P120-Project Estimating Requirements GSA 2007

GSAPublicBuildingsService
P-120
projectestimating
requirements
forthepublicbuildingsservice
P-120
projectestimating
requirements
forthepublicbuildingsservice
U.S.GeneralServicesAdministration
OfficeoftheChiefArchitect
January2007
tableofcontents
introduction iii
documentorganization iv
acknowledgements v
1 generalrequirementsandprinciples 1
1 generalphilosophy 3
2 estimatorqualificationandethics 4-5
requirements
independentgovernmentestimate(IGE)
ethics
duediligenceexpectations
penalties
3 costestimatingandmanagementpractices 6-7
costmanagementprinciples
estimatingformats
4 estimatingrequirements 8-17
general
warm-litshellversustenantimprovement(TI)costestimates
contentsanddegreeofdetail
cost-estimatingandcost-managementtools
2 prospectus-levelprojectsproduct/deliverablerequirements 25
1 preliminaryplanningandprogrammingprojectrequirements 27-28
projectplanningguide
levelandformatrequirements
2 designandconstructionphasecostestimating 29-46
basicconcept:forallphases
costestimatesandsummaries
market survey
costgrowthreport
space-typecostanalysis
life-cyclecostanalyses
value-engineeringstudies
budget analysis
requirementsforbidsubmission
construction-awardbidanalysisforprospectus-levelprojects
cost database
constructionmodificationsandclaimsanalysis
valueengineeringchangeproposals(VECPs)
risk management
occupancyagreementsandtenant-improvementspricing
tableofcontents(continued)
3 deliverymethodsanddeliverables 49
1 overview 51
requirementsforestimates
2 deliverableflow-chartsbydelivery 54-57
a appendices 59
a estimatingformats 61-70
uniformatlevel1-5costelements
masterformatcostelements(2004version)
b estimatetrackingsheets 71
c uniformatprojectcostsummary 72
d buildingcostanalysisforms 74-75
e sample2630/2631formsfordesignandmaintenance/inspectionservices 76-77
f acronyms/glossaryofterms 78-79
listoftables
1 requirementsforcostestimatingateachdesignphase 14
2 standardsiteanddesigncontingencyguidelines 14
3 costestimatingtaskingmatrix 54-57
listoffigures
1 calculationofmark-ups,contingencies,andescalation 17
2 generalconstructioncostreviewguide(GCCRG) 19
3 exampleofaPCEProjectCostSummary 20
4 PCEcost-estimatedetailexcerptforaconcept-designestimate 21
5 uniformatdesign-developmentestimatereportexcerpt 22
6 masterformatdesign-developmentestimatereportexcerpt 23
iv
projectestimatingrequirementsP-120
introduction
This cost-estimating and cost-management criteria document supports building construction
programs within the Public Buildings Service (PBS) of the U.S. General Services Administration
(GSA). This document presents the technical and administrative requirements for routine cost-
estimatingandcost-managementtasksinvolvedinaconstructionprojectsplanningandexecution
stages, and defines cost-estimating practices and standards for professional services. This
documentreplacesthepreviouslyissuedGSAHandbookP3440.5andallassociatedversions.
Theinstructionsandcriteriainthisdocumentareapplicabletoprogramming,design,construction-
management, and other professional-services contracts that involve cost-estimating and
cost-management tasks. The criteria for practices and documentation requirements apply to all
professionalservicesactivities,whetherprovidedthroughcontractorbyin-houseGSA/PBSstaff.
Thecost-estimatingtasksaddressedinthisdocumentmustestablishaccurateprojectcosts,ensure
thattheyarebasedonprogrammingrequirements,keepcostswithinauthorizedlimits,andcollect
GSAcostdatatorefinebusinesspracticesandfuturecostestimates.
Sinceprojectdeliverymethodsaffecthow,andtosomedegreewhen,cost-managementpractices
areapplied,thisdocumentexplainsthebasicrequirementsassociatedwitheachdeliverymethod.
introduction
v
documentorganization
Thisdocumenthasthreemajorchapters:
1 generalrequirementsandprinciples
Thischapterpresentsthegeneralestimatingpracticesandstandardsrequiredforallestimating
services. Itcoversqualificationsofestimatorsandestimatingfirms,principlesofeffectivecost
management, different types and formats of estimates, approaches to estimating, and the
variouscost-estimatingandmanagementtoolsavailable.
2 prospectusprojectrequirements
This chapter defines the estimating service required for prospectus projects, including
deliverablesinthecontextofplanning,design,andconstructionstages.
3 deliverymethodsanddeliverables
This chapter explains when the deliverables defined in Chapter 2 must be provided for the
followingfourdeliverymethods:
Traditional(Design-Bid-Build)
Design-BuildPerformance
Design-Build(Bridging)
ConstructionManagerasConstructor(CMc)
Table3inthischaptershowsthecost-estimatingtaskingrequirementsforthedeliverymethods
bysizeandtypeofproject.
vi
projectestimatingrequirementsP-120 projectestimatingrequirementsP-120
documentorganization
acknowledgements
This publication was written as a collaborative effort of the Office of the Chief Architect (OCA)
of GSAs Public Buildings Service cost experts, regional PBS cost experts, and the consulting
firmFaithfulandGould,acostmanagementconsultant(formerlyHanscomb,FaithfulandGould).
Special thanks are due to Les Shepherd, AIA, Acting GSA Chief Architect, and David Eakin, PE,
formerChiefEngineer,whoprovidedtheirmanagementsupportinthedevelopmentandpublication
ofthisdocument.
The following individuals contributed their knowledge and expertise in writing and editing this
document:
gsanationaloffice,officeofthechiefarchitect
CharlesMatta,Director CenterforFederalBuildingsandModernizations
GregorySegal CenterforFederalBuildingsandModernizations
CurtSmith CenterforConstructionExcellenceandProjectManagement
DonaldC.Cobb CenterforBorderStationsPrograms
StevenJ.McGibney CenterforFederalBuildingsandModernizations
gsaregionalexperts
LoriJ.Anderson Region1
AnnaRaykis Region2
AnthonyR.DellArciprete Region3
WilliamH.Hunt Region4
StephenR.Wallace Region5
KevinW.Livingston Region6
ElbertEGodwin Region7
FaramarzM.Jafarzadeh Region8
FrederickL.Jang Region9
SonnyNeumiller Region10
GeneM.Ransom Region11
consultantfaithful&gould(formerlyhanscomb,faithful&gould)
TomWiggins SeniorAssociate
ScottW.Cullen VicePresident
acknowledgements vii
generalrequirementsand
principles
1
1
1 generalphilosophy
The Federal Acquisition Regulation (FAR) 36.203 requires that every Government estimate be
prepared as though the Government were competing for the award. Therefore, all costs that a
prudent and experienced contractor would incur must be included in project cost estimates.
A listing of known facts, construction tasks, and supplemental judgments form the basis of the
estimateateachstageofdesign.Thisprovidesarealisticapproachtoestimating,anditcreatesa
historyofprojectcostdevelopment.
P100, Facilities Standards for the Public Buildings Service, lists the estimating deliverable
requirementsforeachdesignphase,buttheyareclarifiedhere.
generalrequirementsandprinciples
section1.1
3
2 estimatorqualificationandethics
1 requirements
Capital project estimate submissions must be prepared by professional cost estimators
unaffiliatedwiththedesignteamortheConstructionManagerasContractor(CMc).Certification
asacostengineerbytheAssociationfortheAdvancementofCostEngineering(AACE),orasa
certifiedprofessionalestimatorbytheAmericanSocietyofProfessionalEstimators(ASPE),is
supportingevidenceofanestimatorsqualifications,althoughitisnotrequired.
2 independentgovernmentestimate(IGE)
TheFARrequiresthatanIGEbepreparedforallcontractsexceeding$100,000.Whenlife-cycle
costing or other economic analyses are required to support a design decision, professional
estimators must establish construction cost estimates for all options if any one of them is
expectedtohaveafirstcostinexcessof$100,000.
Thefinalcostestimatesubmittedforthe100%constructiondocumentsphaseisusedasthebasis
forthefinalIGE,whichthecontractingofficerusestodeterminewhetheranofferorsproposed
priceisfairandreasonableandreflectsanunderstandingoftheprojectrequirements.
A qualified Government employee whose major responsibility is creating or approving cost
estimatesforGSAmustsignandapprovetheIGE,whichservesasthebasisforcommitmentof
fundsbeforethesolicitationisissued
3 ethics
ThestandardsofpracticedescribedintheCanonsofEthicspublishedbytheAACEandthe
ASPE,andavailableonboththeirWebsites,applytoallestimatingservices.
4 duediligenceexpectations
GSA expects proper diligence in the preparation of estimates, which will grow steadily more
accurateasthedesignprogresses.Whiletheestimatormayneedtomakemanyassumptions
inpreparingtheconceptdesignestimate,oncetheconstructiondocumentsphasehasbegun,
4
section1.2
1
estimates will no longer contain major assumptions. The project team will designate one
persontocomparesuccessiveprojectestimatesandprepareanorderlyandcomprehensive
reconciliation.
Thearchitect-engineer(A-E)mustworkcloselywithGSAsindependentestimatortocoordinate
the estimates with design submissions and the scope of work, to review assumptions
concerningexclusionsandinclusions,andgenerallytoensurethattheestimatereflectsGSAs
intent.Theseestimatorsmusthaveathoroughunderstandingofthemarketplaceinwhichthe
projectislocated,researchmarketprices,andobtainpricequotesforspecialtyitems.
5 penalties
GSAcontractorsareadvisedtobeawareof18UnitedStatesCode1001,whichdealswiththe
FalseStatementsAct.Thiscodestates,inpart:
whoever, in any matter within the jurisdiction of the executive, legislative, or judicial
branchoftheGovernmentoftheUnitedStates,knowinglyandwillfully-
(1) falsifies,conceals,orcoversupbyanytrick,scheme,ordeviceamaterialfact;
(2) makesanymateriallyfalse,fictitious,orfraudulentstatementorrepresentation;or
(3) makesorusesanyfalsewritingordocumentknowingthesametocontainanymaterially
false,fictitious,orfraudulentstatementorentry;
shallbefinedunderthistitle,imprisonednotmorethan5yearsor,iftheoffenseinvolves
internationalordomesticterrorism(asdefinedinsection2331),imprisonednotmorethan
8years,orboth.
section1.2
5
3 costestimatingandmanagement
practices
1 costmanagementprinciples
designwithinbudget
Unlessotherwisespecifiedindesign-contractdocuments,theA-Emustdesigntheproject
sothatconstructioncostswillnotexceedthefundinglimitationsestablishedastheBasis
of Fee Negotiation. FAR 36.609-1 requires that the A-E redesign the project at the firms
own expense to ensure that a responsive construction bid amount will be within funding
limitations.
prospectusauthorization/appropriation
InaccordancewiththePublicBuildingsActof1959(PL86-249),asamended,theUnited
StatesCongressmustauthorizethescopeandbudgetofeachmajorcapitalconstruction
project before design begins. Once Congress has approved a projects construction
budget,itcannotbeincreased,sothedesignteammustapproachprospectusfundingas
anabsolutelimit.
pursuitofconstructionservices
Construction bids may be solicited only if the Estimated Cost of Construction at Award
(ECCA) amount at final construction documents is within congressionally authorized
prospectuslimits.
itemizedcostmanagement
When project funds are secured from different agencies or are provided as a dedicated
allowance for a specific program goal, independent estimates must be made for each,
allowingseparatetrackingofexpenditures.Fundingallocatedforsuchprojectsistracked
to confirm that expenditures are apportioned according to amounts authorized by each
agency,soasnottoexceedthededicatedallowance.
independentestimates
The Government requires third-party estimators for major construction projects to verify
6
section1.3
1
thattheprojectsscopeandcostarewithinbudget.Theseestimatesarepreparedbyan
independentcostestimatorwhoisnotaffiliatedwiththedesignfirmortheConstruction
Manager as Contractor (CMc). The design team provides all required documentation for
theestimatortoprovideestimatesfor,ataminimum,thefollowingphases:
FinalConceptDesign
FinalDesignDevelopment
90%ConstructionDocuments
100%ConstructionDocuments
2 estimatingformats
Usingstandardestimatingformatsforcostestimatingandcostmanagement:
Ensures a uniform cost-control framework throughout the various stages of project
development.
Definesaproperlevelofdetailtosetexpectationsfortheestimatingeffort.
Servesasachecklisttoensurecompletecoverageofprojectscope.
Providesforastandardizedhistoricaldatabaseorlibrary.
spacetypeestimates
Thisformat,usedprimarilyfornewconstructionprojects,appliesspace-typeunitcoststo
plannedspaceneeds,resultinginasetofspace-relatedconstructioncosts.Thesecosts
