United States Office of July 2004
Environmental Protection Administration and
Agency Resources Management (2304)
EPA FACILITIES MANUAL, VOLUME 1
Space Acquisition and
Planning Guidelines
Printed on Recycled Paper
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EPA Space Acquisition and Planning Guidelines: Office and Laboratory Space Allocation, Exams of Mathematics
Guidelines for acquiring and planning office and laboratory space for the Environmental Protection Agency (EPA). It covers topics such as space estimation, environment, materials, furniture, process, and maintenance. The document also discusses the role of the General Services Administration (GSA) in acquiring space and the requirements for interior finishes, furniture, and tenant improvements.
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United States Office of July 2004 Environmental Protection Administration and Agency Resources Management (2304)
EPA FACILITIES MANUAL, VOLUME 1
Space Acquisition and
Planning Guidelines
Printed on Recycled Paper
Table of Contents
Space Acquisition and Planning Guidelines
CONTENTS
**3. Determining Space Needs
- Principles of Space Planning**
- Space Acquisition and Planning Guidelines July
- 1.1 Statement of Purpose 1. Introduction
- 1.3 Organization of the EPA Facilities Manual 1 6.1 Systems Furniture and Loose Furniture 1.2 Background 1 6. Furniture and Equipment
- How Space is Acquired 6.3 Telecomm unications
- 2.1 EP A’s Role 2 6.4 Special and M iscellaneous Equipment
- 2.2 GSA’s Role: the SFO and the POR
- 2.3 Budgeting
- 2.3.1 General
- 2.3.2 Tenant Improvem ents (TI)
- Change 3.1 Programm ing: Providing for Growth and
- 3.2 Develop ing the P rogra m of R equirements - 5.7 Summary o f Program Space Requirements - 6.2 Laboratory Casework and Fume Hoods
- 3.2.1 General
- 3.2.2 Security
- 3.2.3 Site Selection
- 3.2.4 Office and Office Support Space
- 3.2.5 Laboratories
- 3.2.6 Laboratory Support Spaces
- 3.2.7 Special Spaces
- 4.1 General 4. Technical Aspects of Space Planning
- 4.2 Overview of Technical Considerations
- 4.2.1 Code Compliance
- 4.2.2 Handicappe d Ac cessibility
- 4.2.4 Building Systems
- PBS-P100 4.2.3 GSA Facilities Standards
- 4.3 Overview of Environmental Considerations
- Assistance 5.1 Professional Design and Planning
- 5.2 Area Measurement; Efficiency
- 5.2.1 General
- 5.2.2 Area Definitions
- 5.3 Plan Organization
- 5.4 Blocking and Stacking
- 5.4.1 Block D esignations
- 5.4.2 Stacking
- 5.5 Circulation and Egress
- 5.6 Circulation Factor
Space Acquisition and Planning Guidelines July 2004
Chapter 1 - Introduction
Chapter 1 - Introduction
1.1 Statement of Purpose
The EPA Facilities Manual, in four volumes, is intended to set forth and codify the agency’s various recommended standards for its nation-wide office and laboratory facilities. Since its inception in 1970, the EPA has acquired office space and laboratories of various kinds in support of its mission to monitor and to advance the nation’s environmental well-being. As the agency’s mission has grown, so has its staff and the requirement for office space, and as scientific knowledge has expanded, the need for improved laboratory facilities has increased. To keep pace with growth and change, implement throughout the agency the lessons learned through experience and practice, promote an equitable allocation of space for all employees, and ensure continuing safe and healthy operations of its facilities, the agency has developed this four-part manual for use by EPA administrators, laboratory directors, facilities managers, design professionals, and anyone involved with the acquisition, design, operations, and maintenance of EPA facilities.
1.2 Background
Over the course of its over 30 years of operation, the EPA has developed standards and guidelines for the acquisition, design, and operations of its office space and its laboratory facilities. These standards had been previously published by the agency as three separate manuals: Space Guidelines (Volumes 1 & 2), directed primarily at the acquisition and planning of office space; Architecture, Engineering and Planning Guidelines; and the Facility Safety, Health, and Environmental Management Manual. The revised, integrated EPA Facilities Manual updates and reorganizes these documents as explained below.
