti tu ti o n by th e se v e ra l s t a t e s . At W ash in gto n's u rg in g he 

became a can d id a te fo r and was e le c te d a member o f th e f i r s t House o f 

R e p re se n ta ti v e s to a s s i s t W as hi ng to n in p u tt in g th e new C o n sti tu ti o n in to 

e f f e c t.

He was S e c re ta ry o f S ta te in J e f f e r s o n 's c a b in e t, fo u rth P re sid e n t 

o f th e U nited S ta te s , and c h a n c e ll o r o f th e U n iv e rs it y o f V ir g in ia . As 

e a rly as 1783 , Ma dis on had pro pose d to th e C o n ti n e n ta l Con gres s th e id ea 

o f a li b r a r y composed o f bo ok s "p ro p er to th e use o f C ongre ss ". Sin ce 

M adis on's ac hi ev em en ts as h is to r i a n , p o l i t i c a l s c i e n t i s t and st ate sm an 

were so la r g e ly in th e re alm o f th e i n t e l l e c t , which le d him to be c a ll e d 

th e F a th e r o f th e C o n s ti tu tio n , a lib r a r y in h is name, to be ad m in is te re d 

by th e L ib ra ry o f C on gre ss , is a mos t a p p ro p ria te and s ig n if ic a n t way to 

m em ori ali ze h is c o n tr ib u ti o n s to America.
9

i / TO

LO CA TION PLAN

RST STR EET

STREET

1. U nit ed S ta te s C ap it o l

2. R u s se ll Sen at e O ff ic e B u il d in g

3. D ir kse n Sen at e O ffi c e B u il d in g

4. U nit ed S ta te s Supreme Cou rt B u il d in g

5 . F o lg er Shak es pea re L ib ra ry

6. Can non House O ff ic e B u il d in g

7. Lo ngwo rth House O ff ic e B uil din g

8. Ra yburn Hou se O ffi c e B uil din g

9. L ib ra ry o f Co ng ress Main B uil din g

10 . L ib ra ry o f Co ng ress Annex B u il d in g

11 . L ib ra ry o f Con gr es s Jam es Ma dis on

Mem orial B u il d in g
10

BACKGROUND

The L ib ra ry o f Con gr es s was e s ta b li s h e d by an Act o f C on gr es s, 

ap pr ov ed on A p ri l 24 , 18 00 . I t was n o t u n t i l 1897 th a t th e L ib ra ry 

o ccupie d, fo r th e f i r s t ti m e, a b u il d in g o f i t s own, th e one now re f e rre d 

to as th e Main B u il d in g . A d d it io n a l sp ac e was pro vid ed in th is b u il d in g 

by ad ded c o n s tr u c ti o n in th e y e a rs 1910 , 19 25 , 19 27 , 1934 and 19 39 . The 

L ib ra r y 's Annex B u il d in g was co m ple te d in 19 38 . The t h i r t y - f i v e y ears 

sin c e oc cu pa nc y o f th e Annex in 1939 is th e lo n g e s t p e ri o d w it h o u t an 

in c re a se in sp ac e o f i t s own. At th e same ti m e, th is ha s bee n th e p eri o d 

o f g r e a te s t expansi on b o th in th e L ib ra r y 's h o ld in g s and in th e demands 

up on i t , dem ands wh ich ha ve b ro u g h t in to b ein g new se rv ic e s and ma rke d 

in c re a se s in e x is tin g s e r v ic e s , an d in s t a f f . As a r e s u l t th e L ib ra ry 

ha s be en o p e ra ti n g und er se v ere handic aps o f ex trem e co n g e sti o n and 

d is p e rs io n , w it h in adequate f a c i l i t i e s fo r em ploy ee s and w it h many o f 

i t s p u b li c a re a s ta k en over fo r n e c e ssa ry s to ra g e , work and a d m in is tr a ti v e

fu n c ti o n s .

In 1958, th e L ib ra ry o f Con gr es s su b m it te d to th e J o in t Co mm ittee 

on th e L ib ra ry j u s t i f i c a t i o n in su p p o rt o f an a d d it io n a l b u il d in g .

P u b li c Law 86 -4 69 , ap pr ov ed May 14 , I960 , became th e f i r s t

le g i s l a ti o n toward a lle v ia tin g th e L ib ra r y 's c u rre n t cro wd ed c o n d it io n s:

"R es ol ve d by th e S en ate and Hou se o f R e p re se n ta ti v e s 

o f th e U nited S ta te s o f Ame ric a in Con gr es s ass em ble d,

Tha t th e A rc h it e c t o f th e C a p it o l, und er th e d ir e c tio n 

and su p e rv is io n o f th e J o in t Comm itte e on th e L ib ra ry , is 

a u th o riz e d and d ir e c te d to p re p a re p re li m in a ry p la n s and 

e sti m a te s o f c o s t fo r an a d d it io n a l b u il d in g fo r th e 

L ib ra ry o f C o n g re ss ."

"Th e A rc h it e c t o f th e C a p it o l is a u th o riz e d und er th e 

d ir e c tio n o f th e J o in t Comm itte e on th e L ib ra ry , to make 

su ch e x p en d it u re s as may be n e c e ssa ry to c a rry o u t th e 

p ro v is io n s o f th is r e s o lu tio n , and th e re is here by a u th o riz e d to be a p p ro p ria te d fo r su ch purp ose s th e sum o f 

$ 7 5,0 00."
11

The L e g is la ti v e Branc h A p p ro p ri a ti o n s Ac t fo r f i s c a l y e a r 19 61 ,

P u b li c Law 86 -6 28 , ap pr ov ed Ju ly 12 , 19 60 , c o n ta in ed th e fo ll o w in g

p ro v is io n un de r th e head in g " A rc h it e c t o f th e C a p it o l" :

"A d d it io n a l L ib ra ry B u il d in g - To e n ab le th e A rc h it e c t, 

un de r th e d ir e c tio n o f th e J o in t Co mm itte e on th e L ib ra ry , 

to p re p a re p re li m in a ry p la n s and e sti m a te s o f c o s t fo r an 

a d d it io n a l b u il d in g fo r th e L ib ra ry o f C ongre ss , as a u th o riz ed by P u b li c Law 86- 46 9, $75,0 00, to re m ai n a v a il a b le 

u n t i l expended."

Follow in g th e a p p ro p ria ti o n o f fu n d s, and as d ir e c te d by th e 

J o in t Comm itte e on th e L ib ra ry , th e A rc h it e c t o f th e C a p it o l e n te re d 

in to a c o n tr a c t on A p ril 12 , 19 61 ,w it h th e a r c h ite c tu r a l fi rm DeW itt ,

Po or and S h elt o n (A sso c ia te A rc h it e c ts ) fo r th e n e c e ssa ry a r c h ite c tu r a l 

and e n g in e e ri n g s e rv ic e s to p re p a re p re li m in a ry p la n s and e sti m a te s o f 

c o s t fo r th e a d d it io n a l b u il d in g .

A n ti c ip a ti n g th e pass age o f th e 1960 p re li m in a ry le g i s l a ti o n 

(P u b li c Law 86-4 69), th e A rc h it e c t o f th e C a p it o l ha d o r ig in a lly 

c o n sid ere d s ix sq u are s (n o s. 78 7, 78 8, 81 7, 81 8, 841 and 842) e a s t o f 

th e p re s e n t Annex B u il d in g , bord ere d by T h ir d and S ix th S tr e e ts , 

In de pe nd en ce Avenue and E a st C a p it o l S tr e e t as a p o s s ib le lo c a tio n fo r 

th e L ib ra r y 's a d d it io n a l b u il d in g .

Upon f u r th e r exam in ati on o f th e to t a l a re a in th e s ix sq u are s 

and th e L ib ra r y 's re q u ir em en ts o f 2,0 00,0 00 n e t sq u are fe e t fo r a 35 y ear 

p e rio d , th e A rc h it e c t o f th e C a p it o l as ked th e A sso c ia te A rc h it e c ts to 

f i r s t p re s e n t sc hem ati c p la n s base d on th e use o f o n ly fo u r sq u are s (n o s. 

78 7, 78 8, 817 and 81 8) c o n ti n g e n t up on h is o b ta in in g p erm is sio n to c lo se 

o f f su rfa c e t r a f f i c on F o u rt h S tr e e t be tw ee n In de pe nd en ce Avenue and E a st 

C a p it o l S tr e e t. As a r e s u l t o f th e N a ti o n a l C a p it o l P la nnin g Com m ission 's 

d e c is io n in May 1961 n o t to c lo s e o f f F o u rt h S tr e e t, th e J o in t Comm itte e 

on th e L ib ra ry d ecid ed th a t p la n n in g fo r th e a d d itio n a l b u il d in g be 

r e s t r i c t e d to sq u are s no. 787 and 788 o n ly .
12

On July 14, 1961, the Associate Arch itects submi tted to the 

Arc hitect of the Capitol plans and estimates of cost for the additional 

bui ldi ng for the Library on two squares east of the Annex Building. The

plans includ ed four floors bel ow grade and nine floors above; however,

beca use of building restrictions and the total area available, these 

plans prov ided only 75 percent of the Library's orig inal net space 

requirement.

Meanwhile, the Ass oci ate Architects had bec ome involved wit h

the Ja mes Madison Memo rial Com mission project. This Commission was 

establi shed by Public L aw 86-417, approved Apr il 8, I960, to consider and 

formulate "plans for the design, construction, and loca tion of a 

permanent m emori al to James Mad iso n in the city of Washington, District 

of Columbia, or in its immediate environs". After studying and rejecting 

several possib le sites for the memor ial building, the Commission finally 

decided u pon a part of squar e 732, situa ted on Independence Avenue, east 

of the Cann on Office Bui ldi ng and d irec tly south of the Library's Mai n 

Building.

On July 17, 1961, plans and estimates of cost for the memorial 

bui ldi ng we re submitted to the Arc hitect of the Capitol. These plans 

incl uded three und erground levels for the storage o f presidential papers 

and other treasured documents in the collections of the Library, and a 

small combination exhibit/research bu ilding c entered on the square above 

grade. As agreed up on by the Mad iso n Commission, the J oint C ommittee on 

the Li brary and the Libra ria n of Congress, the s taff ing and services of 

this buil ding wer e to hav e been administered by the Library of Congress. 

This build ing wo uld have prov ided the bal ance of the space originally 

requ ested by the Library.

After years of unsuccessful effo rt to obtai n autho rization for

cons truction of the Madison Memor ial as orig inally planned and equally
13

u n su c c e ssfu l e f f o r ts to o b ta in a u th o r it y to b u il d a se co nd L ib ra ry an ne x 

i t was co nc lu de d th a t th e two p ro je c ts sh ould be jo in e d in to one la rg e 

b u il d in g wh ich wo uld oc cu py th e f u l l a re a o f sq uare 732 a t c o n sid e ra b le 

sa v in g s o f tim e and money , and which wo uld be more e f f i c i e n t to a d m in is te r 

th an th e o r ig in a l p la n s fo r two b u il d in g s .