may be adjusted by adding known costs for special requirements defined through other
estimatingformats.Thesumofspace-typecostsandspecial-requirementcostsequalsan
EstimatedConstructionCost(ECC)fortheproject.
SinceGSAsGeneralConstructionCostReviewGuide(GCCRG)usesspace-typeestimates,
cost estimators must be familiar with this technique (see Chapter 1, Section 4.4 for an
explanationofGCCRG).
uniformatestimates
Uniformatestimatingappliesunit-costdatatobuilding-systemandcomponentsiteelements.
Thissystemsapproachusesahierarchicalstructureofcostelements,beginningatLevel
1withbasicsystems,suchasSubstructure,ExteriorEnclosure,andInteriorConstruction,
section1.3
7
andproceedingtosuccessivelymoredetailedsubdivisionsofthesesystemsatLevels2-5.
Theresultinglevelsofdetailnotonlyservetostructurecostinformationbutalsofacilitate
estimatestowhateverlevelofdetailthedesignteamcanprovideastheprojectisdeveloped
throughthedesignsubmissionphases.Forexample,bythefinalconceptdesignphase,
the design team and estimator may have Level 4 information on Substructure, but only
Level2detailforInteriorConstruction.
Although the construction industry uses several variations on the Uniformat concept,
GSA requires that cost estimators use its particular version, for consistency in use and
maintenanceofGSAscostdatabases.GSAsUniformatestimatingformatisillustratedin
AppendixA:EstimatingFormats.
masterformatestimates
MasterFormat, a product of the Construction Specifications Institute (CSI), is the most
widely used standard for organizing building-project specifications and detailed cost-
estimatingdataintheU.S.Itisusedparticularlywhendrawingsandspecificationsare
sufficientlydetailedtoallowmaterialandequipmentquantitytakeoffs,anditistypically
aligned with a general contractors approach to preparing a bid. Visit the Construction
SpecificationsInstituteWebsite(www.csinet.org)formoreinformation.
work-itemestimates
GSA Repair and Alterations (R&A) projects tend to utilize scope descriptions and cost
estimatesorganizedbyworkitems.Whileworkitemsmayvarysignificantlydependingon
thenatureoftheproject,asdefinedbyGSAprogramofficesandclientrequirements,the
following list reflects a typical, but not comprehensive, work-item classification for R&A
projects:
Buildingexterior Electrical
Buildinginterior Lifesafety
Accessibility Elevators
Structural Hazardousmaterialsabatement
Mechanical Roofing
Plumbing Security
8
projectestimatingrequirements
section1.3
1
Traditionally, R&A projects have used the work-item basis because it allows the removal
or addition of project scope to meet budgetary limitations and allowances. GSA assigns
alphabeticalcodestotheworkitemswhendescribingtheprojectanditscostsforeachR&A
prospectus,asrequiredbytheOfficeofManagementandBudget(OMB)andCongress.
SeeChapter2forfurtherdescriptionofnon-prospectusprojects.
otherformats
GSA may require that estimates be formatted in additional ways. For instance, it may be
necessarytosubdivideestimatesforindividualbuildingsandothercomponentsintonew
constructionandmajorrenovation.
Workitemsonnon-prospectusprojectsfrequentlyevolvefromBuildingEvaluationReports
(BERs),andestimatesfortheseprojectsmayfollowaWorkBreakdownStructure(WBS).
SituationsthatmightrequireaWBSinclude:
Differingfinancialcommitmentsofmultipletenantsofaproject,requiringseparate
contractsforeachtenantswork.
Theneedforseparatecontractsforbuildingsandtheirsitework,suchasatborder
stations.
Phased renovation projects requiring swing space for a variety of tenants or
departments.
Projectstobefundedovermorethanoneyear.
Separationofaprojectintobase-contractworkandoptionsoralternates.
Projectsbelow$100,000maybeexecutedunderline-itemorjob-ordercontracts,forwhich
costestimatesarederivedfromline-itemdatabases.Costproposalsfortheservicesofthe
A-EsestimatorandtheindependentgovernmentestimatormustbesubmittedtoGSAon
Form2630/2631,showninAppendixE.
section1.3
9
1
4 estimatingrequirements
1 general
TheGovernmentrequirescostestimatesfor,ataminimum,thefollowingphasesofdesign
Establishinganinitialprojectbaseline.
Preliminaryconceptdesign,withmultipleschemesofdesign
Finalconceptdesignprecedingvalueengineering
Finalconceptdesign
Designdevelopmentprecedingvalueengineering
Finaldesigndevelopment
75%constructiondocuments
The estimate must include all elements of the proposed project work (including all design-
contract modifications), regardless of the design phase. The estimate must all include
verification and continuity of cost budgets in the transfer from estimate to the contractors
schedule of values. Where costs are included for details not indicated on the drawings and
specifications, the independent government estimator must include design assumptions to
completethescope.Theestimatormustcheckallcost-estimatecalculationsforaccuracyand
completeness, including assessing whether estimates completely and accurately represent
designfeaturesandquantities.
Lump-sumpricingisnotacceptablewithoutdescriptionandquantification.
2 warm-litshellvs.tenant-improvement(TI)costestimates
GSAs pricing policy calls for a separate tenant-improvement breakdown of all tenant-space
fitout,identifiedbyagency.YoucanfindGSAspricingpolicyandtherelatedmodificationsand
clarificationsatthefollowingexternalWebsite:http://www.gsa.gov/rentpricingpolicy
section1.4
11
For further inquiries, contact Beth Lemanski, David C. Baker, or Kelly Juarez of PBS Real
PropertyAssetManagement.
Theagencyhousingandsupportingfloorplansmustbeusedtoorganizetheestimatedetailby:
Warm-litshell
Tenant-agencyfitout
Securityupgrades
3 contentsanddegreeofdetail
Table1illustratestheformatsandminimumlevelofdetailrequiredforcostestimatesateach
designphase.
unitpricing
Unit-price cost estimates are based on detailed design documents and developed by
adding up the direct costs of materials and supplies, labor, and construction equipment
foreachindividualtaskofconstructionwork.Thebasisfortheseunitcostsmustbewell
documentedandincludedinthesupportingdataoftheestimate.Tothesedirectcostsare
added applicable indirect costs, such as overhead and profit at a subcontractor level, to
reflectthein-placeconstructioncostperunitofworkrequired.
Forconceptdesignestimates,itisacceptabletouseunitpricescombininglabor,materials,
andequipmentcostsinasinglefigure.Forestimatespreparedatthedesigndevelopment
andconstructiondocumentsphases,GSArequiresseparatelabor,material,andequipment
unitpricing.
Items that are a significant percentage of the total projects cost require the greatest
estimatingeffort.Forsuchitems,indirectcostsandothermarkupsassociatedwitheach
task or work item must be separately identified and considered. On a project-by-project
basisGSArequiresquotesfromsuppliersorspecialtycontractorstodocumentthecostsof
suchmajoritems,andtheestimatormustbepreparedtodiscussthemwithGSA.
Documentation of unit-price data for smaller items could include price quotes, audits,
catalogcuts,andhistoricalcoststoclarifypricebasesandassumptionsmadewhenother
information is not available. The independent government estimator provides a general
12
section1.4
1
statementdescribingthesourcesofunitcostsandquantitiesusedforeachcostdivisionor
category,butindividualsourcereferencesforeachitemizedcostelementarenotrequired.
generalconditionsandprofit
Feasibility Studies, Program Development Studies, and Concept Design
A percentage allowancean overall percentage allowance for the General Contractors
general conditions, bonds, insurance, and corporate overhead and profitis appropriate
if the project involves no unusual coordination, site preparation, or specialized support
services.
Design Development and Construction Documents
Itisappropriatetoestimatethesecostswithtwobreakdowns:
General Conditions: Comprised of itemized general requirements and job-site
supervision.
Mark-Ups: Comprised of general and administrative costs (including state and
localtaxes),profit,bonds,andinsurance.
siteanddesigncontingencies
Contingencies are an integral part of the total estimated costs of a project and cover
costs that may result from incomplete design, unforeseen and unpredictable conditions,
or uncertainties concerning project scope. The amount of the contingency will depend
on the status of design, procurement, and construction, as well as the complexity and
uncertaintiesofthecomponentpartsoftheproject.Contingencyisnottobeusedtoavoid
makinganaccurateassessmentofexpectedcost.GSAmaychoosetosetasideseparate
contingencies for major schedule changes, unknown design factors, unanticipated
regulatorystandardsorchanges,additionstoprojectscope,forcemajeuresituations,or
congressionalbudgetcuts.
Contingencies must always be separately identified so that the magnitude of a contin-
gencys impact is clear. For example, the Independent Government Estimator may never
addcontingencybyconcealingitwithinunitpricingorquantityestimatesortakeoffs.
Siteanddesigncontingenciesstartat10%duringtheprogrammingandplanningstages
andarereducedtozeroasthedesigndevelops(seeTable2).
section1.4
13
-
table1.requirementsforcostestimatingateachdesignphase
ProjectPhase EstimateWBS DetailLevel SummaryLevel EstimateBasis TI/Shell
ConceptDesign GSAUniformat III II
Parameterand
Quantification
Yes
Design
GSAUniformat IV;Note5 III
Quantification
andParameter
Yes
Development
CSIMasterformat Note1&5 Note1
75%CD
GSAUniformat
CSIMasterformat
N/A
Note2&5
III
Quantification Yes
Note3
90%CD
GSAUniformat
CSIMasterformat
N/A
Note4&5
III
Quantification Yes
Note3
100%CD
GSAUniformat
CSIMasterformat
N/A
Note4&5
III
Quantification Yes
Note3
Note1.Ifthedetaileddrawingsandoutlinespecificationsareavailable,providetheCSIMasterformat
costestimateatthegreatestdetailthatthedrawingsandspecificationswillsupport.
Note2.ThelevelofdetailofthecostestimateinCSIMasterformatcorrespondstoUniformatLevelIV,as
definedinthisdocument.
Note3.ThesummaryofthecostestimateinCSIMasterformatcorrespondstoUniformatLevelIII,as
Note4.ThelevelofdetailofthecostestimateinCSIMasterformatcorrespondstoUniformatLevelV,as
Note5.Unitpricesarebrokendownintolabor,materials,andequipment.
table2.guidelinesforstandardsiteanddesigncontingencies
ESTIMATECATEGORY %
Program/Planning 10%
ConceptDesign 7%10%
DesignDevelopment 5%7.5%
IntermediateConstructionDocuments 2 5%
FinalConstructionDocuments 0%
14
section1.4
1
escalation
EscalationistheanticipatedincreaseintheprojectsEscalationistheanticipatedincrease
intheprojectscostduetoinflationbetweenthetimetheestimateispreparedandwhenthe
projectisfinished,sinceinflationcontinuesduringprojectconstruction.Forsimplicity,the
estimatormustassumethathalfoftheworkwilloccurbeforethemidpointofconstruction
andhalfafter.Therefore,theestimateisescalatedtothemidpointofconstructiontoreflect
thecontractorsprovisionforinflationinitsbid.
Intheplanningstage,escalationratesaretakenfromtheGCCRG.Asthedesignprogresses,
theA-EandGSAmustagreeonanannualconstruction-costescalationcompoundingrate,
based on a market survey prepared by the A-E, for use in all design estimates and cost
analyses.ItistheresponsibilityofthedesignA-Etocontrolthecostoftheprojectsothat
whentheECCAbudgetisreducedbytheforecastedescalationrate,theresidualbudget
amountequalsthecurrentvalueoftheproject.
art-in-architecture
Theart-in-architecturesetasideamountis0.5%ofECCA.
constructioncontingency
The construction contingency is an allowance for cost growth that may occur during
construction as a result of unexpected circumstances or incomplete design documents.
GSAcurrentlyrecommends7%fornewconstructionprojectsand10%forrenovations,but
maydirecttheuseofdifferentfiguresonaproject-by-projectbasis.
applyingmarkups,contingencyandescalation
Figure1demonstrateshowmark-ups,contingencies,andescalationshouldbecalculated
andappliedtoprojects.
reviewingandreconcilingestimates
On projects for which GSA requires the preparation of an IGE, the A-E is responsible for
designatingamemberofitsteamtoreconciletheIGEwithitsownestimateinanorderlyand
comprehensivemanner.
cost-managementrequirements
Accurate estimating is an important component of GSAs cost-management process, as
wellasanimportantdecision-makingtoolforthedesignteaminitsselectionofsystems
section1.4
15
andmaterials.Inordertoservethesepurposes,carefulconsiderationmustbegiventothe
following:
Cost-elementcomparisonsPreparedateachmilestonetocomparethecurrent
estimate to the previous milestone estimate and to the overall budget and to the
baselineestimatetoascertainwhetherdesignorscopechangeshavebeenmade