1.3 Organization of the EPA Facilities Manual
The updated EPA Facilities Manual has been divided into four volumes, each volume directed at a specific audience:
- Volume 1, Space Acquisition and Planning Guidelines, is intended for the office director/administrator and the facilities manager whose job it is to acquire space. It helps such persons to estimate how much space will be needed, how the space could be planned in an efficient and cost-effective way, and what constraints must be considered: budget, code requirements, environmental aspects, and similar factors that will affect the workplace. Only an overview of the technical considerations is provided here: the volume that follows describes such technical factors in greater detail.
- Volume 2, Architecture and Engineering Guidelines is meant for those who will have responsibility for the design and construction of the space, whether newly acquired or scheduled for alteration. This volume addresses building systems (HVAC, lighting, power and telecommunications, plumbing), building codes, fire safety, security, and building materials and finishes. This volume also discusses green building considerations for building design. Because of EPA’s mission, it is especially important that the agency take the lead in demonstrating the most current thinking with respect to environmentally
July 2004 Space Acquisition and Planning Guidelines
Chapter 1 - Introduction
effective design and operation in its facilities, and, whenever possible, provide an example to the public and private sectors.
- Volume 3, Safety, Health , and Environmental Manual: Safety and Health Requirements sets forth EPA’s standards and recommendations for the operations of its facilities, both owned and leased. These standards relate primarily to the safety and health of building occupants, and address concerns such as fire and life safety, indoor air quality, and the safe handling of chemicals and hazardous material in the laboratory environment.
- Volume 4, Safety, Health , and Environmental Manual : Environmental Management Guidelines , provides a detailed program of the environmental factors to be considered in the operations and maintenance of EPA space. This volume also considers some environmental factors as they affect building design and, therefore, many items are cross-referenced in Volumes 2 and 3.
Although each volume of the manual is focused on a specific aspect of facilities planning, facilities management, or both, some material has applicability to all aspects, and cross-references from one volume to another are included where appropriate. For example, the discussion of egress is relevant to both the space planning of the facility and the technical code requirements addressed in Volumes 2 and 3. Similarly, the selection of environmentally appropriate materials is a topic germane to both Volumes 2 and 4. Where appropriate, and to avoid unnecessary duplication of material, cross-references have been provided between volumes.
July 2004 Space Acquisition and Planning Guidelines
Chapter 2 - How Space is Acquired
In some circumstances, such as a laboratory procurement, the EPA is granted the authority to conduct its own procurement process.
2.2 GSA’s Role: The SFO and the POR
GSA has the mission assignment to locate appropriate space for the various agencies of the federal government, and upon receipt of the request for space, it will investigate ways in which the request can be filled; looking first to find vacant space in an existing federal building. If such space is not available, GSA will then solicit offers from the private sector to lease space in an existing structure or in a new “build-to-suit” facility. The request for space, if more than 10,000 usable square feet, is published by GSA in a Solicitation for Offers (SFO), which describes the terms of the lease, the type and amount of space required, and details of its operation and maintenance. To supplement the SFO, a Program of Requirements (POR) is attached, a document that provides the specific details of the space and serves as a guide for the preparation of tenant fit-out drawings and specifications.
The SFO is prepared by GSA with input from the agency. It provides technical and performance characteristics that should result in first-class space. It generally follows the same format for each project, and covers the following points:
- Amount and type of space
- Area of consideration (location of space)
- Lease terms (length of lease; renewal options)
- Proposal submission guidelines
- Evaluation criteria for offers and award of lease
- Project schedule
- Base building requirements (e.g., appearance, quality, code compliance, building systems)
- Tenant fit-out requirements (e.g., partitions, doors, finishes)
- Building services, utilities, maintenance
- Miscellaneous provisions (e.g., parking, landscaping, security).
The POR accompanies the SFO and is intended to describe the agency’s specific needs and to provide the basis for the development of tenant space layouts. The POR tailors the generic space described by the SFO to make the space more suited to the agency’s specific needs. Its preparation typically requires the assistance of outside professional services. Chapter 3 discusses preparation of the POR in greater detail. Topics addressed in the POR include:
- Enumeration of the amount and type of space required to house the agency: offices, workstations, laboratories, and support spaces
- Listing of the required special spaces: conference/training space, hazardous materials storage, food service, and fitness center
- Descriptions of building systems as they relate to the interior fit-out: lighting, power and telecommunications requirements, heating, ventilation and air-conditioning (HVAC) requirements, and acoustics
- For special spaces such as laboratories, all of the technical requirements for the facility including detailed room data sheets for each laboratory room
- Requirements for facility security systems
Space Acquisition and Planning Guidelines July 2004
Chapter 2 - How Space is Acquired
- Interior finishes and details, including “above standard” finishes
- Proposed furniture: systems furniture, loose furniture, and laboratory casework.