ENABLING LEGISLATION

The en ac tm en t o f P u b li c Law 89 -2 60 on O ct ober 19 , 1965 re so lv e d 

th e m a tt e r by co mbi ning th e two p ro je c ts in to on e b u il d in g to be c o n str u c te d 

on sq u are 732 and to be known as th e L ib ra ry o f Con gr es s Jam es Madiso n 

M em orial B u il d in g . The l e g i s l a ti o n s p e c ifie d th a t th e p ro je c t sh ould be 

c a rr ie d fo rw ar d by th e A rc h it e c t o f th e C a p it o l under th e d ir e c tio n jo i n tl y 

o f th e House O ff ic e B u il d in g Co mm ission , th e Senate O ff ic e B u il d in g

Co mm iss ion , and th e J o in t Comm itte e o f th e L ib ra ry , a f t e r c o n s u lta tio n 

w it h a co mm itt ee d e sig n a te d by th e American I n s t i t u t e o f A rc h it e c ts .

The Madiso n Me mo rial H all was to be dev el oped in c o n s u lta tio n w it h th e 

Jam es Madiso n Me mo rial Co mm ission . P u b li c Law 89 -2 60 a ls o pla ced a 

c e ilin g o f $7 5, 00 0, 000 on th e c o n s tr u c ti o n fo r th e b u il d in g .

P u b li c Law 89-3 09, si gned O ct ob er 31 , 19 65 , a p p ro p ria te d $5 00 ,000 

fo r p re li m in a ry p la n s and s p e c if ic a tio n s fo r th e b u il d in g . In Ju ne 19 66 , 

w it h th e appro val o f th e Mad iso n B u il d in g C o o rd in ati n g Co mm ittee which 

had be en app o in te d to c o o rd in a te th e in t e r e s t s o f th e ab ov e d e sig n a te d 

C o n g re ss io n al b o d ie s, th e A rc h it e c t o f th e C a p it o l e n te re d in to an o th er 

c o n tr a c t w it h th e A sso c ia te A rc h it e c ts . On Aug us t 25 , 1967 th e p re li m ­

in a ry p la n s and d esig n s w er e ap pr ov ed by th e C o o rd in ati n g Co mm itte e.

E ffo r ts to se c u re a d d it io n a l fu n d s, beyo nd th e $5 00 ,000 

a p p ro p ria te d in 1965 fo r p re li m in a ry p la n s , were d e fe rre d by Con gress 

u n t i l December 12, 1969 wh en, w it h th e en ac tm en t o f P u b li c Law 91 -1 45 , 

th e sum o f $2 ,8 00,0 00 was a p p ro p ria te d fo r th e p re p a ra ti o n o f f in a l 

dr aw in gs and s p e c if ic a tio n s . Howev er, th e a v a i l a b i l i t y o f th e se fu nd s

66-482 O - 76 -- S
14 l

f o r o b l ig a t io n wa s c o n tin g e n t upo n th e a d o p ti o n o f a r e s o l u t i o n (S -2 910) 

a u th o r iz in g an in c r e a s e in th e t o t a l c o s t o f th e b u ild in g from th e 

$ 7 5 ,0 0 0 ,0 0 0 s p e c if ie d in 1965 to $ 9 0 ,0 0 0 ,0 0 0 , as n e c e s s i t a t e d by in c re a s e d 

c o n s t r u c t i o n c o s t s . P u b lic Law 9 1 -2 1 4 , sig n e d March 16, 1970, ad o p te d 

th e r e s o l u t i o n an d th e re b y r e le a s e d th e fu n d s f o r f i n a l p la n n in g . The 

197 1 a p p r o p r ia tio n s (P u b lic Law 9 1 -3 8 2 , ap p ro v ed A ugust 18, 19 70 ) 

in c lu d e d $ 1 5 ,6 1 0 ,0 0 0 f o r e x c a v a tio n , fo u n d a ti o n an d e x t e r i o r s to n e ; an d 

f i n a l l y , fu nds ($ 7 1 ,0 9 0 ,0 0 0 ) to c o v er th e re m a in d e r o f th e a u th o riz e d 

c o n s tr u c tio n c o s ts f o r th e s u p e r s t r u c t u r e an d i n t e r i o r s w ere in c lu d e d in 

th e 19 72 a p p r o p r ia tio n s ( P u b lic Law 9 2 -5 1 , ap p ro ved J u ly 9 , 1 971).

CURRENT STATUS

The b u ild in g i s b e in g c o n s tr u c te d u n d er fo u r c o n tr a c tu a l p h a se s:

Phase I in c lu d e d th e e x c a v a tio n an d f o u n d a ti o n . The c o n tr a c t 

f o r t h i s p h ase was aw ar ded f o r $ 7 ,2 3 9 ,0 0 0 to th e Hen ry A. K n o tt Company 

o f B a lt im o re , M ar yla nd on A p r il 2 3, 1971. Work s t a r t e d on Ju ne 1,

1971, an d wa s co m p le te d in Ja n u a ry 1973 .

Phase I I in c lu d e d th e q u a r ry in g o f a l l e x t e r i o r s to n e . The 

G e o rg ia M arb le Company o f A t l a n t a , G e o rg ia wa s aw ar ded t h i s c o n tr a c t f o r 

$ 5 ,2 7 9 ,4 1 3 on De cember 16, 1971. As o f m id -1 975 a l l m arb le an d g r a n it e , 

an d c u rb an d p a v in g b lo c k had b een d e liv e r e d .

Phas e I I I in c lu d e s th e s u p e r s t r u c t u r e , c o n s i s t in g o f th e 

s t r u c t u r a l fr am e, e x t e r i o r c lo s u r e , c o n n e c ti n g tu n n e ls , e x t e r i o r u t i l i t i e s 

an d p e r ip h e r a l e x t e r i o r f i n i s h i n g . The c o n tr a c t f o r t h i s p h ase was 

aw ar ded f o r $ 2 4 ,7 8 9 ,0 0 0 to th e G eo rg e Hyman C o n s tr u c ti o n Company o f 

B e th e sd a , M ar yla nd on Dec em be r 12, 1972. C o n s tr u c ti o n s t a r t e d on 

Ja n u a ry 2 3 , 19 73, an d as o f S epte m ber 1975 wa s 95 p e r c e n t c o m p le te d .

Phase IV w i l l p ro v id e th e i n t e r i o r an d a l l r e l a t e d wor k su ch as 

p lu m b in g ; e l e c t r i c a l s e r v i c e ; h e a tin g , v e n t i l a t i n g , an d a i r c o n d itio n in g ; 

s p r i n k l e r sy ste m s; s e c u r i t y sy ste m ; bo ok co n veyor sy s te m s; e le v a t o r s ; an d
a l l a r c h ite c tu r a l f in is h e s . T his ph as e of c o n s tru c ti o n w ill be th e mo st 

expensi ve and w ill re q u ir e th e lo n g e s t tim e fo r com ple ti on. In re sp onse 

to in v ita tio n s to b id is su e d by th e A rc h it e c t o f th e C a p it o l, date d 

Ja nuary 31 , 1975 , fiv e b id s were re c e iv e d and op ened on Ju ly 23 , 1975.

As o f Se ptem be r 15, 1975 a c o n tr a c t aw ard was s t i l l pen din g.

MISCELLANEOUS INFORMATION

S i t e :

Squ ar e 73 2, bo un ded on th e n o rth by In de pe nd en ce Av enue, on th e 

so u th by "C" S tr e e t, on th e w es t by F ir s t S tr e e t, and on th e 

e a s t by Second S tr e e t.

P im ensi ons:

Above gr ad e - 514' e a s t to w es t x 414* n o rt h to so u th 

Below gr ad e - 614 ' e a s t to w est x 495' n o rt h to so u th

A re a:

G ro s s ....................................................... ..2 ,1 12,4 92 sq . f t .

Net a s s ig n a b le ...........................................................1 ,5 60,5 82 sq . f t .

H ei ght o f B u il d in g : (a bo ve gra de from In de pe nd en ce Avenu e)

F i r s t fiv e f l o o r s ......................................................... 71.5 f t .

S ix th f l o o r .......................................................................8 3.0 f t .

M ec ha ni ca l p e n th o u se ................................................ 10 1. 5 f t .

Number o f f l o o r s : (f ro m In de pe nd en ce Avenu e)

Above gr ad e - S ix p lu s m ec hanic al pen th ouse 

Below gr ad e - Thr ee

F lo o r L oad in g:

Bo ttom th re e f l o o r s ..................................................250 lb s . p er sq . f t .

F i r s t th ro ugh s i x th f l o o r s ..................................150 lb s . p er sq . f t .

C e il in g H e ig h ts : (a vera ge)

F in is h ed f lo o r to s t r u c tu r a l sla b a b o v e .. .1 3 '- 6 "

F in is h ed flo o r to su sp en de d c e i l i n g ................ 9 '- 3 '
16

Set Ba ck s:

At grade level the buildin g will be set b ack 78 feet from 

Independence Avenue, 39 feet from "C" Street, and 61 feet 

from First and Second Streets. The sixth floor will be

set back approximately 15 feet on all sides from the 

floors below. The m echanical penthouse will b e set back 

from the sixth floor 74 feet on the north, 64 feet on the 

south, and 57 feet on the east and west.

Connecting Tun nels:

One pedestrian and service tunnel to the Canno n House Office 

Building, and one to the Library's Mai n Building.

Exterior St on e:

Granite up to grade level and marble above.

Entranc es:

The main entrance is located in the middle of the building 

on Independence Avenue, and opens into the mai n publi c lobby. 

There will also b e two entrances on "C" Street, and one each

on First and Seco nd Streets.

Mai n L ob by :

Entered off of Independence Avenue, the main lobby proper, 

two stories in height wi th marble floors and walls and 

meas uring 35 ’ x 45', serves as an en trance to the James 

Mad iso n Memorial Hall, to the public reading rooms, and to 

other functions hav ing direct p ublic contact. An information 

booth, the sales desk, checkstand and public toilet facilities 

are availa ble directly from the lobby, as are publi c elevators 

to all floors.

The main lobby conti nues into the building as the major 

north/south axis, and terminates in an interior landscaped

court.
17

Interior Co ur t:

The glass enclosed interior court locate d in the center of the 

building, extends from the first floor through the third floor, 

measu res app roximately 75' x 87’, is artif icially lighted and 

condi tioned to support plant life, and will be provided with 

stone benches and walkways, planter boxes and an a rtistic

wat er fountain.

James Mad iso n Mem orial Ha ll :

This monumental hall, entered from the m ain lobby, is a twostory room with a ceiling height of 23', and covers an area 

of approximately 45' x 75'.

On enter ing the Mad ison Memorial Hall, the visito r will see at 

the far end a marble sculpture of James Mad ison seated in 

front of a marble screen. The ceiling will be coffered and 

richl y decorated. The floor wi ll be marbl e in a simple mosaic 

pattern. The teakwood panels on both sides of the room will 

be incised wit h Madison quotations.

Adjo ining the Hall w ill be an area for an office, an audio 

control room, a pan try-type service facility, and public rest

rooms .