orneedtobemade.RefertotheestimatetrackingsheetsinAppendixB.
Earned-valueaccountingUsedinconjunctionwithcost-elementcomparisons,
theearned-valueprocessallocatescostasitiscommitted,orasapartoftheproject
iscompleted.Decisionsregardingcontingencyandescalationareimportantinthis
process.Foradditionalinformation,seetheWholeBuildingDesignGuidewebsite
atwww.wbdg.org.
Life-cycle cost analysis Used to evaluate the implications of decisions made
duringthedesignprocessnotonlyoninitialcostbutalsoonlife-cyclecosts.Issues
considered typically include energy utilization, sustainability, maintenance, and
operations.SeeChapter2,Section2.2fordetails.
Shell and core, security upgrades, and tenant improvement (fitout) GSA
requires subdividing the estimate into costs for the shell and core and tenant
improvements,includingtheassociatedprofessionalservicescostsincludedinthe
occupancyagreementbetweentenantsandGSA.BoththeA-Esestimatorandthe
independentgovernmentestimatormustsubmittheircostproposalsforprofessional
servicestoGSAusingForms2630and2631.SeeAppendixEforsampleforms.
Phasing/schedulingpackagesUsedforprojectworkdividedintomorethanone
construction phase. Separate cost estimates, accompanied by an overall project
ECCAsummary,supporteachphase.Forphasednewconstruction,aconstruction
management (CM) firm hired by GSA must prepare a post-award construction
costanalysisforeachphase.Aftercontractawardofthelastconstructionphase,
a combined post-award construction analysis for the composite project bid is
prepared.
Multistructure projects Projects involving more than one structure require
separate estimates for each structure. Separate site construction-cost estimates
mustbeassociatedwiththeestimatesforeachstructureinvolved.ACMfirmhired
by GSA must prepare a construction-cost analyses for each structure and site
developmentafterthemultistructureprojectisawarded.
BidalternatesandoptionsACMfirmhiredbyGSAmustprepareseparatecost
estimates for the base bid and for each individual alternate or option when the
projectrequiresthem.
section1.4
16
figure1. calculationofmark-ups,contingencies,andescalation 1
section1.4
17
benchmarking
Benchmarking may be required to assess and verify the cost of a project by reference
to established costs for similar facilities. GSA has access to a number of tools useful to
estimatorsinvolvedinbenchmarking.
4 cost-estimatingandcost-managementtools
gsacostestimatingtoolsandspreadsheets
GCCRG
GSAdevelopedtheGeneralConstructionCostReviewGuide(GCCRG)toassistestimatingin
theplanningphaseofnewconstructionprojects.Figure2isanexampleofaGCCRGestimate.
Project Cost Estimate (PCE)
The PCE was designed for programming and pre-design estimates. Applications may
include BERs, feasibility and program development studies, site acquisition and Market
Surveystudies,anddesign.Figure3isanexampleofaPCEtoolsummary,Figure4isan
excerptofamoredetailedestimatesheet.
Building Life-Cycle Cost (BLCC) and Life-Cycle Cost (LCC) Spreadsheets
SeeChapter2,Section2.2fordetails.
cost-estimatingsystems
GSAencouragesbutdoesnotrequiretheuseofcomputer-basedcost-estimatingprograms
to mitigate manual calculation errors and facilitate changes. The requirements defined
in this document can be easily met by using various commercially available computer
software programs and spreadsheets. Generic spreadsheets allow user adaptation and
offerflexibilityinapplyingdifferentcostdatabases.
Figure5isanexcerptfromaUniformat-structuredestimatereportfromacost-estimating
systemusedatthedesigndevelopmentphase.Itillustratestherequirementtobreakdown
unit prices into labor, materials, and equipment. The report uses the Uniformat levels to
organizetheestimateanddefinethedetailoftheunitpriceitems.
Figure 6 is an excerpt from a MasterFormat-structured estimate report developed at the
design development phase. It illustrates the requirement to break down unit prices into
labor,materials,andequipment.
section1.4
18
figure2. generalconstructioncostreviewguide(GCCRG)
1
section1.4
19
figure3. exampleofaprojectcostsummary
20
section1.4
figure4.PCEcost-estimatedetailexcerptforaconcept-designestimate 1
section1.4
21
figure5.uniformatdesign-developmentestimatereportexcerpt
22
section1.4
figure6.CSImasterformatdesign-developmentestimatereportexcerpt 1
section1.4
23
prospectus-levelprojects
product/deliverable
requirements
2
2
1 preliminaryplanningandprogramming
projectrequirements
ThischapterdealswithGSAsrequirementsforcostestimatingduringthedesignandconstruction
phasesofaproject.Itdefinesanddescribesthescopeandlevelofdetailrequiredforeachpotential
deliverable and product required, in the context of each phase of the project. For information on
thefeasibilitystudyandprogramdevelopmentstudy(PDS)phasesofacapitalproject,seeGSAs
ProjectPlanningGuide,availableinPDFformatatwww.gsa.gov,whichisbrieflydescribedbelow.
1 projectplanningguide
GSA developed the Project Planning Guide to assist participants in the Capital Program
development process in evaluating, developing, and implementing Federal facilities projects.
Theguideoutlinestheprojectdeliveryprocessandofferssomekeystosuccess.
Theguideisdividedintofivesectionsandseveralappendices:
Overview of GSAs Capital Program Outlines GSAs basic capital program
development-planningprocessandthefundamentalrolesofthefeasibilitystudyand
theprogramdevelopmentstudy.
WhatsImportantandWhenDiscussesGSAsprimarybusinessandprogramgoals
aspresentedinthefeasibilitystudyandthePDS.
Pre-PlanningPhaseDescribestheroleplayedbyGSAsdailymanagementoffacility
requirements, customer needs, and portfolio planning in the project development
process.
Feasibility Study Phase Outlines the process for beginning, conducting, and
completing a feasibility study, a process that ends with the submission of the
prospectuspackageforsiteanddesignfunding.Thissectiondescribestheprocess,
deliverables,andkeystosuccessfuldevelopmentofasoundprojectandsite/design-
fundingrequest.
Program Development Study (PDS) Phase Outlines the process for evaluating
thefeasibilitystudyasthefoundationforthePDS,digestingnewinformation,refining
theproject,anddirectingtheprojectsdesignandconstructionstrategy.Thissection
section2.1
27
discusses the process, deliverables, and keys to successfully supporting a sound
designstartandconstruction-fundingrequest.
AppendicesIncludeprocesschecklists,aglossary,worksheetsonteamroles,and
resourcesformoreinformation.
2 levelandformatrequirements
RefertotheconceptdesignphaseestimatingrequirementsinTable1,Chapter1forthetype
ofestimaterequiredatthepreliminaryandplanningphases.
See Section 2.2 of this chapter for a discussion of Market Surveys required during the
Planningphase.
28
section2.1
2
2 designandconstructionphasecost
estimating
1 basicconcept:forallphases
Anydesign-submissiondeliverablesmayinclude,butarenotlimitedto:
costestimatesandreports
marketsurvey
costgrowthreports
space-typecostanalysis
life-cyclecostanalysis
valueengineeringstudies
independentestimatereviews
budgetanalysis
constructionawardbidanalysis
databaseinformationpreparation
constructionmodifications&claimsanalysis
valueengineeringchangeproposalsanalysis(VECPS)
riskanalysisreports
Thepurposeistoestablishacostmanagementsystemthattracksbudgetsestablishedbased
on the prospectus in a Uniformat Level II, comparing cost growth and cost modifications
for all Uniformat Level II elements through design, procurement, construction and project
completion.
Asageneralrule,earlyintheprocessUniformatistheprimaryestimateformat,althoughCSI
MasterFormatmaybeselectedonaproject-by-projectbasis.GSAusuallyrequiresworkitems
onmajorrenovationprojectsorwhentheprojectistobeseparatedintomajorcomponentsor
subbuildings. The space-type summary is usually required at various project phases. A Cost
prospectusproduct/deliverableP-120
section2.2
29
GrowthReportisrequiredatallsubmissions,andaLife-CycleCostAnalysisisrequiredthrough
design development and potentially during construction documents phases for significant
items.
An independent party hired by GSA conducts a value engineering (VE) workshop, and VE is
providedinaccordancewiththedesignsubmissionsrequirementsofP100.GSAmayelectto
conductanadditionalVEstudyattheconstructiondocumentsphaseonaproject-by-project
basis.
WhenGSAcompletesaninternalreviewoftheestimate,orreconcilesanindependentestimate,
andattheconclusionoftheVEstudy,afinalestimateissubmitted.
2 costestimatesandsummaries
summaryofformatrequirements
Table1inChapter1displaysthetypeofestimatetobepreparedatthevariousdesignstages.
preliminaryconcepts
Pre-conceptestimatinggenerallyrequiresthepreparationofestimatesonthreecompeting
basicschemes/concepts,allowingGSAtoselectitspreferredscheme.
For each scheme, the A-Es estimator prepares separate estimates for phased work,
multistructures,andorbidalternates/options.TheA-Ealsosubmitsestimatesforconcept
design analyses/studies as specified in design-programming directives and/or design-
criteriareferences,andacomparisonsheetformultipleconcepts/schemes.
conceptdesign
Theseestimatingrequirementsapplytoanyconcept-levelsubmission.Ifaprojectsdesign
requires multiple concept submissions, each concept submission must be supported by
theestimatesdescribedhere.
Estimators must calculate quantities for appropriate systems or apply parameters to
appropriate building areas. Applied unit costs may be based on combined material and
labor costs. Concept estimates must match the estimate format of the budget estimate
tofacilitatecost-breakdowncomparisons.Forprospectuswork,thistypicallyrequiresthat
Uniformat Level 3 estimates be prepared, delineating cost-element categories shown in
30
section2.2
2
AppendixA.1:UniformatLevel1-5CostElements.However,certainprojects(suchasnonpro-
spectusrepairandalterationwork)mayhavehadtheirbudgetaryestimatesdoneinwork
itemsorCSIMasterFormat.
Backup worksheets must support detailed estimates, covering all cost-sensitive project
data and defining all major assumptions made. Backup estimating data and quantity-
surveyinformationmaybeinanyformat,groupedunderappropriateformatclassification
headings.
TheA-EisrequiredtoprovidetheIndependentGovernmentEstimatoradvancecopiesof
allconceptplansanddocumentationearlyenoughtoallowforthepreparationofrequired
estimates as part of the concept design submission. Advance documents must include
floorplans,elevations,sections,andperspectiveviewsinsufficientdetailtoallowarealistic
parametriccostassessment.Inaddition,theA-Eprovides:
A statement on the conceptual approach and general features for each major
buildingsystem,includinganitemizedlistingofanticipatedtypesandapproximate
capacities/sizes.Blockloadsforstructural,mechanical,andelectricalsystems.
Quality levels of major materials and systems to be used, including any special
design programming or code requirements relating to fire protection, HVAC,
plumbing,electrical,andstructuralcomponents.
A copy of the design program to ensure that the estimator understands goals,
objectives,anddesigndirectivesthatmaynotyetbereflectedinconceptdesign
submissiondocuments.
Toensurethattheprojectisdevelopingon-budget,theA-Esestimatormustalsosubmita
listofcost-savingitemsthatcollectivelywouldreducetheprojectscosttoapproximately
10percentbelowbudget.
TheIndependentGovernmentEstimatorisrequiredtoprepareanECCAsummarysheetto
Uniformat Level 2, representing all project and estimate data. Each ECCA summary must
comparethedesigncostbreakdownwithanybudgetcostvaluesescalatedtothemidpointof
construction,includingper-square-meterorsquare-footcalculationsofoverallprojectcost.
designdevelopment
Tosupportdesigndevelopmentestimating,theA-EprovidestheIndependentGovernment
Estimatorthedocumentationnecessarytodescribeproposedtypes,quality,andquantities
section2.2
31
ofbuildingfeatures,systems,equipment,andmaterials.Projectschedulingmustallowfor
theearlydeliveryofadvancecopiessothattherequiredestimatescanbeincludedwiththe
designdevelopmentsubmissions.
Asaseparatecost-savingtask,theA-Esestimatormustalsosubmitalistofcost-saving
itemsthatcollectivelywouldreducetheprojectscosttoatleast10percentbelowbudget.
The independent government estimator prepares an ECCA estimate for the base bid and
separateestimatesforphasedwork,multistructures,and/orbidalternatesoroptions.Anoverall
projectECCAestimatewillalsobeprepared,incorporatingallprojectsegments,foranalyses
orstudiesspecifiedindesign-programmingdirectivesanddesign-criteriareferences.
Backup worksheets are required to support the detailed estimates, which represent all