2.3 Budgeting
3.2.1 General
The cost of space is clearly a prime consideration in the development of the SFO and the POR. The GSA PBS has documented its policies for computing rents and for determining tenant improvement costs in its Pricing Desk Guide. The Guide explains in detail the PBS policies with respect to types of space, key pricing elements, forced moves, customer agency rights and options, and similar factors that determine the rents and fees that will be charged to the agency.
In addition to the rent, the agency must also consider items such as costs of swing space, move costs, furniture and equipment costs, security costs, and telecommunications costs.
In the initial stages of project planning, cost estimating is necessarily somewhat rough, and first estimates are “order-of-magnitude” based on experience with similar types of space. It is helpful to seek outside assistance in arriving at budget numbers for construction costs. Such help can be provided by a local architecture and engineering (A-E) firm with experience in the type of project contemplated, or by a contractor who has recently worked on projects similar in size and scope to the proposed facility. Also, estimating aids such as the R.H. Means Building Construction Cost Data , which is updated annually, can offer useful information. Some factors to consider in the early planning stages:
- Before detailed drawings and specifications have been prepared, estimates are typically developed on a square foot basis. As the project proceeds and more information becomes available, estimating can also become more detailed and accurate.
- Because of the extent and complexity of mechanical and electrical services required in laboratories, as well as the costs of case work and fume hoods, the square foot costs of such laboratories will be substantially higher than that of standard office space.
- If the project is a renovation of an existing structure, costs are greater than for new construction. If the building is considered to be of historic interest, and subject to requirements that historic elements are to be preserved and/or restored, costs are significantly higher, and the construction schedule is considerably lengthened.
- If the project includes a need to remediate hazardous materials, such as existing asbestos- containing materials or contaminated earth at the site, the cost for such remediation, as well as its impact on the time schedule, must be considered.
- In developing the project estimate, an escalation factor to account for inflation should be included. A tentative construction schedule should be prepared, and costs escalated to the mid-point of the construction period.
Space Acquisition and Planning Guidelines July 2004
Chapter 2 - How Space is Acquired
The general component is a dollar amount per square foot to cover the cost of partitions, doors, carpeting, and such standard work-letter items. The allowance is intended to take the space from a “building shell” to a “vanilla” office space. This allowance is set nationally, adjusted annually, and indexed to local construction costs.
The customization component is also a dollar amount per square foot but is tailored to individual agencies and bureaus. This component is intended to cover special items and finishes that are not typical to all office space but are necessary to customize the space for a particular agency. Examples include millwork, laboratory countertops and fume hoods, private restrooms, raised access flooring, slab-to-slab walls, and built-in equipment. Customization tiers, each equal to a tenth of the value of the general allowance, have been created. Based on historical data, each agency or bureau has been assigned a tier. At present (2003), EPA has been placed in Tier 3, meaning that a 30% customization allowance is provided for build-out in addition to the general component dollars.
Collectively, the general and customization components constitute the TI allowance. In any instance, should build-out costs exceed the TI allowance, the tenant agency (EPA) is responsible for the excess amount.
GSA has also clearly identified the interior elements that are to be covered by the TI allowance. Funds for the base building (even when residual funds exist) are not transferable for TI use. Budgets for the base building and TI are separate and are not to be commingled. The only exception would be the use of TI funds for base-building in a prospectus level project where a cost overrun has occurred in the purchase of the site or on construction of the shell, and then only with the tenant agency’s consent.
In the tables that follow, Table 2.3.3 identifies the items for base-building and tenant areas that constitute the building shell, and Table 2.3.4 lists the elements that typically constitute the TI.