James M adiso n Ex hibi tion Ha ll :

Passing throug h the portals w hic h flank the Madis on statue,

the vi sitor wil l enter the lower level of the Madis on

Exhibition Hall. This area is approxim ately 65''x 75' and 

has a ceiling heigh t of 11'. Floo r-to-ceiling teakwood

exhibit cases will be constructed on three of the walls and

on two faces of the four center columns. The floors will be

of Wa lnut Tavernelle marble blocks w ith Craig Pink marble 

accent strips. The reflect ed ceiling plan will feature
18

su sp en de d aluminum p an el s t r ip s w it h a vee-s haped d esig n

ex te n d in g fro m th e o u te r w a ll s to th e c e n te r a re a . F a c il it ie s 

w ill be pro vid ed w it h in th e a re a fo r a u d io -v is u a l d e s c rip ti o n s

o f th e item s e x h ib ite d . W it hin th e fo u r colum ns lo c a te d in

th e c e n te r o f th e room w ill be a c ir c u la r s t a i r le a d in g to th e

upper le v e l o f th e E x h ib it io n H a ll .

The seco nd flo o r e x h ib it a re a w ill ha ve a c e ilin g h e ig h t of 

9 ’-3 " , and room s iz e w ill corr esp ond w it h th a t o f th e lower

le v e l. Teakwood e x h ib it case s w ill lin e two o f th e w a ll s , and 

mo vable p o le -ty p e e x h ib it p an els w ill be pro v id ed fo r a d d it io n a l 

e x h ib its w it h in th e a re a as nee de d. The f lo o r , two of th e w a ll s 

and th e s t a i r s w ill be c a rp e te d . The r e f le c te d c e ilin g p la n

w ill be th e same as on th e lower le v e l.

Rea ding Rooms:

The re ad in g room s c u rr e n tly pla nned fo r lo c a tio n w it h in th e 

Madiso n B u il d in g in c lu d e th e C o n g re ss io n al, Ge ograp hy and Map, 

Law, M anusc ri pt, M ot io n P ic tu re , M us ic, Newspaper and C urr ent 

P e rio d ic a l, and P r in ts and P hoto gra phs. Combined, th ese 

re a d in g room s w ill accom modate appro xim ate ly 900 re a d e rs .

A th e a tre w it h a s e a tin g c a p a c it y o f 64 is lo c a te d on th e 

th ir d f lo o r, and w i l l be eq ui pp ed w it h some o f th e mo st 

mo der n and s o p h is ti c a te d p ro je c tio n and a u d io -v is u a l eq ui pm en t. 

As sem bly Room:

L oca te d in th e c e n te r o f th e s ix th flo o r , th is 3, 20 0 sq uar e 

fo o t re c ta n g u la r room is pla nn ed fo r m u lti -fu n c tio n s . S p e c ia l 

desi gned e n c lo su re s w ill be pro vid ed fo r th e sto ra g e o f c h a ir s , 

ta b le s and a mov ab le sta g e o r p la tf o rm . I t w ill ha ve a moder n 

des ig ned and eq uip ped p ro je c ti o n boo th ; a 12 ' x 2 0 ', fix e d ,
19

curved proj ect ion screen which can be concealed by special 

sliding panels; and a sm aller ceiling-mounted, pull-down 

projection screen. Special lighting and audio-visual equip ment 

will also be provided.

Cafeteria:

A cafeteria, wi th a pproxim ately 1,000 seats, is planned for 

the sou th side of the sixth floor. The service and dining 

areas will be carpeted. Colorful dec orative wal l finishes 

and special lighting will be used in the din ing area. The 

service area is desig ned for the use of the "scramble" food 

service sys tem to m inimize the delays usu all y experienced in 

waiting in line. The cafeteria opens onto a roof terrace

whi ch wil l pro vid e a panoramic view of parts of Washington,

the Pot omac River, and n earby Virginia.

Preservation Fa cil ities:

The most mod ern and elaborate equipment and techniques for

the pre servation of library materia ls wil l be installed in

the research and testing laboratory, res toration shop, 

experimental pap er mill, and the fumigati on facility, all 

of which are planned for loca tion on the groun d floor.

Heal th Ro om :

A mode rn heal th facility will be locate d o n the ground floor, 

readily accessible to the Li brary staff and public, and will 

include a waiting room; mul ti- purpose r ooms for examination,

treatment and bedrest; rest rooms; storag e rooms; offices for 

medical and nursi ng staff; and an area for heal th training

and guidance.
20

Service Ar ea :

The activities whi ch are m ain ly responsible for the receipt, 

dis tri bution and ship ment of librar y material, supplies and 

equ ipment are located o n the ground floor. The service

entr ance to these activ ities is located at the center of the

buildi ng on "C" Street. The truck well and truck dock are 

shie lded from view by the exterior wall, planter boxes and 

electric ally operated rolling doors. The truck dock, 

approxim ately 200 feet long, will accommodate six trucks and 

three tractor trailers, and w ill be equipped with levellators,

lifts and scales. Included in this area is a trash dock and

wel l wh ich will have the p otential for han dling four 29 cubic 

yard electr ic trash compactors. This service area will be 

the central receiving faci lity for the Library's three-building 

complex.

A parking facility for a pproximately 330 cars is located in 

the bo ttom level (sub-basement) of the building. Ramps to 

this area have been prov ide d off of F irst and S econd Streets. 

The garage will be protected by automatic sprinklers and an 

air exhaust system, and w ill be prov ided wit h emergency fire

exits.

Occupants:

As present ly planned, the departments and divis ions scheduled 

to occupy the Mad iso n Buil din g include: the Office of the 

Librarian, the Admi nis tra tiv e Depar tment (except Photoduplication 

Service), the Congressional Resea rch Service, the Copyright 

Office, the Law Library, the P roc essing Department (except 

Catalogi ng Dis tri bution Service Division), and five divisions of
21

the Reference D epar tment (the Geography and Map, Manuscript, 

Music, Prints and Photographs, and Seria l Divisions).

Gene ral Fea tur es:

- Mo dule - 5 1

- Bay size - 25' x 25'

- Ligh tin g - two-lamp, 1' x 4', air troffered, fluorescent

fixtures.

- Air conditioning - throughout the building, wit h steam and 

chilled water being supplied from the C apit ol Power Plant.

- Spri nkler System - throughout the building.

- Public Address Sys tem - throughout the building.

- Service Cores - There wil l be four ma in service cores

containing vertical transportation, boo k conveyors, rest 

rooms, trash chutes, electrical and communication closets, 

air ducts, pub lic telephones, etc. The se cores w ill be 

supplemented by a public core at the no rth center, and a 

special service core at the s outh center.

- Verti cal Tra nsp ortation - the bu ildi ng has the potential for 

the i nstallation of twenty-two combination passeng er/service 

elevators, one large freight elevator, and one small freight 

eleva tor pri marily for service to the sixt h floor cafeteria. 

There w ill also be escalators serving the fourth, fifth and 

sixth floors, with knock- out panels provid ed for extension

to floors be low if needed.

- Book Conve yor Sys tem - verti cal book c onveyors will be 

installed in e ach of the four m ain cores wit h a connecting 

horizontal conv eyor through the Independence Avenue tunnel 

to the Ma in and Anne x Buildings.
22

- Partitions - except for fire walls and special feature walls, 

the partitions w ill be floor-to-ceiling, movable, metal, with 

5' panels.

- Unde rfloor Raceway - a three duct pyramidal u nde rfloor raceway, 

set o n 5' centers with insert k nockouts on 15" centers, will be 

installed throughout most of the building.

- M oni toring Systems - there will b e two moni tor ing centers, 

one for security systems and one for building mec hanical 

systems.

September 15, 1975
23

EXPRESSIONS OF APPRECIATION TO ARCHITECT OF THE CAPITOL

Senator Hollings. First, Dr. White, let me express our appreciation 

and tha t of the com mittee to you and Mr. Campioli for the fine 

job with regard to this room and the new office are a next door. 

We asked to have it ready by today. Not only have you met that 

deadline, but I think it looks very attractive.

Do n’t you agree?

Senator Schweiker. I certainly agree. I could n’t believe it was the 

same room .

Sen ator Hollings. I though t some body turned on the light in here.

Please let the men who did all the work know how much we 

app rec iate the craftsmanship exhibited here.

AUTHORIZATION FOR APPROPRIATION

As I recall Public Law 89 -260 of Octob er 19, 1965 auth orized 

the con stru ctio n of the building and app rop riations for $75 million. 

Public Law 91-21 4 approved March 16, 1970 increased the auth orized 

app rop riat ion to $90 million and also prohibited the use of the building for general office building purposes.

The re is now pending in the House of Representatives a bill, H.R. 

11645, tha t would authorize the additiona l $33 million being sought 

here toda y and there apparently is general agreem ent between the 

two bodies that H.R. 1 1645 will be the authorizing vehicle.

Appearing on beh alf of this requ est in addition to Mr. White, who 

is the Architect of the Cap itol, is the Hon. Daniel J. Boorstin, our 

new Librarian of Congress, and their associates.

I app rec iate you both making yourselves available on this holiday 

afternoon , as we all realize the urgency of this request.

Before you begin your statements, I want to offer my con gratulations 

to the new Deputy Librarian of Congress, Mr. William J. Welsh. 

Mr. Welsh is no stranger to this subcommittee. He has been with 

the Library some 29 years now. We are glad to see you in your 

new capacity.

Dr. White, since this is your request, we will let you lead off 

and then we will hear from Dr. Boorstin.

HIGHLIGHTS OF JUSTIFICATIONS

Mr. White. Thank you, Mr. Chairman. If it is app ropriat e, 1 will 

simply highlight the justificatio ns which have been inserted in the 

record, then read some othe r per tinent information and be available 

then to answ er any questions you might have.

You may recall that this project was designed to be performed 

in four con struction phases. Phase I, which was the excavation and 

foun dations, has been com pleted. Phase II, which is really a materials 

purchasing con tract for the quarrying and fabrication of the exterio r 

stonewo rk, has been com pleted. And phase III, which is the construc ­

tion of the sup erstructure, is virtually com plete, with the exception 

of some very minor items. It is over 99 percen t com plete at this 

point and standing as you see it now in its presen t conditio n of 

being com pletely enclo sed and finished on the exterior but not really 

very far along on the inte rior, exce pt for the structural work that 

has been completed.
24

Competitive bids for the phase IV work, which is the interior and 

related finish work, were ope ned on July 23, 1975. The base bid 

was gre ater than the amo unt of funds which rem aine d available in 

the app ropriat ion for contract award.

We met with the House Office Building Commission, the Senate 

Office Building Commission, and the Joint Com mittee on the Library 

who are vested by law with authority over the project, and requ ested 

direction.

EXTENSION OF TIME BY BIDDERS

While the discussions were taking place with resp ect to whe ther 

or not the funds should be provide d in acc ord anc e with the bids 

or whether the building would have some oth er use and so forth, 

we were asked to request the bidd ers to extend the time during 

which their bids would be valid.