cost-sensitiveprojectdataanddefineallmajorassumptions.Backupestimatingdataand
quantity-surveyinformationmaybeinanyformat,butmustbegroupedunderappropriate
formatclassificationheadings.TheEstimateTrackingSheetandElementalCostSummary
formsmustbesubmitted,includingper-square-meterorsquare-footcalculations.
constructiondocuments
Estimating requirements given here apply to all required construction documents
submissions75%, 90%, and 100% CDsunless specified as applicable only to final
constructiondocuments.
If the overall projects construction documents estimate exceeds the budget, the A-E is
againrequiredtoproposecost-savingmeasurestobringtheprojectwithinbudget,atits
ownexpense.Toavoidover-budgetconstructionbids,theA-Esestimatormustidentifyat
leastfiveconstructioncost-savingitems,formulatedasbidalternates,tobringtheprojects
estimateatleast10percentbelowbudget.
The Independent Government Estimator prepares an ECCA estimate for the base bid,
including separate estimates for phased work, multistructures, and/or bid alternates or
options with any addenda. An overall project ECCA estimate is also prepared, incorpo-
rating all project segments, for analyses or studies, as specified in design-programming
directivesanddesign-criteriareferences.
ECCA estimates are developed using MasterFormat, with detailed material and labor
breakdownandappropriatesubdivisionsasshowninAppendixA.MasterFormatestimates
32
section2.2
2
are also summarized in Uniformat Level 3 estimates and work items. For both formats,
backup worksheet estimates are arranged by cost categories, with a summary sheet
combining all category costs. The 90% and 100% Construction Document estimates are
preparedatthesamelevelasrequiredforthecontractorperformingtheconstructionwork,
inaccordancewiththeFAR.
Backup worksheets are required to support the detailed estimates, which represent all
cost-sensitiveprojectdataanddefineallmajorassumptions.Backupestimatingdataand
quantity-surveyinformationmaybeinanyformat,butmustbegroupedunderappropriate
formatclassificationheadings.
Submissions must follow the formats in Appendix A and provide per-square-meter or
square-footcalculations.
MasterFormatcostestimatesarepreparedtoanequivalentofUniformatLevel5,withunit
pricesseparatelyrepresentingmaterialandlabor.Cost-elementlump-sumestimatingfor
eitherformatsystemmaybeusedonlybypermissionofGSA.Ifcostelementsaretransferred
fromprevioussubmissionlevels,quantityvaluesmustbeverifiedandunitcostsadjustedto
reflectescalationtotheconstructiondocumentssubmissiondate.Allowancesfordesign
contingencies,generalconditionsandprofit,bonds,andconstructionescalationareadded
tocalculatetheECCAamount.
3 marketsurvey
GSA requires that the design A-E prepare a Market Survey for every project and for each
submissionindicatedintheTaskingMatrix(Table3inChapter3),anddescribedbelow.
A Market Survey explores all factors influencing construction costs relevant to the current
stageofdesign.TheMarketSurveypreparergatherspertinentdatabyinterviewinglocalfirms
having knowledge of construction in the area. Possible sources include, but are not limited
to,generalcontractorsandsubcontractors,buildersassociations,localgovernmentofficials,
architecturalandengineeringfirms,builders-exchangeandconstruction-reportingfirms,and
bankersandcommercialmortgagefirms.Particularemphasismustbeplacedonascertaining
the availability of mechanical and electrical subcontractors and the associated skilled labor
trades. The Market Survey must reflect recent and expected bidding conditions that may
influencethecostofconstructionandlistallsourcesofdata.
section2.2
33
ThepersonwhopreparestheMarketSurveyvisitsthesiteandlocalmarketareastodetermine
thefollowing:
Availabilityandshippingoriginofmajorprojectmaterials.
Capabilityoflocalfabricators,precastyards,concreteplants,etc.
Availabilityoflaborcraftsnecessaryfortheproject,especiallyskilledlabor.
Availabilityofspecialerectionequipment.
Anticipatedcapacityoflocalcontractorsduringbiddingperiod.
Specialconditionsthatmightinfluencebidding.
Localescalationexperience.
Siteaccessibility.
Batchplantoptionsforconcreteandasphalt.
Applicablelocaltaxesorgrossreceiptstaxeswheretheprojectwillbeconstructed.
Costsofremoteness,suchaslaborforlosttime,housingallowance,orrequirementfor
onsitehousingormaterialdeliverycosts.
TheMarketSurveyalsoincludes:
Whowascontacted(person,firm,phone,e-mail).
Wheretheyarelocated.
Whencontactwasmade.
Whytheywerecontacted.
Whatinformationwasobtained.
Asummaryassessmentwithspecificrecommendations.
conceptdesign
The A-E conducts a Market Survey as described above and as required by the Tasking
Matrix(Table3inChapter3).
designdevelopment
During the design development phase, the concept design phase Market Survey is
updated,verified,andrefinedtoincludeallchangesnecessarytoreflectnewinformation
34
section2.2
2
on local market conditions, such as regional building booms and other potential major
projects with comparable construction schedules. These updated Market Surveys are
submittedasrequiredbytheTaskingMatrix (Table3inChapter3).
constructiondocuments
Atthe90%and100%constructiondocumentsphases,thesurveyprocessintensifies,andall
datagatheredisreported.Thereportclearlydepictsthelikelybiddingmarket,otherprojects
likelytobeonthemarket,andhowhungrythemarketislikelytobeatthescheduledtime
ofbid.Thefinalestimatemustincorporatethesurveysconclusionsandreflectthecurrent
biddingclimate,includinginformationontheexpectednumberofbiddersforgeneraland
subcontractors,theamountofcompetitionamongcontractors,andotherconditionsthat
mayhaveanimpactontheconstructionproject.
Notethatinthisphasetheprojectsconstructionmanagerasagentwillbepromotingthe
projectwithintheconstructionindustrytodevelopinterestforgoodcompetition.
section2.2
35
4 costgrowthreport
GSA uses the Cost Growth Report (CGR) to track cost growth at each design phase by
comparisonwiththeprojectbudget.ThisisdonebycomparingthepriorsubmissionsUniformat
Level2costsforeachcostelementwiththecurrentsubmissionsLevel2costs,andidentifying
thecauseoflargevariances.TheA-Esestimatorpreparesthisreportforeachdesign-phase
submission,usingGSAForm3474,ProjectCostComparisonSummary.SeeAppendixB:Estimate
TrackingSheetsforasampleoftheform.
preliminaryconceptdesign
Eachdesignconceptconsideredduringthissubmissionmustbewithintheprojectsoverall
constructionbudget.TheA-Ewillberequiredtoredesignanyconceptdesignschemenot
withinthebudgettobringitwithinbudgetconstraintsatitsownexpense.
For each concept scheme, the A-Es estimator lists cost-saving ideas that collectively will
bring project costs within budget. The Independent Government Estimator validates these
cost-savingmeasuresbypreparinganorderofmagnitudeestimateofsavingsforeachofthe
A-Esproposedmeasures.TheA-EsubmitsitsCostGrowthReportonGSAForm3474.
finalconceptdesign,designdevelopment,andconstructiondocuments
Iftheestimatesfortheconceptdesignanddesigndevelopmentsubmissionsexceedthe
projectbudget,theA-Eisrequired,atitsownexpense,toproposecost-savingmeasures
to bring the project within budget. Just as described above for the preliminary concept
designs CGR, the A-E summarizes the final concept design estimate on GSA Form 3474
andcomparesittotheprojectbudget.Thisreportissupportedwithcostestimatesforeach
proposedcost-savingitem.Theindependentgovernmentestimatorvalidatesthesecost-
saving measures as outlined in the paragraph above for the preliminary concept design
phase.
If the estimate for 90% construction documents exceeds the project budget, the A-E is
requiredtoproposecostreductionsintheformofbidalternatessufficienttoensurereceipt
ofbidswithinbudgetonthescheduledbiddate.TheIndependentGovernmentEstimator
validatesthesecost-savingmeasures,asindicatedintheparagraphabove,fortheconcept
designanddesigndevelopmentsubmissions.
section2.2
36
2
5 space-typecostanalysis
Aspartofanewconstruction-projectcost-estimatesubmission,theIndependentGovernment
Estimatorestimatesconstructioncostsbyspacetypesby:
Identifying all project space types, considering at least those categories listed in the
GCCRG.
Separatelyitemizingspecialcostsoutsidenormalrequirementsoflistedspacetypes,
addressingatleastthoselistedintheAppendixasSpecialCostsExcluded.
6 life-cyclecostanalysis
Life-cycle costing (LCC) is the development of all significant costs of acquiring, owning, and
usinganitem,system,orserviceoveraspecifiedlengthoftime.Thetimeperiodusedisthe
projected effective useful life of the facility, and its determination includes consideration of
functionalobsolescenceofmajorcomponentsorsystems.Itisusedtocompareandevaluate
thetotalcostsofcompetingsolutionsbasedontheanticipatedlifeofthefacilityorproductto
beacquired.
Thevalueofanitemincludesnotonlyconsiderationofthecostsofacquiringit,butalsothe
costsofusingitorthecostofperformanceforaslongastheuserneedsit.Costsofrepairs,
operations, preventive maintenance, logistic support utilities, depreciation, and replacement,
inadditiontocapitalcost,allcontributetothetotalcostofaproducttoauser.
ForfurtherguidancerefertoFacilitiesStandardsforthePublicBuildingsService(PBSP100)
andGSAValueEngineeringGuide(PBS-PQ250and251).
7 valueengineeringstudies
Valueengineering(VE)isconductedduringtheconceptdesignanddesigndevelopmentphases
toexplorecostsaving/value-enhancingoptionsbeforeselectingfinaldesignfeatures.GSAmay
conduct additional studies during the 75% and 90% construction documents phases, and for
100%constructiondocumentsifdeemednecessaryduetotechnicalorbudgetaryconstraints.
Asinglestudymaybeappropriateonsmaller,lesscomplexprojects.Thebasicapproachisto
considermacrolevelissuesatconceptdesignandmoremicrolevelissuesatdesigndevelopment.
section2.2
37
Ingeneral,decisionsmadeasaresultofthefirststudywillnotbereconsideredinthesecond
studyunlesssignificantnewinformationisavailable.Furthermore,designchangesimplemented
asaresultofthestudieswillgenerallybeconsideredwithintheboundsofthenormaldesign
process.Exceptionstothiswillbeconsideredonacase-by-casebasis.
baselineprospectus
TranslatetheapprovedprospectuslineitemsintoUniformatLevelIItobeusedasabasis
ofcomparisonandcontrolthroughouttheprojectlifecycle.
designconcept
Formajorcapitalconstructionandcertainotherprojects,aVEstudywillbeincludedasa
requirement for the concept design submissions. GSA contracts with the VE consultant
directly,ratherthanthroughtheA-E,buttheA-EparticipatesinandreviewsVEproposals
to address project feasibility and adherence to design programming requirements. The
A-EscostestimatormustbeavailabletoanswertheVEconsultantsquestionsconcerning
the origin of A-E concept design estimate unit costs and interpretation of work-element
descriptions. Once GSA determines what VE consultants recommendations are to be
used,thedesignA-Emustincorporatetheserecommendationsintodesigndocumentsas
partofthescopeofwork.
Fornewconstructionprojects,thefirststudyatconceptdesignisintendedtoreviewbasic
designdecisionsthatpertaintoareassuchas:
Sitingandbuildingorientation
Buildingform,shape,andmassing
Layout
Proportionofoccupiableareatogrossarea
Designcriteria
Buildingsystemsselectionoptions
Spaceprogramoptions
Buildingspace/volumeparameters
Verticalandhorizontalcirculation
Majormechanical-electrical-plumbing(MEP)considerations
Overallenergyconsiderations
section2.2
38
2
Siteaccess/egress
Overallphasing/schedulingplans
Subsoilconditionsandgeologicaldata
Utilityavailability
designdevelopment
The second value engineering study at the design development phase focuses on more
detaileddesigndecisionsincluding:
Specificbuildingsystemdesign
Specificationandperformancerequirements
Proposeddesigndetails
Layoutoptionswithinoverallbuildinggeometry
SpecificMEPsystemselections
Sitepaving,grading,andutilities
Phasingandschedulingplans
Majorconstructabilityissues
TheA-EmustincorporatetheVEconsultantsrecommendationsapprovedbyGSAintothe
designaspartofthescopeofwork.
8 budgetanalysis
AnECCAsummaryispreparedateachmilestone,usingtheformatsinAppendixB,tocompare
thecurrentdesign-costbreakdownwiththeprevioussubmissionscostsorthebudget,withall
values escalated to the current submission date. The summary must include allowances for
designcontingencies,generalconditionsandprofit,andconstructionescalationandyieldan
overallprojectcostpersquaremeterorsquarefoot.
9 requirementsforbidsubmission
Procurement officials ensure that the bid packages include a lump-sum bid requirement for