July 2004 Space Acquisition and Planning Guidelines
Chapter 2 - How Space is Acquired
Table 2.3.3. Ba se B uilding and Tenant Are a Item s Inc luded in the Building Shell
Base Building Tenant Areas
Base structure and building enclo sure co mpo nents Broom clean concrete floor slab, with level floor not (windows with exterior finishes) are complete. varying more than 1/4 inch (6 mm) over ten (10) foot (3,048 m m) ho rizontal run in ac cord ance with American Concrete Institute (ACI) Standards.
Base building electrical and mechanical systems (e.g., Gypsum wallboard, spackled and prime painted, on central fire alarm, chiller plant, cooling tower) are exterior perimeter walls and interior core walls are com plete and functional. installed.
All common areas, such as lobbies, elevators, fire Fully installed 2 X 2 foot (610 x 610 mm) suspended egress corridors and stairwells, garages, and service acoustical ceiling with 2 X 2 parabolic fluorescent (or areas are complete. Circulation corridors are provided other building standard such as 2'.0" X 4'.0" (610 x as part of the base building only on multi-tenanted 1,220 mm) fixtures) installed in the ceiling grid for an floors where the corridor is common to mo re than one open office plan at the rate of one fixture per 80 tenant. On single tenant floors, only the fire egress BO MA usable square feet (7.43 sm) or 100 rentable corridor necessary to meet code is provided as part of square feet (9.29 sm). the shell.
Building common restrooms are com plete and Common corridor stud walls, without gypsum board on ope rationa l. demised tenants' premise side and without suite entry door, are installed.
Building cores on each floor with leaseable space Central heating, ventilation and air conditioning contain the following: systems are installed and operational, including, as appro priate, main and branch lines, VAV boxes, Tapp able domestic water riser, service sanitary drain, dampers, flex ducts and diffusers, for open office sanitary vent, ready for extension to tenant demised layout. Conditioned air through medium pressure area(s). ductwork at a rate of 0.75cfm/square foot of BOMA usable area is provided. Electrical po wer distribution pane ls and circuit breakers available in an elec trical closet, with capacity at 277/480 volt and 120 /208 volt, 3 phases, 4 wiring providing 7 watts per BOM A usable (5 watts per rentab le) square foot.
Designated connection point to the central fire alarm system for extension to tenant d emised area(s).
Distribution backboard within a wire closet for connection to tena nt's telephone lines. V ertical co nduit (empty sleeve) through building core, available for tenant wiring/cabling.
Sprinkler mains and distribution piping in a protection layout (open plan) with heads turned down, concealed with an escutcheon or trim plate, are installed.
Space Acquisition and Planning Guidelines July 2004
Chapter 3 - Determining Space Needs
Chapter 3 - Determining Space Needs
3.1 Programming: Providing for Growth and Change
To determine how much space will be required, the agency must first establish the number of persons it intends to house in that space, as well as any special spaces it expects to include. Most EPA facilities consist of office and office support space, laboratories and laboratory support space, or a combination of these two types. Larger EPA installations may also include special spaces such as fitness centers, child care, or food service.
An analysis of the existing organization, including its structure, operations, current staffing, and current use of space, will provide much information to guide development of the program. Interviews with key persons within the organization will help to determine the way it functions, how improvements can be made, and what current shortcomings should be addressed in the new space. Besides current staffing, including vacancies, on-site contractor personnel, interns, “stay- in-schools,” and senior environmental employees (SEEs), the programmer must allow for anticipated growth and make reasonable projections of what the organization could look like five years in the future. (The word “reasonable” is emphasized; unrealistic projections of future growth may be rejected.)
Having developed an understanding of the organization and the way it works, the programmer can direct his efforts to the offices and workstations needed. To the extent that the number of different office and workstation sizes can be minimized, the better the program will be in terms of flexibility and adaptability to organizational change. The EPA has established guidelines (shown in Table 3.2.3.2) for the recommended size of office and workstation according to the occupant’s grade and position in the organization. The use of a single “universal” size of workstation, suited to the majority of employees, results in an efficient and equitable use of space, and readily accommodates changes in organization. In the same way, minimizing the number of sizes of enclosed offices provides for maximum flexibility. Another way in which the desired flexibility may be enhanced is to size small meeting or “teaming” rooms similar to, and interchangeable with, small offices typically provided for mid-level supervisory personnel.