TIME EXTENSIONS FOR CONTRACT AWA RD

All five agreed to do so, until Novemb er 21. Just prior to November 

21, we asked for ano ther extension since no decisions had been made 

with regard to how we were to proceed. Two of the five bidders 

agreed to do that.

The two bidders were furthe r requested to extend the accept anc e 

date from January 21 to Feb ruar y 21, which they both agreed to 

do.

It is thus imperative if the Government is to have the bene fit of 

the low bid to provide funds pri or to February 21. Tha t is 7 months 

after the bids were subm itted and in a rising market, which we think 

is about as far as we can expect them to go.

We have some indication that a few more days might be made 

available in the event that we cam e down to the wire and still didn’t 

have all of the procedural ma tter s accomplished. But we have no 

legal com mitmen t, and we haven’t asked for one yet. We thou ght 

if we saw tha t necessity, we would do so prior to the end of this 

week, since the 21st is this coming Saturday.

EXPLANATION OF BIDDING PROC EDURE

It might be appropriate, because of the way in which the bids 

were taken, for me to read this doc ument which I believe you have 

in front of you called “ Pertine nt Inform atio n.’’

During our normal pro ced ures of periodic cost estim ating, as the 

design work progressed for phase IV and prio r to the issuance of 

the invitation for bids, it became apparen t tha t the bids were und oub ­

tedly going to be greater than the funds remaining in the auth orized 

app ropriat ion.

That conclusion was drawn even thoug h the pro ject is approximately 

$6 million under the constru ctio n budget throu gh the first three con ­

struction phases. It was tha t circum stance which encouraged us to 

go on, since the bids kept coming in und er the budget through the 

first thre e phases.

That encompasses a total of approximately $38 million worth of 

constru ctio n. We had budgeted it for somewhere in the neighborho od 

of $44 million. It is this latest phase, namely phase IV, in which
25

the accumulated effec ts of escalatio n in con stru ctio n costs have suddenly app eare d.

We therefore made an effo rt to devise a bidding pro cedure which 

would enab le us to rece ive a base bid which we hop ed would have 

been less than the funds available, so that we could enter into a 

contr act and proc eed with the work, prov ided that the Congress would 

agre e with that pro cedure at tha t time.

In any case, we felt it app rop riate to provide as much information 

as possible through the bidding process regarding cost breakdow ns 

so tha t the Congress could have alte rnat ives in making its judg men t. 

ITEMS ELIMINATED FROM BASE BID

In order to do that, we elim inated from the base bid and requ ested 

inste ad additive separate bids for certain portions of the constru ctio n 

work tha t would normally have been don e as a part of the process 

of completing the building. For exam ple, we elim inated the finishing 

of the fourth and fifth floors.

The “elim ina ted” items were thus not within the base bid for inte rior work. The means of determin ing the low bid der —that is, the scorekeep ing pro ced ure —was tha t the contr act would be awarded to the 

bidder who would provide all of the work required und er the base 

bid, plus as many of the additives, requ ired to be added in a par ticu lar 

sequen ce, as could be provide d for a given dollar amoun t as stated 

in the bidding docu ments.

LOWEST BID EXCEEDS AV AILABL E FUNDS

The lowest base bid received was nevertheless more than the 

amoun t of funds available in the app ropriat ion for contr act award, 

even with the elimination of many of the items that are necessary 

for the pro per use of the building.

These items include some of the elevators, the kitc hen and dining 

rooms and related space, the fourth and fifth floors, the moving stairways, the third floor aud itor ium , and so on.

These items were termed additives in that they were added to 

the base bid in determining who the low bidd er would be.

There was thus an unfortunate but necessary dual use of the term 

“ add itiv e.” The items of the type men tioned above are thus technical 

additives, but not additives in the sense tha t they are some thing that 

is beyond the original program for the building.

FIRE PROTECTION SYSTEM

Some of the items listed were indeed additives, however, in the 

sense that they were not part of the original prog ram. Additives Nos. 

16, 17 and 18, for exam ple, together comprise an expanded fire 

pro tection system. Separately they consist of additiona l sprin klers and 

asso ciated work, smoke con trol and fire alarm system s and smoke 

detection for designated are as and smoke detection for nondesignated 

areas. They were divided into those categories in orde r to make the 

deta iled dollar amounts available for judgm ent.

In tha t way we felt tha t the Congress could, if it so chose, omit 

the sprinkler system since it was not in the original program. The 

reason for that particu lar circ umstan ce was tha t in 1970, when this
26

program was evolved, the theory was tha t the water from a sprinkler 

system would damage the collection if it were to be acti vated and 

probably do more damage than a fire, which I think is generally 

known to have occurred in many cases.

Since tha t time, the restoration of documents tha t have been immersed in water has been highly develop ed as a result of the floods 

in Florence that took place several years ago and, in addition , sprinkler heads have recently been dev elop ed which turn off auto matically 

when the surrounding heat is reduce d. It is for tha t reason tha t we 

added these particu lar items which were not in the original program 

since that system became acc ept able to the Library.

BREAKDOWN OF ITEMS NOT IN ORIGINAL PROGRAM

A brea kdown of the items tha t comprise the total of $9,709 ,300 

of actual additives covering work not in original prog ram is attach ed, 

together with a brief description of the reasons for their being 

required.

The bulk of the total requested increase of $33 million is thus 

a result purely of escalation. When I say the bulk, I mean the difference betw een $33 million and the $9,700,000.

In my ju dgment all of these additives and altern ate items are necessary. We have been in detailed consult atio n with the Library personnel 

who have mad e proposals for these requ irem ents. We are in full 

agre ement tha t they are necessary in ord er for this stru ctu re to be 

the excellent building that it oug ht to be in orde r to house $200 

to $300 million worth of valuable documents.

It ought to be the finest library building that we can build, without 

frills. These items are neither frills nor e mbellishm ents. They are rath er 

soph istications for the pro tection , care, and use of the con ten ts of 

the building and not for making the building oste ntatiou s or luxurious.

Atta ched also is a partial list of the special purp ose features of 

this building which add valve and cost when com pared with ordinary 

office buildings. Even so, the actu al constru ctio n cost of this 2,106,000 

gross square foot building is com puted to be $51.02 per square foot, 

and the total project cost results in a $56.97 per squa re foot cost, 

using part of the contingency amo unt.

COMPARATIVE CONSTRUCTION COSTS

This com par ed with $63.04 for the South Portal Building, $78.06 

for the new FBI building, and approxim ately $70 for the extension 

to the Dirksen Building, all com puted with the same escalatio n values.

That com pletes the statem ent, Mr. Chairma n. I would be happy 

to answer any questions, if I can.

Senator Hollings. Le t’s hear from Dr. Boorstin. It may forego 

some of the questions.

STATEMENT OF LIBRARIAN OF CONGRESS

Dr. Boorstin. Thank you, Mr. Chairman, and members of the 

subc omm ittee .

I want to thank you for this opportunity to appear here today 

to speak to the urgen t need for the $33 million to com plete construction of the Library of Congress Jam es Madison Memorial Building.
27

As you know, Mr. Cha irman, the first three phases of con stru ctio n 

are virtually com plete, as the Arc hite ct has explained. The fourth 

phase of con stru ctio n remains to be con tracte d for.

Because all five of the bids tha t were received in July exce eded 

the funds available, a contr act could not be let. The low bidder, 

however, has twice extended his bid and it will expire on February 

21.

I understand, however, tha t he has orally agreed to extend it to 

early March. We certa inly hope tha t will be possible.

Con sequently, timing is of the essence if we are to take advantage 

of the bid and not be faced with the impossible situation of having 

to relet the bids in an econ omy of rising prices. The Gen eral Services 

Adm inistration has estim ated tha t constru ctio n costs rose 12 percen t 

in 1975 and will rise anoth er 10 percen t in 1976.

I believe tha t this subcom mittee is well aware of the spac e problems 

at the Library of Congress. We discuss this matter with you annually 

in our requests for funds for rental space.

Rental spac e is, however, only a stop-gap, inadeq uate solution. 

Without addition al space such as that provided for in the Library 

of Congress James Madison Memorial Building, the Library of Congress will not be able to mee t the responsibilities to serve the Nation 

placed upon it by Congress.

These responsibilities have grown significantly in the last dec ade, 

and it does not app ear tha t they will diminish in the future.

I am reminded daily of the richness and variety of the holdings 

and services of the Library of Congress. Every day I disc over new 

dem ands made, and properly being made , on our Library.

The vision of the Congress in establishing the Library of Congress 

and in continuing generou s sup port has made it possible for us to 

preserve the cultu ral and intellectual heritage of our Nation over 

the past 176 years, to develop new techniques for serving Congress 

and for making available the mate rials for learn ing to the libraries 

of the Nation.

LIBRARY EFFORT HAMPERED BY SPACE PROBLEM

The task of preserving the irre placeable materials become s impossible without pro per stora ge cond ition s. As you know, Mr. Chairman, 

we have been forced to stor e large collections of books, maps, 

newspapers, and oth er library items in rental space off Capitol Hill. 

1 his has caused serious inconvenien ce to Cong ress, to scholars who 

visit the Library, and to libraries tha t borro w mate rial from the Library 

of Congress.

It also has a damaging effect on the colle ctions them selves because 

of inadequate storage and the need to transp ort the materials long 

distances.

I might add also, Mr. Chairm an, it interferes with the use of the 

map collecti on, for example, which is now located outside of the 

District. There has been a decline of 40 percen t in its users since 

it moved to Virginia. The materials are available, but they are not 

being used to the exte nt which they should and could be used if 

they were here in o ur main building.
28

As it is now, space problems ham per us daily in carrying out the 

necessary services. Large num bers of Library staff are now housed 

in cramped, poorly ventilated spaces. The James Madison Memorial 

Building will provide the well-planned space needed for the collections and will afford efficient and acc ept abl e working conditions for the 

staff of the Library of Congress. You who have visited the main building of the Library of Congress 

would probably agree, I think, that it is a national mo nume nt—a 

mon ume nt to the taste and vision of those who com pleted it in 1897. 

It is one of the most beautiful buildings in Washington.

EX HIBIT SPACE RESTORATION POSSIBLE

But unsightly partitions and makeshift offices now mar this beauty. 

It is particularly unfortu nate in this Bicentenn ial year tha t the Amer­ ican public who visit Washington will not be able to see and be 

inspired by the building’s full grande ur. Many mem bers of our staff 

are working in areas designed for exhib ition halls.

Consequently, we can not properly exhib it the priceless treasure s 

in the collections that belong to the Ame rican people. The Madison 

Building will allow us to restore these area s to their original purpose 

and restore the building to its original beauty.

Mr. Cha irman, I app rec iate the con cern of this subcom mittee in 

schedulin g a hearing on this emergen cy app ropriat ion and I can only 

urge tha t you move ahead quickly if we are to take advantage of 

the low bid and complete with out furthe r delay the Library of Congress Jam es Madison Memorial Building.

STATUS OF BU ILDING

Sen ator Hollings. What is the sche dule of occupa ncy ? Is it occupied now, j ust for the record.

Mr. Boorstin. No, sir.