eachbidoption,alternate,andunit-pricingitem.
section2.2
39
2
10construction-awardbidanalysisforprospectus-levelprojects
bidanalysis
After the construction contract is awarded, the Independent Government Estimator
analyzesthebidcost,usingallavailablecostdata,includingthecontractorsbreakdownof
costssubmittedasthepaymentscheduleformonthlyprogresspaymentsforeachtradeor
subcontract.
TheIndependentGovernmentEstimatorreviewsthefinalcostestimateinUniformatLevel
3andrevisesittoalignwiththeactualbidprice.TheadjustedcostdataisprovidedtoGSA
informatsfoundinAppendicesCandD.
After completion of the above cost analysis, the estimator uses a format similar to that
foundinAppendixDtoprovideasynopsisoftheprojectspaceplan,efficiency,scope,and
basicdesignparametermeasures.
GSAwillprovidetheA-EandtheIndependentGovernmentEstimatorthefollowingdata:
Theabstractofbidsreceivedfortheprocurementwithanindicationoftheaward
amountandthebidsofferedbyallcontractors.
Anybreakdownorverificationofcontractororsubcontractorpricesinthecourse
ofcontractaward.
Thecontractsapprovedscheduleofpricestobeusedforprogresspayments.
11cost database
GSAusescostdatacollectedforsimilarbuildingtypestodevelopspace-typecostbenchmark
tools to improve budget development for future projects. Therefore, GSAs regional project
manager provides cost estimates, reconciled estimates, bid analysis, and construction cost
reconciling back to the bid estimate to the regional cost advocate or Central Office cost-
managementstafftocompilethisdataintoGSAscostdatabase.
12constructionmodificationsandclaimsanalysis
This section provides information, procedures, and guidance for estimating and processing
constructioncontractmodifications.Contractmodificationsincludechangeorders,contractor
section2.2
41
claims,formalresolutionofconstructivechanges,theimpactonunchangedwork,suspension
ofwork,andtimeextension.
An independent estimate for contract modifications requested by the Government must be
preparedbeforetheproposalrequestissenttothecontractor.TheIndependentGovernment
Estimatormustbeprovidedthesamedocumentsconcerningtheproposedmodificationthat
thecontractorwillbeprovided,orhaveaccesstothem.
TheIGEpreparedinresponsetoacontractor-initiatedproposalmustbepreparedtothesame
level of detail as the contractors proposal and be based on the scope of the modification. A
copyofthecontractorsproposalwiththecostsdeletedcanbeused.
RegulationsrequireanIGEforanyprocurementof$25,000ormore.IftheContractingOfficer
determinesitisnecessary,heorshemayrequireestimatesoflesseramounts.Inthecaseof
contractmodifications,the$25,000triggerfigureisthesumoftheabsolutevaluesofdecreases
andincreases.Forexample,amodificationresultingindecreasesof$10,000andincreasesof
$16,000wouldsumtotheabsolutevalueof$26,000,andanIGEwouldberequired.Adjustments
inmethodsorformatsfortheprimepurposeofescapingthisrequirementareprohibited.
Forallnegotiatedprocurements,includingcontractmodifications,regulationsstatethataward
mustnotbemadeunless:
ThefinalIGEequalsorexceedsthenegotiatedprice,or
In the case of reductions, which must be considered separately from increases, the
negotiatedcreditisequaltoorexceedsthefinalIGE,and
The correct final IGE is included in the contract file, supplemented by a complete
statementjustifyingtheawardatacostdifferentfromtheestimate,andadequatefor
subsequentreview.
Theoverallobjectiveofacontractmodificationnegotiationistoreachanagreementwiththe
contractor that is in the best interest of the Government. The lowest possible price does not
alwaysmeetthisobjectivenorwouldagenerousprice,ifthatpriceoffersmorepaymentthan
necessarytoincludesufficientincentive.Thenegotiationteamstrivesforsomeintermediate
point,whichisgenerallyregardedasthelowestreasonablepricetheamountatthebottomof
thepricerangethatthenegotiatorconsiderstobefairandreasonable.
section2.2
42
2
To arrive at this price the negotiator must at least partially rely upon an IGE based on a
detailedanalysisofthechangeinrequirementsandexistingjobconditions.Forthemostpart,
the estimate must be similar to, and take into account, those same conditions and elements
occurringinthecontract,aseachappliestothechangeorderscope.Inlieuofbetterdata,the
IGE for bid evaluation may be used for assistance. The Independent Government Estimator
mustunderstandthescopeofthechangeandprepareanaccuratequantitytakeoffforeach
direct item of change, using labor, material, and equipment costs and sequentially applying
appropriateoverhead,profit,andbondcosts.Sincethisformal,approvedIGEisusedtoevaluate
the reasonableness of the contractors proposal, it must be prepared on a comparable and
realisticbasisbyanestimatorfamiliarwiththemodificationandclaimprocesses.Theestimator
mustreviewthecostspresentedinthecontractorsproposalforaccuracy,reasonableness,and
allowableness.Ofthosecostsfoundallowable(seeFAR31.2),eachmustbefurtherreviewed
forapplicabilitytotherequestedmodification.
section2.2
43
TheIndependentGovernmentEstimatormust:
Review the change documents and become familiar with the requirements of the
changedwork.
Determine the status of construction and how the changed work will fit into the
constructionschedule.
Usemethods,capabilities,andlaborratesmatchingthoseofthecontractorperforming
thework.
Priceeachitematratesineffectatthetimethechangedworkwillbedone.
Attempttoagreewiththecontractoronscopeandestimatestructurebeforepreparing
theIGE.
Unlessotherwiseagreed,useMasterFormatwithalevelofdetailusedinthecontract
documents.
Use the same level of detail the Government would use if it were competing for the
award.
Compute the net cost or credit by subtracting the total of the original work from the
totaloftherevisedwork.
Clearly and adequately describe and identify schedule-related and impact-related
costsasaseparatepartofeachestimate.
Preparetheestimateinatimelymanner.
impactcostconsiderations
Whenamodificationisdirected,settlementincludesnotonlythecostandtimechangeof
theworkdirectlyaffectedbutalsothecostandtimeimpactontheunmodifiedwork.
Generally the contractor first presents impact costs as part of the proposals claimed
impactcosts.TheIndependentGovernmentEstimatorlooksforoffsettingcoststoreduce
the impact to the Government. The contractor is required to submit documentation to
support the claimed cost, such as narrative calculations and planned rescheduling. To
determine the extent of the impact, the approved cost and resource-loaded schedule
furnishedbythecontractormustbedevelopedtoreflectactualconstructionasaccurately
as possible. The modification work is superimposed on the original schedule so as to
44
section2.2
2
minimize delay under the given requirements. GSA reviews and accepts, or requests
modificationsto,therevisedschedule.
The Independent Government Estimator classifies each impact cost claimed as either
factual or judgmental. Factual costs are fixed and established and can be determined
directlyfromrecords,suchasrentalorwagerateagreementsorpurchasedocuments.
Oncetheitemhasbeendeterminedvalidasafactualimpact,theitemcostmaybedirectly
calculated.Theamountofcostchangeiseitherstatedonthecertificationdocumentorcan
bedeterminedfromthescheduledtimechangeoftheconstructionprogressplan.
Examplesoffactualimpactcostsare:
Escalationofmaterialprices.
Escalationoflaborwagerates.
Changeinequipmentrates.
Increaseforextendingthestorageperiodformaterialsandequipment.
Increaseforextendingthecontractforlaborandsubsistence.
Increase for a longer period of direct onsite overhead personnel, materials, and
utilities.
Increaseforalongerperiodofoverheadandprojectofficeservices.
TheIndependentGovernmentEstimatoridentifiesjudgmentalimpactcosts,whichinclude
thosethataredependentonvariablefactorssuchasperformance,efficiency,ormethodology
andcannotbestatedfactuallypriortoactualaccomplishment.Thecontractorsproposal
mustprovideclearandcrediblesupportforalljudgmentalimpactcosts.
Examplesofjudgmentalimpactcostsare:
Changeofefficiencyresultingfromrescheduling.
Lossoflaborefficiencyresultingfromlongerworkhours.
Loss of efficiency caused by disruption of existing orderly processes and
procedures.
Lossofefficiencyduringreschedulingofmanpower.
Inefficiencyincurredfromresubmittalofshopdrawings,samplematerials,etc.
section2.2
45
The Independent Government Estimator weighs any premium costs allowed in the base-
contractchangeproposalagainstanyadditionalimpactcostsrequested.Forexample,the
MechanicalContractorsAssociationsproductivityratescanbehigherthanthoseusedin
competitivelybidwork.Theestimatormustavoidincludingthecontractorsquestionable
impactcostsintheinitialGovernmentestimateunlesseachhasbeendeemedjustifiable.
Anyoffsetstoimpactcostsfromdeletedworkmayincreasethecontractorsefficiencyand
productivity,resultinginacredittoGSA.
estimatorssupportduringnegotiations
After the IGE for the modification has been completed, approved, and delivered to the
Contracting Officer, the Independent Government Estimator continues to support the
negotiations, as directed by the negotiator. The estimator must become thoroughly
familiar with negotiating requirements and techniques before participating as part of a
negotiatingteam.HeorshemarksallestimatesFOROFFICIALUSEONLYtopreserve
balanceduringnegotiations.Theoverallamountmustnotbedisclosedunderanycircum-
stancespriortoaward.
13value-engineeringchangeproposals(VECPs)
VECPsmayrequirepreparationofanIGE.SinceaVECPwillbesupportedbycontractorpricing,
theestimatorpreparestheIGEinamannersimilartothatdefinedpreviouslyinConstruction
ModificationsandClaimsAnalysissection(inChapter2.2).
14risk management
The Independent Government Estimator assists in identifying and measuring risks, and then
indeveloping,selecting,implementing,andmanagingoptionsforaddressingthoserisks.The
severaltypesofrisktobeconsideredaspartofarisk-managementmethodologyinclude:
Schedule
Cost
Technicalfeasibility
Environmentalremediation
Archaeological
section2.2
46
2
Technicalobsolescence
Dependenciesbetweenanewprojectandotherprojects
Physicaleventsbeyonddirectcontrol
Marketandeconomicevents
GSAusestheConstructionIndustryInstitutes(CII)ProjectDevelopmentRatingIndex(PDRI)
toidentifyweakareas,whichareineffectarisklist.
15occupancyagreementsandtenant-improvementspricing
CostelementsareorganizedinaccordancewithGSAspricingpolicy,whichrequiresaseparate
tenant-improvementestimateforeachtenant.
Theagencyhousingplanandthesupportingfloorplansmustbeusedtoorganizetheestimate
detailby:
Warm-litshell
Tenantagencyfitout
Securityupgrades
InadditiontotheECCAtheestimatormust,foreachtenantagency,addtheGSA-relatedcost
elements identified in the Space Planning section of the GSA Pricing Desk Guide, (Section
3.2.10, page 19) and in the Pricing Implementation for Project Managers Guide, Chapter II
ProjectDevelopmentPhase.
section2.2
47
3
deliverymethodsand
deliverables
3
1 overview
1 requirementsforestimates
The matrix of Table 3 indicates the deliverables typically required by delivery method and by
sizeofproject.
matrixrows
ThematrixrowsareorganizedbythefivedistinctstagesofanyprojectPlanning,Design,
Construction Procurement, Construction, and Construction Closeout. Within these are
discretephases,andwithineachphasethereareseveralactivities.Toperformtheactivities,
severaltaskshavetobecompleted,allasshownonthematricesthatfollows.
Planning Stage: Theplanningstagehasfourphases:
1 Preliminaryprojectdevelopment
2 Feasibilitystudy
3 Programdevelopmentstudy(PDS)
4 Design-buildRFP
5 Baselining
Design Stage: TheDesignstagehasthreephases:
1 Concept
2 Designdevelopment
3 Constructiondocuments
Construction Procurement Stage: Thereisonlyonephaseandoneactivity,buttwotasks
areidentified.
Construction Stage: Thereisonlyonephasehere,butitstwomainactivitiesare:
1 Constructionmodificationsandclaimsanalysis
2 ValueEngineeringChangeProposal(VECP)
Construction Closeout Stage: CloseoutistheonlyphaseandactivityintheConstruction
CloseoutStage.
deliverymethodsanddeliverables
section3.1
51
matrixcolumns
Thematrixshowsfourdeliverymethods:
1 Traditional(Design-Bid-Build)
2 ConstructionManagerasConstructor
3 Design-BuildwithBridgingorConceptdocuments
4 Design-Buildpureorperformance-based
Thematrixfurtherorganizeseachdeliverymethodbyprojecttype:NewConstruction,and
Repair&Alteration/Modernization.
Projectsizes,definedbyconstructionvalue,subdivideeachprojecttype.Projectsizesare:
1 Under$2million
2 $210million
3 $1025million
4 $25millionandabove
NewConstructiondoesnotusetheunder$2millionprojectsize.
52
section3.1

-
2 deliverableflow-chartsbydelivery
table3. cost estimatingforconstruction in federalbuildings
tasking matrix
traditional CMc
DB bridging/
concepts
DB pure/
perform. based
new r&a/mod new r&a/mod new r&a/mod new r&a/mod
activity task
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
preliminary project development

BER WorkItemCost Estimates
Blast/Prog.
Collapse study
Uniformat or Masterformat
Cost Estimates

Seismicstudy
Cost Estimates

NEPA
Cost Estimates

Master Plan
Cost Estimates

Specialstudies
Cost Estimates

A-EFee
Estimate
Independent Government
Estimate

feasibility study
Foreach
development
submission
GCCRG/BenchmarkToolsor
ProjectCost Estimating Tool

Risk Analysis
Foreach available
preliminaryplanning
study
Validate/Update Associated
Estimate

Foreach incorporated
preliminaryplanning
study
A-EFee
Estimate
Independent Government Cost
Estimate

54
projectestimating requirements P-120
section3.2
-

-
programdevelopmentstudy(pds)
taskingmatrix
traditional CMc
DB bridging/
concepts
DB pure/
perform. based
activity task
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
Feasibility Study
Critique
Foreach development
submission
Foreach available
preliminaryplanning
study
Foreach incorporated
preliminaryplanning
study
Validate Feasibility Study
Estimate

GCCRGforBudget Analysis
Market surveys
(one submission only)
Validate / Update Associated
Estimate
Validate / Update Associated
Estimate

design build RFP
Estimating Support
Independent Government
Cost Estimate

concept design
Preliminary
Submission
VE workshop
Final Submission
Cost EstimatesperTable1for
each submission

Cost Estimate

Market Survey
Review of A-EEstimate
Cost EstimatesperPQ250/251
Cost EstimatesperTable1

Uniformat or Masterformat Cost
Estimate

IndependentEstimate
SpaceType cost analysis
Budget Analysis
3
delivery methodsanddeliverables
section3.2
55

-
Final Submission
(continued)
Life CycleCost Analysis
(Per P-100/Design Program)

Risk Analysis
OCAReview &Estimate
design development
Pre-ValueEngineering
DDSubmission
Life CycleCost Analysis (Per
P-100/Design Program)

VE Workshop/Study Cost EstimatesperPQ250/251
FinalDDSubmission
Market Survey
Cost Growth Report
OCAReview &Estimate
IndependentEstimate and
reconciliationwith A-EEstimate

construction documents
75%CDs
Market Survey
CMcGuaranteed Maximum
Price

90%CDs
Market Survey
reconciliationwith A-E
Estimate

Cost Growth Report
tasking matrix
traditional CMc
DB bridging/
concepts
DB pure/
perform. based
activity task
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
56
projectestimating requirements P-120
section3.2

-
3
OCAReview &
Estimate
Cost Estimates

100%CDs
Market Survey
reconciliationwith A-E
Estimate

Cost Growth Report
construction procurement
Construction Award
Bid Analysis
Database Information
preparation

Cost andPriceAnalysis
construction
Construction Mods &
Claims Analysis
Masterformat Cost Estimates
ValueEng. Change
Property (VECP)
Cost Estimates
Life Cycle cost analysis review
(asrequired)