Mr. White. It is entirely emp ty on the inside, not com pleted in 

any way. It will be 3 years befo re it can be occu pied.

Senator Hollings. No occupa ncy , so if my family conics and wants 

to see the James Madison Building durin g this Bice ntennial year 1976, 

they won’t be able to see the Jam es Madison Memorial.

Mr. White. Tha t is co rrect.

DISCUSSION OF PROPOSED HOUSE OCCU PANC Y

Sen ator Hollings. What is the final disposition with resp ect to 

the House of Representatives and its desire to occupy part of it, 

tem porarily or what have you? All I know is what I read in the 

paper.

Mr. White. So far as we und erstand it, Mr. Chairman, that desire 

has been aba ndo ned , which is why the bill has been introdu ced on 

the House side to provide these funds for finishing the project as 

a Library building.

Sen ator Hollings. The House occ upancy has been disposed of now. 

We do n’t have to bother with it.

Mr. White. Tha t is co rrect.
29

APPROPRIAT ION OF FUNDS

Senator Hollings. With resp ect to the sche dule itself, there is a 

rem ark, Report of the House Public Works Comm ittee, House Rep ort 

94 -807, that the increase was caused by the delay in app ropriating 

the funds for the facility in a timely fashion.

Tha t certainly isn’t true .

Mr. White. Not so far as I know. I und erstand tha t that remark 

was made by one of the com mittee peop le as a resu lt of a question 

having to do with when the initial funds were appro pri ate d in 1969, 

I believe it was.

Sen ator Hollings. So we haven’t delayed any requ ests over here.

Mr. White. Not since I have been here, Mr. Chairman.

EXPLAN ATION OF INCREASE D COS T

Senator Hollings. You stated as rece ntly as May 13, 1974 to 

this subc omm ittee , and I quo te, “tha t even though prices have co ntinu ed to esca late, we anti cipate we can remain within the budget 

for the Madison Building.”

Mr. White. We did anticip ate that.

Sen ator Hollings. What happened?

Mr. White. That was, of course, a yea r-and-a-half ago, Mr. Chairman. As I ann oun ced, the first thre e phases of this project were 

within the budget; as a ma tter of fact, und er a $44 million budget 

by $6 million. We had every reason to believe that that $6 million 

cushion would prob ably take care of everything tha t would occur 

in phase IV.

Our guess was wrong. The escalating costs in the con stru ctio n industry simply rose substantially beyond what we thought they would.

Sen ator Hollings. You attr ibu te it all to the inflation and escalatin g 

costs?

Mr. White. As I men tioned earlier, if you tak e the $33 million 

being requ ested and deduct from tha t approximately $10 million— 

$9,70 0,0 00—the rem ainder is $23 million, and in tha t amo unt there 

is a little over $5 million, almost $6 million worth of contingency. 

So from $23 million we can ded uct anoth er $6 million. Tha t results 

in about a $17 million escalatio n in a building tha t at that time 

was presume d to cost $90 million.

If you coup le tha t with the $6 million that we were und er on 

the first thre e phases, you have a total of about $23 million of esc alated costs.

We think that that is com parable to what has hap pened in oth er 

places in the industry. We didn ’t chan ge anything in the basic design, 

with the exception of the items that are represented by the $9,7 00,0 00 

tha t you see in the com putations.

COST TO FINISH INTERIOR OF BUILDING

Senat or Hollings. Is tha t the case? That is what we are trying 

to find out in the com mittee here. Isn’t the cost to finish the inte rior 

of the building really now $67 ,035,300?

Mr. White. That is the cost of the contract am ount by the low 

bidder. If we include the $44 million low bid and the $12 ,846,000 

of addition al con struction work in the additives, coupled with the
30

$9,700,0 00 and add a $2 million contingency , assuming that it won’t 

be more than that, we com e up with $69 million of actual constructio n 

costs.

RESTAU RAN T FACILITIES

Sen ator Hollings. As far as public rooms, will thes e be restau ran t 

spa ce for the public?

Mr. White. The re are public room s in the building.

Senator Hollings. Suppose when all the restau ran ts are closed here 

on Capitol Hill on weekends and you are open and the stud ents 

and oth er mem bers of the public using the Library want to eat, 

wha t kind of facilities will you have?

Mr. White. I believe the Library peop le could answ er that. The re 

will be facilities there.

Mr. Boorstin. There is a cafeteria on the top floo r of the Madison 

Building; approximately 1,000 seats. It is on the sixth floor, above 

grade. I do n’t know at the presen t time what the plan s are for making 

the cafeteria available to the general public.

Mr. Croxton. The plan is to use tha t caf eteria in the same manne r 

we use the presen t caf eteria; primarily for staff but supp lementing 

the eating facilities here on Capitol Hill, to the degree tha t it is 

possible to do so and still serve the staff in the building.

Sen ator Hollings. So if I was doing researc h work for my library 

in South Carolin a and working up the re, I cou ld com e in and eat?

Mr. Croxton. Yes, sir. We reserve it for a period of abo ut an 

hour-and -a-half during the heart of the lunch period for staff people. 

Ot he r than that, it is availab le whenever it is open during the day. 

PARKING FACILITIES

Sen ator Hollin gs. Wh at abo ut park ing facilities?

Mr. Croxton. We have slightly more than 300 parking spaces in 

the basemen t. I guess it is calle d the sub-bas eme nt, the lowest level 

of the building.

Sen ator Hollin gs. Is tha t enou gh to take care of everybody over 

the re?

Mr. Croxton. No, sir.

Sen ator Hollin gs. You are still going to be using some spaces 

at the stadium?

Mr. Croxton. Yes, sir, I would exp ect this would probably be 

the case. That stadium parking arra nge ment has worked very well, 

sir. You r permission for us to utilize that area and to tran sport people 

from tha t facility to Cap itol Hill is very much app reciate d.

SPACE RENTAL

Sen ator Hollings. How abo ut the Library locating some of the 

person nel now in ren ted space at 400 North Cap itol? We haven’t 

made a decision. Both the Com mittee on Appropriatio ns and the 

Com mittee on Rules a nd Admin istra tion are tryin g to make a judgment. 

But do you contem plate renting any space at 400 No rth Capitol Stre et 

during the interim period, Dr. Boorstin?! You were talking abou t maps 

and everyth ing else having to be placed out o f town and not being used.

I just wondered. Som etim es I hea r the Library needs some of that 

space; sometimes I hear the y don’t.
31

Mr. Welsh. No, sir. We are not contem plating using that building. 

It does not have sufficient weight-bearing capacity.

Senator Hollings. You are renting abo ut 561 ,000 squa re feet now?

Mr. Welsh. Yes, sir.

In our 1976 moneys tha t are appro priated, we obtained an add itional 324,000 square feet and we have reques ted some additional 

60,000 squa re feet in fiscal 1977 for a total of 905,355 square feet 

of rental space for the Library of Congress.

Senator Hollin gs. But you will not be asking for 400 North 

Capitol?

Mr. Welsh. No, sir.

LOC ATION OF LIBRAR IAN’S OFFICE

Sen ator Hollin gs. With respect to the Libra ria n’s office, what is 

going to happ en to the old one? Are you going to move ove r to 

the new one?

Mr. Boorstin. Mr. Cha irman, the plans were made before I came 

on board. There are offices available for the Librarian in the new 

building.

I am not sure if I had been consulted if I would have wanted 

to move over there because I like my present office very much. 

It has a great deal of historic significance attached to it. It is in 

the plans to have a Lib rar ian ’s office on the top floor of the new 

building.

Sen ator Hollings. But you do n’t know wheth er you will occupy 

it or not?

Mr. Boorstin. If I am the Librarian at tha t time , which I hope 

to be, I presume I will, yes. The re is a suite available for the Librarian 

or for the administrative offices up there. We are crow ded in our 

presen t administrative arra ngemen ts.

PRESEN T LIBRARY BUILDING

Sen ator Hollings. What will happen then to the present main 

Library of Congress building?

Mr. Boorstin. I hope the first thing we will do is to clean it 

out. That is to take out the partition s and restore it to its original 

beau ty. We will also be able to restore book stacks to their original 

purpo se—th e storage of books.

A large portion of the offices used by the Cong ressional Research 

Service now are crow ded into space on the second floor tha t was 

originally inten ded to be exhibit spac e for exhibiting our treasure s, 

which now have to be exhibite d in c orridors.

When we have the Congressional Research Service in the new building, we will then be able to restore those exhibit halls and use them 

for their originally inte nde d purp ose, and also to expose the arc hit ecture . The main building is one of the most beau tiful and one of 

the best embellished pieces of architectu re in Washington.

PROJECTED COM PLETION DATE OF NEW BUILDING

Sen ator Hollings. When is the com pletion date now if this amoun t 

is granted?

Mr. White. Three years, Mr. Chairma n.

Sen ator Hollings. Any questions?
32

DISCUSSION OF ADDITIVE ITEMS

Senator Schweiker. The additive items, were they items not 

originally envisioned in the first engineering con stru ctio n plans? What 

is your definition of additive items?

Mr. White. As I men tioned in my open ing statem ent, we have 

an unfortu nate dual use of that word “a dditiv e.” It was necessary, 

however, for the bidding process.

Some of the additives are indeed items which were not included 

in the original program. But the bulk of the dollar value of the 

additives were items tha t were in the original program and on the 

com pleted drawings as a part of the needed requirements of the 

building, which we then eliminated for bidding purp oses in ord er 

to have the base bid com e in as low as possible. Then they were 

to be added to the base bid.

The re are two kinds of additives here. The items that comp rise 

the $9,7 00,000 amo unt are noted on the list that I think you have, 

and are items which were not in the original program. Tha t is co rrect.

Sen ator Schweiker. They were not in the base plus the additive 

as originally subm itted?

Mr. White. Tha t is correct.

BOOK CON VEY OR SYSTEM

Sen ator Schweiker. Tak e the auto matic book conv eyor system. 

Why wou ldn’t this have been in the original plans?

Mr. White. The book conveyor system was. The extension of it 

to the annex, which is the building east of the existing main Library 

building, was not in the original program.

I ca n’t say why. That was written long before I was here. But 

I think it was simply a ma tter of presumption tha t it might not be 

needed.

Sen ator Schweiker. Is the $1.5 million for the annex or for the 

new building or for both?

Mr. White. It is for all of them together in the sense that it was 

decided that the conveyor system, in ord er to be useful and valid, 

would have to inte rco nnect all thre e buildings rather than simply 

extend from the new building to the existing building.

Senat or Schweiker. Are you going to use the electro-mechanica l 

or com puterized system?

Mr. White. It is our intention to use the com puterized system. 

It is more costly, but we think it is a system which will be better 

in the future than an electro-me chanica l system.

Incidentally, on the basis on which these num bers were prepared, 

we will use up some of the continge ncy amoun t when we select 

tha t higher-cost com puteriz ed system.

Senat or Hollings. With regard to tha t book convey or system, is 

tha t not going to be like the mail conv eyor system we have in the 

Dirksen Building?

Mr. White. No. We do n’t have one in the Dirksen.

Sen ator Hollings. It d oe sn’t work.

Mr. White. But that wa sn’t a delivery system. It was a collection 

system. It never did work properly from the time it was installed. 

It could, however, be mad e to work. But at this poin t it has no
33

real value since the system which we are going to put in the new 

extension is an actual materials delivery system, such as they have 

at the FBI building, which runs on little tracks.

Senator Schweiker. The overhea d monorail system.

Mr. White. That is correct. That will go to every Se na tor’s office.

Sen ator Schweiker. Your system is like their system?

Mr. White. No; not the one in the Library building. I was referring 

to the Dirksen Building.

Senator Schweiker. What is the analogy to the FBI system? Is 

tha t like the one you are getting?

Mr. White. No. That was in response to the Ch air man’s question.

Senator Hollings. The one in the Dirksen Building hasn’t worked. 

That is th e point.

Mr. White. The new one will.

Senator Hollin gs. You think so? That is what they said about 

the old one.

Sen ator Schweiker. Is the Dirksen Building one like the FBI Building?

Mr. White. The new one will be, tha t is, in the new Dirksen 

exten sion.

SECURITY CONTROL SYSTEM

Senator Schweiker. Secu rity control system, $3.5 million. Why 

would n’t th at have been in the original plans?

Mr. White. That was. There is a very minimum security and control 

system in the original prog ram. Because of the change in times and 

the need for much greater security, this expanded system was felt 

to be app ropriat e by the Library people in term s of the things it 

would do to pro tect the collection.

Perhaps the Library people would like to resp ond to that since 

it was their proposal that we install a system of this kind.

Mr. Croxton. Senator, I can only emph asize the differe nce in dates. 

In 1965, when the original program for the building was written, 

one didn ’t think much abo ut bombings, arson and the same sort 

of security problems which we feel we have to provide protection 

for today.

The system we asked be put into the building inclu des a num ber 

of locations where iden tification card access is used, and it includes 

a central surveillance system.

We feel it is wise to know more than we would have in the original 

arrang ement about who is in the building and when , and be able 

to control access, part icul arly during the times when it is not fully 

occupie d by staff.

FIRE PROTECTION SYSTEM

Sen ator Schweiker. I understand the argu ment about the sprinkler 

system in term s of why that was left out originally. I do not understand 

the argu ment on the smoke control and fire alarm system.

Smoke control and fire alarm systems have been around for a 

long, long time.

Mr. White. They have been, Senator.

Sen ator Schweiker. I would think in designing a Library tha t is 

exactly the very first thing you would put on the list to consider.
34

Mr. White. We did. And they are in the original program and 

they were provid ed for. This is a more complex and soph istic ated 

smoke con trol and fire alarm system.

This involves a whole series of interc onnec ted systems includin g 

public add ress systems, con trols and smoke det ection devices in— 

1 ca n’t rem ember now exa ctly —but innu mer able more loca tion s than 

had been originall y planned.

I think to some degree tha t since the time when the origina l program 

was devised, many of the Libra ry’s need s as they have deve loped 

over the last 10 years have cha nge d a good deal.

The building, as you may reca ll, was designed to provide flexibility 

in the sense that book stora ge could be plac ed virtually everywhere 

in the buildi ng so that cha nge s could be made in the loca tion of 

various activ ities of the Library.

During tha t 10-year peri od a num ber of stabiliz ing forces, 1 guess 

one could say, have occ urred to cause the Library to say, “This 

is where we want this now ,” and “ This is where we want tha t now ,” 

and so on.

As a result of that, this fire con trol system was expanded; and 

app aren tly the original prog ram did not include what is now deemed 

to be advisable and neces sary. But there was a fire con trol system 

in the origina l progra m. It was not total ly left out.

[The following information was subseque ntly furnished for the 

reco rd:]

Inf or mat ion Conc er ning Fire D etec tio n and Pre ve nt io n

A substantial change in fire protection and detectio n philosophy has occurred since 

the original program for this building was written in 1966. To a marked degree, 

for this type of building, the disastrous Military Personnel Records Center fire in 

St. Louis that took place on July 12, 1973, only 2*6 years ago, influenced many 

of the final judgments. The similarities in type of construction, size of building, and 

type and quantity of contents with the James Madison Memorial Library Building 

suggested implications for fire protection planning not previously considered necessary.

For most buildings, the primary concern is to save the human occupants and not 

too much concern is ordinarily given to the building contents. In this particular building, 

the conten ts are also of major concern not only for their historic value but also 

because of the daily interaction with the workings of the Congress. And yet some 

of the things necessary to be done in order to save the people, such as the automatic 

and forced mechanical removal of smoke and gases through the use of exhaust fans, 

and the automatic and forced pressurization of the fire area, also tend to increase 

the intensity of the fire which, in turn, is more damaging to the contents. As a 

result, building compartmentation, early detecti on, and specific computerized and automatic fire control procedures are of prime necessity. There are now, for example, 

several thousand smoke detection points as compared with only a very few in the 

original program. The speed with which an initial fire can be brought under control 

is largely determinative of the ultimate risk of loss.

It is for the above basic reasons, together with many others, that the fire and 

smoke detection systems in this building have been sophisticated to a high degree, 

computerized and intensified over the original relatively simple program.

Sen ator Schwe iker. What kind, for ins tan ce? If you are going to 

put books the re, it seems to me it would pretty well cov er the whole 

book are a right from the beginn ing. That is what I have trouble 

und erst anding.

Mr. White. I think tha t the extent to which book s and people 

were to occ upy the building has chan ged a good deal since the original 

program.

Sen ator Schweiker. More boo ks now than before ?
35

Mr. White. I believe the Library officials who are here can answ er 

that question more precisely, with respec t to current plans.

Senat or Schweiker. I would just think that is something you au tomatically include as a basic item of any Library, this smoke and 

fire con trol system.

FUR THER DISCU SSION OF ADD ITIVES

Senat or Hollings. It is a loose additive, like the tracks you have 

for the movable book stac ks. There had to be tracks if th e stacks were 

to be movable. All of a sudden the tracks are an additive. You have 

them listed down here. You have the fourth and fifth flo ors as additives. 

Are you j ust going to jum p up from the third to the sixth?

Mr. White. No. The fourth and fifth floors were entitled additives 

in the sense tha t we removed them for the base bidding process. 

They were then to be add ed to the base bid for scorekeep ing purpose s 

as to who would be the low bidder.

They were part of the original program . They were part of the 

estimate. They were part of the cost. They are not additives in tha t 

we left them out. The same thing is true of the question of the 

comp act book storage.

Sen ator Hollings. This sheet shows additive numb er two, com pac t 

book stora ge track as describ ed in Section 402 Part 2.4. We will 

inse rt in the record at this poin t the page accomp anying the abs tract 

of bids tha t explains the additives.

[The information follows:]
OFFICE OF THE ARCHITECT OF THE CAPITOL 

WASHINGTON, D. C.

ABSTRACT OF BIDS FOR

INTERIOR AND RELATED WORK FOR THE LIBRARY OF CONGRESS 

JAMES MADISON MEMORIAL BUILDING - WASHINGTON, D-. C.

O pen ed J u l y 2 3 , 19 75

EXPLANATION OF WORK TO BE PERFORMED UNDER NUMERICAL 

ADDITIVES AND ALTERNATES

A d d itiv e N o. 1 - A u to m ate d Book C o n v ey o r S y ste m , a s d e s c r i b e d i n S e c t io n 4 .0 1 o f 

P a r t 4 . B id d e r s r e q u i r e d t o i n d i c a t e w h e th e r b id b a s e d on 

e l e c tr o m e c h a n ic a l o r c o m p u te riz e d c o n t r o l s y s te m .

A l t e r n a t e t o

A d d iti v e No. 1 - I n t h e e v e n t A d d itiv e No . 1 , A u to m ate d Boo k C o n v ey o r S y ste m i s

in c lu d e d i n an aw ard a s d e s c r i b e d i n S e c tio n 1 2 .2 o f t h e B id d in g 

C o n d itio n s an d th e G overn m ent e x e r c i s e s i t s r i g h t , p u r s u a n t to 

th e p r o v i s i o n s o f S e c t io n 1 2 .4 o f th e B id d in g C o n d itio n s t o s e l e c t 

th e a l t e r n a t e c o n t r o l s y s te m t o t h a t b id u n d e r A d d itiv e No. 1.

A d d iti v e N o. 2 - C om pa ct S to r a g e T r a c k , a s d e s c r i b e d i n S e c tio n 4 .0 2 o f P a r t 4 .

A d d iti v e No. 3 - M ovab le M e ta l P a r t i t i o n s , a s d e s c r i b e d in S e c t io n 4 .0 3 o f P a r t 4 .

A d d iti v e N o. 4 - S e c u r i t y an d C o n tr o l S y ste m , a s d e s c r i b e d i n S e c t io n 4 .0 4 o f 

P a r t 4 .

A d d itiv e N o. 5 - F i n i s h F o u r th F lo o r , a s d e s c r i b e d i n S e c tio n 4 .0 5 o f P a r t 4 .

A d d itiv e N o. 6 _ t F i n i s h F i f t h F lo o r , a s d e s c r i b e d i n S e c t io n 4 .0 6 o f P a r t 4 .

A d d iti v e N o. 7 - K it c h e n , D in in g Rooms an d R e la te d S p a c e s , a s d e s c r i b e d i n S e c tio n 

4 .0 7 o f P a r t 4 .

A d d iti v e No. 8 - E l e v a t o r s , a s d e s c r i b e d i n S e c tio n 4 .0 8 o f P a r t 4 .

A l t e r n a t e No. 9 - U p g ra d in g o f A ir C o n d itio n in g S y ste m , as d e s c r i b e d i n P a r t 5B o f 

th e P r o j e c t M an u al, i n c r e a s e th e am ount a l l o t t e d t o A ir 

C o n d itio n in g i n t h e b a s e b id .

A d d itiv e No. 10

A d d itiv e No. 11

A d d itiv e No. 12

A d d iti v e No. 13

A d d itiv e No. 14

A d d itiv e No. 15

A d d iti v e No. 16

A d d itiv e No. 17

- M ov ing S t a i r s , a s d e s c r i b e d i n S e c t io n 4 .1 0 o f P a r t 4 .

- G r a p h ic s , a s d e s c r i b e d i n S e c tio n 4 .1 1 o f P a r t 4 .

- T h ir d F lo o r A u d it o riu m a s d e s c r i b e d in S e c t io n 4 .1 2 o f P a r t 4 .

- D e c o r a tiv e S c re e n a s d e s c r i b e d i n S e c tio n 4 .1 3 o f P a r t 4 .

- L a n d sc a p in g a s d e s c r i b e d i n S e c t io n 4 .1 4 o f P a r t 4 .

- P o le M ou nt ed D is p la y C a se s a s d e s c r i b e d i n S e c t io n 4 .1 5 

o f P a r t 4 .

- A d d iti o n a l S p r i n k l e r an d A s s o c ia te d Work a s d e s c r i b e d i n 

P a r t 5A o f t h e P r o j e c t M an u al.