construction closeout
Closeout
Database Information
including Change Orders

taskingmatrix
traditional CMc
DB bridging/
concepts
DB pure/
perform. based
activity task
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
$
2
5
M
+
$
1
0
2
5
M
$
2
1
0
M
U
n
d
e
r
2
M
delivery methodsanddeliverables
section3.2
57
a
appendices
estimatingformats
1 uniformatlevel1-5costelements
Level1 Level2 Level3 Level4 Level5
A1
S
u
b
s
t
r
u
c
t
u
r
e
A11
F
o
u
n
d
a
t
i
o
n
s
A111
Standard
Foundations
WallFoundations
ColumnFoundations&PileCaps
PerimeterDrainage&Insulation
A112
Special
Foundations
PileFoundations
GradeBeams
Caissons
Underpinning
Dewatering
RaftFoundations
PressureInjectedFootings
OtherSpecialFoundations
A12
B
a
s
e
m
e
n
t
C
o
n
s
t
r
u
c
t
i
o
n
A121
Basement
Excavation
ExcavationforBasements
StructureBackfill&Compact
Shoring
A122
Basement
Walls
BasementWallConstruction
MoistureProtection
BasementWallInsulation
InteriorSkin
A123 SlabonGrade
StandardSlabonGrade
StructuralSlabonGrade
InclinedSlabonGrade
TrenchesPits&Bases
UnderSlabDrainage&Insulation
A2
S
u
p
e
r
s
t
r
u
c
t
u
r
e
A21
S
u
p
e
r
s
t
r
u
c
t
u
r
e
A211
FloorandColumn
Construction
SuspendedBasementFloorConstruction
UpperFloorsConstruction
BalconyFloorConstruction
Ramps
FloorRacewaySystems
OtherFloorConstruction
Roof
Construction
FlatRoofConstruction
PitchedRoofConstruction
Canopies
OtherRoofConstruction
A2
S
u
p
e
r
s
t
r
u
c
t
u
r
e
A21
S
u
p
e
r
s
t
r
u
c
t
u
r
e
A212
Stair
Construction
RegularStairs
CurvedStairs
SpiralStairs
ExteriorFireEscapes
StairHandrailsandBalustrade
A214
Special
Superstructure
Construction
a
61
appendices
appendixa
a
E
B1
1
E
x
t
e
r
i
o
r
W
a
l
l
s
B11
1
ExteriorWall
Construction
ExteriorWallConstruction
Parapets
ExteriorLouvers&Screens
SunControlDevices(Exterior)
BalconyWalls&Handrails
ExteriorSoffits
x
t
e
r
i
o
r
B11
2
SpecialWall
Elements
E
n
c
l
o
s
E
x
t
e
r
B12
1
Windows
Windows
CurtainWalls
Storefronts
B1
u
r
e
B1
2
i
o
r
G
l
a
z
i
n
g
&
D
o
o
r
s
B12
2
Doors
GlazedDoors&Entrances
SolidExteriorDoors
RevolvingDoors
OverheadDoors
OtherDoors&Frames
B12-3 SpecialGlazing
E
x
t
.
E
n
c
l
o
s
B1
3
R
o
o
f
i
n
g
B13
1
RoofCoverings&
Insulation
RoofFinishesTrafficCoatings&Paving
Membranes
RoofInsulation&Fill
Flashings&Trim
RoofEavesandSoffits
GuttersandDownspouts
u
r
e
B13
2
Skylightsand
RoofOpenings
GlazedRoofOpenings
RoofHatches
GravityRoofVentilators
P
a
r
t
i
t
i
o
C11
Partitions
FixedPartitions
DemountablePartitions
RetractablePartitions
SiteBuiltToiletPartitions
SiteBuiltCompartments&Cubicles
InteriorBalustrades&Screens
InteriorWindows&Storefronts
C1
I
n
t
e
r
i
o
r
C
o
n
s
t
r
u
c
t
i
o
n
C1
1
n
s
,
D
o
o
r
s
&
S
p
e
c
i
a
l
t
i
e
s
1
InteriorDoors
InteriorDoors
InteriorDoorFrames
InteriorDoorHardware
InteriorWallOpeningElements
InteriorDoorSidelights&Transoms
InteriorHatches&AccessDoors
DoorPainting&Decoration
C11
3
Specialties/
Fittings
FabricatedToiletPartitions
FabricatedCompartments&Cubicles
StorageShelvingandLockers
OrnamentalMetalsandHandrails
IdentifyingDevices
ClosetSpecialties
C1
2
A
c
c
e
s
s
/
P
l
a
t
f
o
r
m
F
l
o
o
r
s
C12
1
AccessFloors
C12
2
PlatformFloors
62
appendixa
C1
I
n
t
e
r
i
o
r
C
o
n
s
t
r
u
c
t
i
o
n
C1
3
I
n
t
e
r
i
o
r
F
i
n
i
s
h
e
s
C13
1
WallFinishes
WallFinishestoInsideofExteriorWall
WallFinishestoInteriorWalls
ColumnFinishes
C13
2
FloorFinishes
FloorToppings
TrafficMembranes
HardenersandSealers
Flooring
Carpeting
Bases,Curbs&Trim
C13
3
CeilingFinishes
CeilingFinishesAppliedtoStructure
SuspendedCeilings
OtherCeilings
D1
C
o
n
v
e
y
a
n
c
e
S
y
s
t
e
m
s
D1
1
C
o
n
v
e
y
a
n
c
e
S
y
s
t
e
m
s
D11
1
Elevators&Lifts
PassengerElevators
FreightElevators
Lifts
Escalators&MovingWalks
Escalators
MovingWalks
D11
2
Escalators,Moving
Walks
&Other
OtherConveyingSystems
Dumbwaiters
PneumaticTubeSystems
Hoists&Cranes
Conveyors
Chutes
Turntables
BaggageHandling&LoadingSystems
TransportationSystem
D2
M
e
c
h
a
n
i
c
a
l
D2
1
P
l
u
m
b
i
n
g
D21
1
Plumbing
Fixtures
WaterClosets
Lavatories
Sinks
Bathtubs
WashFountains
Showers
DrinkingFountainsandCoolers
Bidets&OtherPlumbingFixtures
D21
2
Distributionand
DrainageSystems
DomesticWater
Distribution
ColdWaterService
HotWaterService
DomesticWaterSupplyEquipment
SanitaryWaste
WastePiping
VentPiping
FloorDrains
SanitaryWasteEquipment
PipeInsulation
RainWaterDrainage
Pipe&Fittings
RoofDrains
RainwaterDrainageEquipment
Insulation
D21
3
Other
PlumbingSystems
GasDistribution
AcidWasteSystem
Interceptors
PoolPipingandEquipment
DecorativeFountainPipingDevices
OtherPipingSystem
a
63
appendices
appendixa
a
OilSupplySystem
GasSupplySystem
EnergySupply
CoalSupplySystem
CoalSupplySystem
SteamSupplySystem
HotWaterSupplySystem
SolarEnergySystem
WindEnergySystem
D22 CentralPlant Boilers&Furnaces
1 Equipment
HeatGeneratingSystems
BoilerRoomPiping&Specialties
AuxiliaryEquipment
Insulation
M
CoolingGeneratingSystems
ChilledWaterSystem
DirectExpansionSystem
D2
e
c
h
a
n
i
c
a
l
a
D2
2
H
V
A
C
DistributionSystems
AirDistributionSystems
ExhaustVentilationSystems
SteamDistributionSystem
HotWaterDistribution
ChilledWaterDistribution
D22
2
Distribution
Systems
Change-overDistributionSystem
GlycolHeatingDistributionSystem
Terminal&PackageUnits
TerminalSelfContainedUnits
PackageUnits
SystemsTesting&Balancing
PipingSystemTesting&Balancing
AirSystemTesting&Balancing
HVACCommissioning
OtherSystemsTesting&Balancing
SpecialCoolingSystems&Devices
SpecialHumidityControl
Dust&FumeCollectors
SpecialHVACSystems&Equipment AirCurtains
AirPurifiers
PaintSprayBoothVentilation
GeneralConstructionItems(HVAC)
D22
3
Controls&
Interfacew/Bldg.
Automation
HeatingGeneratingSystem
Exhaust&VentilatingSystems
TerminalDevices
EnergyMonitoring&Control
BuildingAutomationSystems
OtherControlsandInstrumentation
64
appendixa
D3
F
i
r
e
P
r
o
t
e
c
t
i
o
n
D3
1
F
i
r
e
P
r
o
t
e
c
t
i
o
n
/
A
l
a
r
m
D31
1
Sprinklerand
StandpipeSystems
FireProtectionSprinklerSystems
SprinklerWaterSupply
SprinklerPumpingEquipment
DrySprinklerSystem
StandpipeandHoseSystems
WaterSupply
StandpipeEquipment
FireHoseEquipment
D31
2
FireAlarmSystems
&Interfacew/Bldg.
Automation
D31
3
Specialtiesand
otherSystems
FireProtectionSpecialties
FireExtinguishers
FireExtinguisherCabinets
OtherFireProtectionSystems
CarbonDioxideSystem
FoamGeneratingEquipment
CleanExtinguishingAgentSystem
DryChemicalSystems
Hood&DuctFireProtection
D4
E
l
e
c
t
r
i
c
a
l
D4
1
E
l
e
c
t
r
i
c
a
l
S
e
r
v
i
c
e
,
D
i
s
t
r
i
b
u
t
i
o
n
&
E
m
e
r
g
e
n
c
y
P
o
w
e
r
D41
1
HighTension
Service&Dist.
D41
2
LowTension
Service&Dist.
D41
3
EmergencyPower
Systems
D41
4
RenewableElectric
Generation
D4
2
L
i
g
h
t
i
n
g
a
n
d
B
r
a
n
c
h
W
i
r
i
n
g
D42
1
GeneralPurpose
Lighting
D42
2
SpecialLighting
D42
3
BranchWiring
(Lighting&Power)
D4
3
C
o
m
m
u
n
i
c
a
t
i
o
n
s
,
S
e
c
u
r
i
t
y
&
O
t
h
e
r
E
l
e
c
t
r
i
c
a
l
S
y
s
t
e
m
s
D43
1
Communications
PublicAddress&MusicSystems
Intercommunication&PagingSystem
TelephoneSystem
CallSystem
TelevisionSystem
Clock&ProgramSystem
FireAlarmSystem
SecuritySystem
LocalAreaNetwork
D43
2
SecuritySystems
&Interfacew/Bldg.
Automation
D43
3
OtherElectrical
Systems
GroundingSystems
FloorRacewaySystems
OtherSpecialSystems&Devices
GeneralConstructionItems(Elect.)
a
65
appendices
appendixa
a
CommercialEquipment
Security&VaultEquipment
CommercialLaundry&DryCleaning
VendingEquipment
OfficeEquipment
FoodServiceEquipment
E11
1
Equipment
InstitutionalEquipment
EcclesiasticalEquipment
LibraryEquipment
Theater&StageEquipment
Theater&StageEquipment
InstrumentalEquipment
Audio-VisualEquipment
DetentionEquipment
LaboratoryEquipment
MedicalEquipment
MortuaryEquipment
E
q
u
i
p
m
E
q
u
i
p
m
VehicularEquipment
VehicularServiceEquipment
ParkingControlEquipment
LoadingDockEquipment
e
n
t
E1
e
n
t
FuelStorageEquipment
E1
&
F
u
r
n
i
s
h
i
n
g
s
1
&
F
u
r
n
i
s
h
i
n
g
s
OtherEquipment
MaintenanceEquipment
SolidWasteHandlingEquipment
FoodServiceEquipment
ResidentialEquipment
UnitKitchens
WindowWashingEquipment
OtherEquipment
FixedFurnishings&Casework
FixedArtwork(exceptArtinArch.)
FixedCasework
Blinds&OtherWindowTreatment
FixedFloorGrilles&Mats
FixedMultipleSeating
FixedInteriorLandscaping
E11
2
Furnishings
MovableFurnishings
MoveableArtwork
Furniture&Accessories
MoveableMats&Rugs
MoveableMultipleSeating
MoveableInteriorLandscaping
HazardousWasteRemediation
RemovalofContaminatedSoil
SoilRestoration&Treatment
S
p
e
c
D
e
m
o
l
S
p
e
c
F11
SpecialStructures
AirSupportedStructures
Pre-engineeredStructures
OtherSpecialStructures
F1
i
a
l
C
o
n
s
t
r
u
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n
,
i
t
i
o
n
&
A
b
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t
F1
1
i
a
l
C
o
n
s
t
r
u
c
t
i
o
n
1
SpecialStructures
IntegratedConstruction
IntegratedAssemblies
SpecialPurposeRooms
OtherIntegratedConstruction
F11
2
SpecialConst.
Systems&Facilities
SpecialConstructionSystems
Sound,Vibration&SeismicConstruction
SpecialSecuritySystems
Vaults
OtherSpecialConstructionSystems
66
appendixa
F1
F1
1
F11
2
SpecialConst.
Systems&Facilities
(cont.)
SpecialFacilities
AquaticFacilities
IceRinks
SiteConstructedIncinerators
Kennels&AnimalShelters
Liquid&GasStorageTanks
OtherSpecialFacilities
B
u
i
l
d
i
n
g
D
e
m
o
l
i
t
i
o
n
a
n
d
A
b
a
t
e
m
e
n
t
F12
2
BuildingElements
Demolition
BuildingInteriorDemolition
BuildingExteriorDemolition
Hazardous
Components
Abatement
RemovalofHazardousComponents
EncapsulationofHazardous
Components
G1
S
i
t
e
w
o
r
k
G1
1
S
i
t
e
w
o
r
k
-
B
u
i
l
d
i
n
g
R
e
l
a
t
e
d
G11
1
Site
Preparation
&Demolition
SiteClearing
Clearing&Grubbing
TreeRemoval&Thinning
SiteDemolitionandRelocations