- Sm oke C o n tr o l an d F i r e A la rm S y ste m s an d Sm oke D e te c tio n 

f o r D e s ig n a te d A re a s a s d e s c r i b e d i n P a r t SA o f t h e P r o j e c t 

M an u al.

A d d iti v e N o. 18 - Smoke D e te c tio n f o r N o n -D e sig n a te d A re as a s d e s c r i b e d i n 

P a r t SA o f t h e P r o j e c t M an u al.
37

Mr. White. What we did was take the invitation to bid as it would 

have gone out to the bidders and eliminate certain items as you 

see listed there in o rder to redu ce the base bid by our estimate.

Senator Schweike r. But you didn ’t elim inate the overall price, did 

you?

Mr. White. No.

Sen ator Schweiker. I can understand taking from base to the oth er.

Mr. White. Tha t is right.

Senator Schweiker. Tha t do esn’t explain this situation where you 

have an escalatio n; the base and next step bidding. It should still 

have been in the total price tag.

Mr. White. It is in the total pric e tag. We were making an effo rt 

to place before the Cong ress, as a result of the bids that would 

com e in, a base bid tha t would be less than the amoun t of funds 

available in a pprop riat ion.

So that if the Congress were to so judge, we could let a contr act 

which we would be legally able to do, since it would be within the 

am ount tha t is left in the app rop riat ion, prov ided the Congress would 

be willing to then say, for example, “ We know we have more money 

to app ropriat e in orde r to make the building available in the way 

it is inten ded to be used. But in the mea ntim e, use it with out the 

fourth and fifth floors .”

We made that cho ice available in the only way we knew how. 

If we hadn ’t don e tha t, we would have come in here with a base 

bid for the sum of $44 million, which is the presen t base bid, plus 

the $12 million, which comp rise those items tha t were elim inated, 

and we wou ldn’t have any choices available.

The alternative to tha t is what we are recommen ding now which 

is tha t we not make those choices. But we took the bid on that 

basis. That is the only reason for that.

Sen ator Hollin gs. The answer to you and me is we do n’t have 

any choice to make.

DISCUSSION OF BIDD ING PROCEDURE

Sen ator Schweiker. I have that feeling, yes.

Why could n’t we com e in here with a total packag e price in the 

future? It just seems to me we have responsibilities here in this committee. We get ridiculed in the press.

One of our responsibilities ought to be one of you r responsibilities, 

tha t in the future when we talk abo ut a building, we ought to talk 

about the total price tag instead of und erstating it or whatever we 

seem to be doing. We seem to be und erstating and then adding 

the extra.

The fact is, this is more painful and more embarrassing, unless 

I am missing a point.

CHOIC E BASED ON BEST JU DG ME NT

Mr. White. The only way that I can respond to tha t is to state 

that we made a jud gment based upon what we though t would give 

the Congress a choice.

For example, let’s supp ose you were to say, “ Let ’s not install the 

spri nkler system. It wasn’t in the original prog ram. Build it in accorda nce with the original program, and we will take our chances.”
38

We have a number tha t enables you to make tha t choice.

Sen ator Schweiker. I can und erstand your sprink ler system. Tha t 

is techno logy that changed . But come up with an oth er for instance.

Mr. White. Going back then to the basic building which was part 

of the program and which we inte nded to build, we thou ght that 

since our estim ates showed tha t there was a negligible probability 

tha t we could let contr act s since we didn’t have the funds appro pri ate d—

Sen ator Schweiker. Maybe you sho uld n’t have let the contract.

Mr. White. We haven’t. That is exactly the point.

Sen ator Schweiker. I m ean originally.

Mr. White. The pro ject, of course, was done in phases. The first 

three phases were separately contracted. We are $6 million under 

the budgete d amo unt thro ugh phase III. So tha t gave us the courage 

to proceed with the next phase as each one kep t coming in for 

less than the budget.

It is in the fourth phase tha t it has all acc umulated. We thought 

therefore , that what we ough t to do is take the bids as we did — 

not to deceive anybody—but to make choices available on the basis 

of th e actual numbers rat her than estim ates.

We could then say, “ Here is a num ber which will be within the 

am ount of funds ap prop ria ted.” The re was a great deal of argu ment 

on the floor of the House with regard to the fact tha t there would 

be no more than $90 million appro priated, at the time the original 

authorized limit of cost was increased from $75 million to $90 million.

If the market escalates to the point that you ca n’t get what you 

originally thou ght you were going to get for the $90 million, you 

have a choice to make. You either add more money or take less.

PHASE CONSTRUCTION BASIS

The shell of the building is alre ady con structed because of the 

phased con struction method. The re is thus no longer available the 

question of leaving a floo r off but rat her leaving part of the inte rior 

out of the project.

We thus set the bidding up so tha t all of those choices would 

be available. You could, for exam ple, say to the Library, “Eliminate 

the com pac t book sta cks.”

Senator Hollings. And do n’t comp lete the fourth and fifth floors.

Mr. White. Until some future time.

Sen ator Hollings. Do n’t you see tha t? It is a six-story building, 

but no one can pass to the sixth floor.

Mr. White. We intend to com plete them , Mr. Chairma n, but we 

tho ught the numbers o ught to be available.

OBJECTIONS TO PROCEDURE FOLLOWED

Senator Hollings. It reminds me of Abb ott and Coste llo and their 

“ Who’s on firs t” act.

I was on the Exec utive end at one time and I know how they 

do this. The Executive provided the Congress, on the CIA building, 

with estim ate for an aircra ft carrier . They put it right by the Congressmen up there, and they do n’t even know.
39

Right today in the Defense budget there is a $3 billion item and 

it is labeled “cutting charge .” You turn to the next page to have 

it explained and it says insuranc e against proposed cuts that are expec ted from the Congress.

But you all have got to start telling us the tru th. We have to 

run around in a Mickey Mouse game on these budgets all the time, 

part icularly on con struction.

At least it is not $168 per square foot like you prop ose on this 

front. You are making progress.

Mr. White. We though t tha t it would be more useful to present 

the information in a breakdown form.

Sen ator Hollings. You do n’t have to do it anymore. Give us the 

whole pack age.

Sen ator Schweiker. If the final figure is accurat e, I agree with 

you. But we are $33 million off. So it is fine to talk abo ut steps 

and all, but when you are $33 million off, something is wrong with 

the system. We want to get the total bad news first, not last.

Mr. White. The total bad news is first in the bill, namely, $33 

million. This is a brea kdown of how the $33 million arose.

Sen ator Schweiker. We are sure saying, “ Do n’t do it again ,” as 

far as I am con cerned , in this com mittee.

NEED FOR ANO THE R BUILDING IN THE FUT URE

Sen ator Hollings. How long before we need an oth er Library of 

Congress building?

Mr. White. The Library would have a bette r answ er to that.

Sen ator Hollings. I am making history.

Mr. Boorstin. I am no pro phet, Mr. Chairman. It is hard enough 

to be a historian. But I really do n’t know. I would hope tha t we 

would find ways to avoid the necessity of having anoth er Library 

of Congress building.

Senator Hollings. How long?

Mr. Boorstin. I am sorry , Mr. Chairma n. I ca n’t make any statement abo ut that.

Sen ator Hollings. At least a year?

Mr. Boorstin. I am looking far beyond that.

Sen ator Hollings. Ten years?

Mr. Boorstin. I would hope we might find ways to use the space 

which we have available more economically and use mod ern tec hnolo ­

gy in such a way as to avoid the necessity of building anoth er building.

One of the problems is, of course, the large r the spac e available 

beco mes, the more unwieldy it becomes and the more difficult they 

are to adm inister and the more com plicated and expensive.

We have a problem of she er quan tity. Abo ut 8 million items a 

year com e to us at the Library, Mr. Chairman. We do n’t keep all 

of this material. But it would be a mistake, I think, for us to have 

a policy of not receiving them and not takin g the responsibility of 

making a selection for the Libra ry’s collections.

I susp ect the num ber of library items of all kinds will increase. 

Moreov er, there is the addition al fact tha t tech nolo gy is changing. 

Many of the items that we have to acc om modate in the Madison 

Building were items tha t didn ’t even exist as storable items at the 

time the main building was con stru cted.
40

The new techn olog ies, including the comp ute r technologies, and 

other new responsibilities of the Library have multiplied our space 

needs.

So only a prophet could say. I would hope we could find ways to avoid the necessity of anoth er building as long as possible for 

the indefinite future. I am not committing my successors, Mr. Chairm an, because we 

ca n’t know what our future responsibilities will be.

The Congressional Researc h Service, Mr. Chairm an, which now has abo ut 770 persons in it has grown substantially. It came into being in its present form since the annex was com pleted in 1939. It has 

enormo us space req uirements and will take up a considerable piece 

of the Madison Building. CRS was n’t even in the imagination of the 

people in 1939.

Senator Hollings. Jus t take my advice and be the first fellow 

to move over in the new building. The first day anything is moved 

you had better move into tha t new office or som eone else will have 

it. I can tell you that.

ES CA LATIO N AN D DELAYS

Sen ator Schweiker. I want to find out, I realize one of the battles 

is rising construction costs. I realize when pro jects are delayed you 

automa tically have to work that in. I realize also that you ca n’t always 

con trol the timing and delay of a project. Sometimes this is C ong ress’ 

decision.

But it just seems to me given those factors that we ought to be 

able to pres ent a total package deal to the Congres s that is realistic. 

That is all.

I realize con struction costs go up 10, 12 perce nt. I would expect 

tha t package price ought to say, “ We are going to delay this building 

2 years; you can add anoth er 10 per cent for constru cti on.” I do n’t 

qua rrel with that at all.

But I do feel that we are going to come out a lot further ahead 

in the future coming out with a package price, maybe with differen t 

com pletion date sche dule s to take into acc oun t cost increases. I do n’t 

qua rrel with the increm ent at all.

But it is sort of the sudden death feeling you get here when we 

are confron ted with some thing which I guess started initially that 

$75 million and then $90 million. What is it now?

Mr. White. About $123 million.

Sen ator Schweiker. Are you telling us that is it?

FIRM BID IN HA ND

Mr. White. Yes. We have, as you can see, a large contingency 

amount provided. This is now no longer an estimate. These are actual 

firm bids that have been received.

Sen ator Schweiker. None of your con tracto rs will come back and 

say they ran into some unfo reseen problem.

Mr. White. They may. That is why we have the contingency.

Sen ator Hollings. The $6 million contingency.

Mr. White. Yes, sir.

Senator Hollings. Mr. Campioli?
41

FUTURE BUILDING NEED

Mr. Campioli. In 1958 when studies were first made for anoth er 

Library building—then referred to as a Third Library Building—a 

program was develop ed at that time for a 2,4 00,000 square feet gross 

building. Tha t was to take care of needs of the Library pro jected 

over a period of 35 years.

When the building now under con stru ctio n was authorized in 1965, 

7 years had already elapsed since such studies and proje ction were 

made. I would guess, if the forecasts made by the Library at that 

time are still accurat e, the building would be good for about 20 

years before you would need anoth er building.