BuildingDemolition
DemolitionofSiteComponents
RelocationofBuildingUtilities
UtilitiesRelocation
SiteEarthwork
SiteGrading&Excavation
BorrowFill
SoilStabilization&Treatment
SiteDewatering
SiteShoring
Embankments
ErosionControl
HazardousWasteRemediation
RemovalofContaminatedSoil
SoilRestoration&Treatment
G11
2
SiteImprovements
&Landscaping
Roadways
BasesandSub-Bases
Paving&Surfacing
Curbs&Gutters
Guardrails&Barriers
PaintedLines
Markings&Signage
VehicularBridges
ParkingLots
ParkingLotPaving&Surfacing
ParkingLotPaving&Surfacing
Curbs,Rails&Barriers
ParkingBooths&Equipment
Markings&Signage
PedestrianPaving
Paving&Surfacing
Edging
ExteriorSteps
SiteDevelopment
Fences&Gates
RetainingWalls
Terrace&PerimeterWalls
Signs
SiteFurnishings
Fountains,Pools&Watercourses
PlayingFields
Flagpoles
MiscellaneousStructures
a
67
appendices
appendixa
a
G1
S
i
t
e
w
o
r
k
(
c
o
n
t
.
)
G1
1
S
i
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w
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k
-
B
u
i
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i
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R
e
l
a
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d
(
c
o
n
t
.
)
G11
2
SiteImprovements
&Landscaping
(cont.)
Landscaping
FineGrading&SoilPreparation
ErosionControlMeasures
TopSoil&PlantingBeds
Seeding&Sodding
Planting
Planters
IrrigationSystems
OtherLandscapeFeatures
G11
3
SiteUtilities
WaterSupply&DistributionSystems
PotableWaterDistributionandStorage
Non-PotableWaterDistributionand
Storage
WellSystems
FireProtectionDistributionandStorage
Systems
PumpingStations
PackagedWaterTreatmentPlants
SanitarySewerSystems
Piping
Manholes
SepticDisposalSystem
LiftStation
PackagedWaterWasteTreatmentPlants
SepticTanks
DrainFields
StormSewerSystems
Piping
Manholes
Headwalls&CatchBasins
LiftStations
RetentionPonds
Ditches&Culverts
HeatingDistribution
SteamSupply
CondensateReturn
HotWaterSupplySystem
PumpingStation
CoolingDistribution
ChilledWaterPiping
WellsforCooling
PumpingStations
CoolingTowersonSite
ChilledWaterPiping
WellsforCooling
PumpingStations
CoolingTowersonSite
FuelDistribution
FuelPiping
FuelEquipment
FuelStorageTanks
FuelDispensingStations
OtherSiteMechanicalSystems
IndustrialWasteSystem
PetroleumOil&LubricantsDistribution
System
ElectricalDistribution
Substations
OverheadPowerDistribution
UndergroundPowerDistribution
68
appendixa
G1
S
i
t
e
w
o
r
k
(
c
o
n
t
.
)
G1
1
S
i
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-
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R
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a
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e
d
(
c
o
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.
)
G11
2
SiteUtilities
(cont.)
SiteLighting
Fixtures&Transformers
Poles
WiringConduits&Ductbanks
SiteLightingControls
SiteCommunications&Security
SiteCommunicationsSystems
SiteSecurity&AlarmSystem
OtherSiteElectricalUtilities
CathodicProtection
SiteEmergencyPowerGeneration
G1
2
O
t
h
e
r
S
i
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e
w
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k
P
r
o
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-
r
e
l
a
t
e
d
G12
1
ConnectingTunnels
andBridges
ServiceTunnels
PedestrianTunnels
SnowMeltingSystem
RailroadWork
MarineWork
Off-SiteWork
SPECIAL
A
r
t
i
n
A
r
c
h
i
t
e
c
t
u
r
e
G
o
v
t
.
F
u
r
n
i
s
h
e
d
E
q
u
i
p
m
e
n
t
Z
G
e
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e
r
a
l
C
o
n
d
.
,
O
H
&
P
Z1
1
G
e
n
e
r
a
l
C
o
n
d
.
,
O
H
&
P
Z11
1
General
Condition,
OH&P
11
C
a
t
e
g
o
r
i
e
s
(
E
x
c
l
.
S
p
e
c
i
a
l
)
21
C
a
t
e
g
o
r
i
e
s
56 Categories 236 217
a
69
appendices
appendixa
a
2 masterformatcostelements(2004Version)
specicationsgroup
Generalrequirementsgroup
Division01GeneralRequirements
facilityconstructiongroup
Division02ExistingConditions
Division03Concrete
Division04Masonry
Division05Metals
Division06Wood,Plastics,andComposites
Division07ThermalandMoistureProtection
Division08Openings
Division09Finishes
Division10Specialties
Division11Equipment
Division12Furnishings
Division13SpecialConstruction
Division14ConveyingEquipment
Division15Reserved
Division16Reserved
Division17Reserved
Division18Reserved
Division19Reserved
facilityservicessubgroup
Division20Reserved
Division21FireSuppression
Division22Plumbing
Division23Heating,Ventilation,A/C
Division24Reserve
Division25IntegratedAutomation
Division26Electrical
Division27Communications
Division28ElectronicSafetyandSecurity
Division29Reserved
siteandinfrastructuresubgroup
Division49Reserved
Division30Reserved
Division31Earthwork
Division32ExteriorImprovements
Division33Utilities
Division34Transportation
Division35WaterwayandMarineConstruction
Division36Reserved
Division37Reserved
Division38Reserved
Division39Reserved
processequipmentsubgroup
Division40ProcessIntegration
Division41MaterialProcessingandHandling
Equipment
Division42ProcessHeating,Cooling,andDrying
Equipment
Division43ProcessGasandLiquidHandling,
Purification,andStorageEquipment
Division44PollutionControlEquipment
Division45Industry-SpecificManufacturing
Equipment
Division46Reserved
Division47Reserved
Division48ElectricalPowerGeneration
Division49Reserved
70
appendixa
estimatetrackingsheets b
Design Development 100% CD Pre-Bid
Estimate Cost Estimate
GSA FORM 3474
appendices
appendixb
71
c uniformatprojectcostsummary
72
appendixc
d buildingcostanalysisforms d
form3472:buildingcostanalysis
74
appendixd
d
form3472:buildingcostanalysis(continued)
appendices
appendixd
75
e e designandmaintenance/inspectionservices
forms
form2631:architect-engineercostestimatesummary
76
appendixe
e
form2630:architect-engineercostestimate
appendices
appendixe
77
f acronyms/glossaryofterms
A-E-Architect-Engineer.
ApprovalandFundingCentralOfficereviewsandevaluatesPDSsandProspectussforinclusion
in the annual GSA fiscal budget request for the entire agency. OMB will evaluate all the various
ExecutiveBranchagencies'requestsforfundstocreateafinalbudgetandCongressdecideswhich
initiativeswillbeapproved(authorized)andfunded(appropriated).
Art-in-ArchitectureProgramthatcommissionspubliclyscaledartworksthatareintegralpartsof
thearchitecturalfabricorsurroundinglandscapesofneworsubstantiallyexpandedfederalbuildings
throughallocationof0.5percentoftheestimatedconstructioncost.
BenchmarkingAmeasurementandanalysisprocessthatcomparesrelevantselectedmeasures
toaselectedbasisofcomparison.Refertopage11.
BERBuildingEvaluationReport.
CostEstimateThegeneraltermcostestimatereferstoanyofficiallypreparedestimatewhether
planning,designstage,constructioncontractormodification
ContingencyAnamountaddedtothecostestimatetoallowtoprovideforuncertaincostsevents
orconditionsthatexperienceshowsarelikelytooccur.
CSIConstructionSpecificationsInstitute.
ECC The Estimated Cost of Construction represents the total cost of construction anticipated
through the completion of construction process and includes in the initial bids/offers as well as
changesthathavebeenauthorizedthroughconstruction.
ECCA The Estimated Cost of Construction at Award represents what the initial bids/offer is
expectedtobe.Thisfigureexcludesconstructioncontingencybutwillincludedesigncontingency
thattypicallyisreducedzeroatbid/offertime.
ETPCorTEPCThisistheEstimatedTotalProjectCostortheTotalEstimatedProjectCostandas
suchincludesallconstructionrelatedcostsaswellascostsassociatedwithsitefunding,professional
servicesandmanagementservicesonthepartofGSA.
FARFederalAcquisitionRegister.
GCCRG General Construction Cost Review Guide (GCCRG) provides costs to construct space
by space type, escalation and location factors by localities, and a system for developing Cost
BenchmarksItisgenerallypublishedannually.
GSAGeneralServicesAdministration.
Independent Government Estimate (IGE) The Independent Government Estimate is a formal,
approvedconstructioncostestimatepreparedforcontractpurposes.Thisestimateisrequiredforall
78
appendixf
f
contractsof$100,000ormoreandtoserveasaguideinestablishingascheduleforpartialpayments.
LCCLifeCycleCost.
MarketAnalysisRefertopage21.
MarketSurveyRefertopage20.
MasterformatAproductorientedhierarchicaltreestructureforconstructionprojectsdeveloped
andpublishedbytheConstructionSpecificationsInstitute.
MCAMechanicalContractorsAssociation.
Modication estimate A Government estimate prepared for a specific contract change order,
incorporatingspecificscope,methodology,andcircumstances.Inadditiontocostofthechanged
work,themodificationestimatemustalsoincludeanycost,whichthecontractorincursfromimpact
ontheunchangedwork.Thisestimateisusedtoassistnegotiationsandtoprotectthegovernments
intereststowardafairpricesettlement.
OMBOfficeofManagementandBudget.
PBSPublicBuildingsService.
PCEProjectCostEstimate.
PDRIProjectDevelopmentRatingIndexdevelopedbytheConstructionIndustryInstitutes(CII)as
atooltoidentifyweakareasasactionitemscreatingarisklist.
PDSProgramDevelopmentStudy.
Prospectus The Prospectus is a two- or three-page synopsis of the PDS, prepared by GSA to
requestCongressionalfundingfortheproject.
R&ARepairandAlteration.
ReconciliationTheprocessofcomparingtwoormorecostestimatesforaprojecttodetermine
reasonsforcostdifferences.
SRCISpaceRelatedCostImpacts.
TITenantImprovements.
UniformatAsystemsorientedhierarchicalstructureforconstructionprojects.
VEValueEngineering.
VECPValueEngineeringChangeProposal.
WBSWorkBreakdownStructure.RefertoSection1.3.3fordefinition.
appendices
appendixf
79
GSAPublicBuildingsService
OfceoftheChiefArchitect
1800FStreet,NW
Washington,DC20405
January2007

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