INCREASED COSTS

Sen ator Schweiker. As I looked at your figures, and corre ct me 

if I am wrong, on phases I, II and III you did a fairly good job 

at estimating and controlling your costs. In phase IV it looks like 

we are 50 percen t off. Is th at cor rec t?

Mr. White. Tha t is correct.

Senator Schweiker. Why did we do so well on phases I, II and 

III and so poorly on phase IV?

Mr. White. I have no answer for tha t exc ept to say the market 

conditions and bidding conditio ns and escalatio n all, as you know, 

affe ct the bids at any particu lar mom ent; and apparently we were 

very fort unate for those first thre e phases.

Sen ator Schweiker. When was phase III com pleted?

Mr. White. Phase III is just now being com pleted; within the next 

week or two.

Senator Schweiker. You have trem endously high esca latio n in 

building costs during phase III.

Mr. White. That is correct. But the phase III contr act was ent ere d 

into several years ago. We broke ground for the pro ject in Feb ruar y 

of 1971, so phases I, II and III have been com pleted during those 

5 years.

Contracts were, of cou rse, let substantially prior to the com pletion 

time. Escalation has varied in the con stru ctio n industry from year 

to year.

The escalation tha t was presumed in the cost estim ates was, as 

I recall, 7 or 7V£ perce nt a year, which is wha t was being used 

at that time. Tha t per cen tage has gone as high as 12, as I recall 

it, in c ertain years.

Apparen tly that, cou pled with futu re unkn owns, has resulted in 

the value of the bids tha t we have received. As bidd ers have stated 

many times, as general con tractors, tha t they are basically gamblers. 

They are looking into the future to try to predict if they are going 

to spend 3 years in the constru ctio n of the building, what will happen 

to their wage rates and mate rial costs over that period of time.

Apparen tly they are not as willing to gamb le toda y as they were 

3 years ago, and they are probably putting larg er dollar cush ions 

in their bids; that is the only answ er I can pres ume. We do n’t really 

know.
42

QUESTIONS SUBMITTED BY SENATOR HOLLINGS

Sen ator Hollings. We have some addition al questions tha t we will 

subm it for the record.

[The que stio ns and answers follow:]

Question. Please outline in general terms for the Committee the present space both 

owned and rente d, that is occupied by the Library of Congress. Please give th e specifics 

by location, square footage, and number of employees.

Answer:

Capitol Hill :

Main B uild in g........................................

Annex Bui ld in g. ....................................

Sub to tal... .................. ........................

Oth er locations*

Building 159, Nav y Yard A nnex____

Building 159E, Na vy Yard A nnex__

1291 Ta ylor Street, N W ......................

214 Mass. Avenue , N E ____________

Bulk Storage Area, Mid dle River, Md

Film Va ult, Suitland, M d .....................

2028 Duke Street..................................

841 South Pickett Stre et......................

Cry stal Mall Building No. 2 ................

Lan dover, Md ., Build ing______ ____

Sub to tal___

T o ta l....... ...........................................................................................

Square feet

Number of 

employees

600,000 1,860

713,000 1,658

1,313,000 3,518

147,235 290

15,275 ..

82,705 145

56,310 360

39,760 _.

2,750 5

48,765 2

118.485 45

91,090 425

197,688 10

800,063 1,282

2,113,063 4,800

*In addition, the Library presently occupies 10,435 square feet o f space for nitrate film storage at Wright-Patterson 

Air Force Base. Dayton, Ohio, for which it reimburses the U.S. Air Force for utilities and other services.

Question. What units of the Library will be housed in the James Madison Building 

in terms of numbers of employees and square footage?

Answer. The Madison Building contain s 1,4 71,00 0 square feet of space which will 

be assigned to various departments of the Library. Our present estimates of space 

assignments are as follows:

Organizational unit

Square 

feet of 

space

Number of 

staff 

(estimate)

Ad minis trative Services 241,000 1,100

Congressional Research Se rvice . ____ . _ . . ............... 165,000 975

Copyright Office . ___________________ . . 132.000 600

Law Library _ _____ 120.000 100

Processing Dep ar tm en t. __________ . . . . . . 262,000 1,450

Reference Departme nt ______ . . . ______ 436.000 275

General facilitie s, including the Madison Me morial H a ll ________ 115.000

T o ta l.............................................................................................................. 1,471.000 4,500

The building is designed to meet the changing needs of the Libr ary: therefore, the present space 

allocation assignments may be adjusted in future years to meet the needs o f the Libr ar y at that time.

Question. Will any D.C. area Library personnel still be in rented space after the 

James Madison Building is comp leted?

Answer. Yes. Our present plans call for retaining certain rental space for the Cataloging Distribution Service which includes approximately 250 employees, as well as space 

for bulk w arehouse storage not suitable for Capitol Hill.

Question. Please explain the economies you infer in your statement that completion 

of the Madison Memorial Building will effect in terms of staff time and vehicles 

needed for transpo rting people and materials back and forth to Capitol Hill?
43

Answer.

Library of Congress

Comparison o f space and related services cost

1977

Estim ate

Post Madison 

Buildin g 

occupa ncy1 Difference

Space rental cost _________ _______________ $6,800,000 $ 1,360,000 -$ 5,44 0,00 0

Add ition al staff and related expenses required to

support locations away from Capitol Hill 612,000 156.000 -4 56,0 00

Ad ditio na l staff for Madison Building protective and

building ma intenan ce__________________________ 3,900.000 + 3,900,000

T o ta l---------------------- -------------- ---------------------- $7,412,000 $5,416,000 -$ 1,99 6,00 0

■The estimate does not include any pro vision fo r space for new activitie s und ertaken afte r fiscal year 1976.

Question. Explain the architectural and engineering services totaling approximately 

$5 .5 million included on pages 4 and 5 of the jus tification as follows:

$4,070,749

324,000

642,300

485,465

$5,522,514

Answer.

(1 ) Architectural and engineering fee of $4 ,07 0,74 9 was based on estimated cons truction costs of all four Phases. It was so established August 6, 1974, based on 5% 

of a total estimated constr uction cost of $7 6,0 00 ,000 , plus $2 95 ,7 49 for modifications 

to prepared drawings and specifications. The contract provides for adjustment of fee 

upon award of Phase IV co ntra ct, based on actual contract cost figures.

(2 ) The low competitive base bid received for Phase IV construction work was 

$4 4,48 0,0 00 , which when added to the first 3 Phase construction costs, gave a revised 

total of $8 2,3 60 ,000 for all 4-phase construction costs. The additional fee of $3 24 ,000 

repres ents 5% of such additional cost ($ 82 ,3 60 ,0 00 minus $7 6, 00 0, 00 0) , plus a pending 

fee adjustme nt of $6 ,00 0 for modifications to completed drawings and specifications 

incurred to incorporate fire protection changes in an addend um to the invitation to 

bids.

(3 ) Work included in the original approved program upon which separate “additive” 

bid prices were obtained totaled $1 2,8 46,00 0. The additional fee of $6 42 ,300 represents 

5% of such “additive” constr uction costs.

(4 ) Work not included in the original approved program, but approved for inclusion 

in modified program, upon which separate “additive” bid prices were obtained totaled 

$9 ,70 9,30 0. The additional fee of $4 85,46 5 represents 5% of such “additive" construction costs.

Contingency Allowance Under Phase IV

Question. Explain the contingency of $5.9 million un der phase IV?

Answer. In my professional opinion, an amount equal to 10% of the cost of the 

remaining construction is not an unreasonable sum to make available in orde r to 

provide the necessary funds to cover unforeseen job conditions resulting in change 

orders as well as possible change in program requirem ents on a project for Interior 

and Related Work where the Excavation, Foundations and Superstructure have been 

performed under separate contracts being done under phase construction. The contr act 

drawings and specifications for Phases I, II and III were comple ted and construction 

largely performed prior to the completion of drawings and specifications for the Phase 

IV “Interior and Related Work." It is generally recognized that while Phased Construction saves time as well as money in a highly escalating mark et, as it allows work 

to be done on a more timely basis, a higher contingency must be allowed in the 

later contrac t to cover items n ot anticipated in the earlier contracts.

In this case inasmuch as the Interio r and Related Work covers all of interior partitioning equipment and finished trade s as well as a major proportion of the highly sophistica ted mechanical and electrical systems, I consider taking into account the phased 

constructio n that 10% for co ntingencies is a reasonable figure.
The lowest base bid for Phase IV, including additives and alternates, amounts to 

$67,035,300. Ten percent would amount to $6,703,530. We have requested $5,876,535 

or approximately 8%%. Notwithstanding this contingency amount, it is my opinion that the phased construc­ tion selected on this project will result in a lower overall project cost than would have resulted if we had awaited the completion of all drawings and specifications for work to be awarded under one contra ct, even though the contingency under such 

circumstances might have been only 5%. In any case this is an allowance to cover the cost of change orders. If as a result of congressional reorganization, changes in scope are require, funds for such change orders should be available. If on the other hand, such cnanges, including unforeseen job conditions, should be minimal, the entire amount available for contingencies will, 

of course, not be spent.

Question. How much of this amount represents or will represent architectural and 

engineering services? Answer. None, other than increased construction costs, if any, resulting from change orders, which would in turn affect the base figure on which the 5% fee is payable.

Question. Explain the administrative and miscellaneous expenses under—

Phase I I I...................... . . . . . . . . . . . . . . . . . . . . . . . . . . . . _________ $2,539,905

Phase I V .. ....................... .......... ................................................. 3,600,000

Tot al .................................................................................... . . . $6,139,905

Answer. (1) The $2,539,905 figure represents field construction payroll costs of $2,270,183 incurred from the commencement of the project through the first three construction phases. These included supervisory, inspection, administrative, clerical, and other techni­ cal forces required; the balance, $269,722, includes $91,663 for tests, surveys, and othe r related work, $72,302 for miscellaneous expenses, $83,554 for drawings, blueprints, and other items required primarily for competitive bidding requirements, $22,203 for travel and other out-of-town inspection expenses to points where materials 

were fabricated or stone quarried. (2) The $3,600,000 figure represents similar costs through the remainder of the project, including larger inspection forces required for mechanical and electrical installations involved in Phase IV.

Question. How will this $33 million affect the $9,940,000 in outlays shown in the President’s budget for fiscal year 1976? What about the outlays in the transition quarter, 

fiscal 1977 and the out years? Answer. It will not affect projected outlays for the fiscal year 1976 or the transition quarter. Due to the additional $33 million being available it is now estimated that the outlays shown in the President’s budget for fiscal 1977 should be revised to $20 million. For fiscal 1978 the outlays are now estimated at $35 million, and $16.5 

million in fiscal 1979 and $3 million in fiscal 1980.

SUBCOMMITTEE RECESS

Senat or Hollings. Is the re any furthe r comment?

We appre ciate very much all of you appearing here this afternoon.

We will recess subject to the call of the Chair.

[W her eup on, at 3:55 p.m ., Monday, February 16, the subcomm ittee 

was rece ssed , to reco nvene at the call of the Chair.]