GSA classifies space as General Use, Warehouse, Parking, and Unique. The General Use space classification includes all support spaces, e.g. meeting rooms, conference and training facilities, automated data processing, laboratories, libraries, high-density filing, as well as laboratories. A flat rent rate is assessed for the entire rentable space. The methodology of separate categorization of support and special spaces for purposes of determining differential rent is not applied anymore. Further information can be found in the Pricing Desk Guide previously mentioned.
Because many factors can affect the efficient use of space, such as floor plates with unusual configurations that lead to awkward and unusable corners, or small column bays that dictate less than optimal layouts of workstations, EPA has learned from experience that an allowance of about 225 usable square feet (20.9 sm) per person, which provides for some conference and filing space as well as the office space, is a useful guide for initial planning purposes.
Space Acquisition and Planning Guidelines July 2004
Chapter 3 - Determining Space Needs
In the event the agency’s planning team has a participatory role in site selection, selection criteria will include some of the following points. It will be important to have professional assistance, particularly with respect to engineering aspects of the project.
- Minimum required site area, based on the size of building, along with associated site support requirements such as parking.
- Site zoning appropriate to the intended use and density.
- Community acceptance of the proposed facility. In some instances, it may be desirable to invite community participation in the site selection process. It may also be necessary to demonstrate to the community that there will be no negative environmental effects on the neighborhood, such as increased traffic or the possibility of objectionable noise or undesirable emissions.
- Historic or archaeological aspects of the site that may impose constraints on new construction.
- Site area sufficient to support future expansion of the facility, if such expansion is anticipated.
- Presence of adverse environmental conditions that may affect the use of site, such as site contaminants requiring remediation; also, presence of wetlands, potential for flooding.
- A location that provides desired amenities; for example, convenience to public transportation and to neighborhood retail shops and eating places.
- Site capability to include ancillary support structures if required, such as a separate storage building for hazardous waste, or a child care facility separate from the offices and/or laboratories. A separate hazardous waste building may require setbacks from nearby buildings and property lines (refer to Volume 2).
- Technical characteristics of the site: foundation conditions, possible seismic activity, available utilities, accessibility for service vehicles and automobiles.
- Requirements for open space to provide setbacks for security (if required) or to allow landscaping that will enhance the facility’s appearance and image.
It is EPA’s policy, and also a requirement of law and executive orders, to lend its support to community efforts to maintain and restore buildings of historic worth, and to promote urban redevelopment where appropriate. In the selection of a site or of an existing building for a proposed facility, the agency’s planning team should consider the feasibility of adapting an existing historic structure to the proposed uses. Where no existing building is available suitable to the proposed use, consideration should be given to developing a building that will fit into the fabric of an urban redevelopment area. Factors to be addressed include:
- If an existing historic structure is to be altered and rehabilitated, GSA typically provides guidance in the form of a Building Preservation Plan , which identifies areas of architectural significance and defines the standards to be employed in the construction. For some buildings, a Historic Structures Report may be available.
- The Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings offers additional guidance for preservation projects.
- The design of an alteration and rehabilitation project will require review and approval by historic preservation authorities; typically a State Historic Preservation Office (SHPO) as
July 2004 Space Acquisition and Planning Guidelines
Chapter 3 - Determining Space Needs
well as GSA preservation specialists. The design approach will depend on the specific building being restored and on the desired program to be achieved, so that each project will be different. Where alterations and/or additions are extensive, it is often more desirable to separate visually the new construction from the existing work, rather than trying to replicate the original construction.
- Because older structures will typically include antiquated mechanical, electrical, and plumbing systems, the alteration and rehabilitation will require care and ingenuity on the part of the A-E to integrate modern building systems into the structure in a manner sympathetic to the historic spaces and finishes.
- Similarly, older structures will also include many conditions that violate current codes and accessibility standards, and bringing them into compliance with current codes may necessitate in some instances design solutions that provide performance meeting the intent of the codes rather than literal and complete compliance.
- As previously noted, rehabilitation of an historic structure is an expensive undertaking and one which requires an extended time frame for both design and construction.
The programmatic needs for the proposed facility will include one or more of several types of space: office space (along with support), laboratory space (and lab support), special spaces such as food service, child care, data processing, conference/training, fitness/wellness, and storage. A discussion of these types of space follows.
3.2.4 Office and Office Support Space
3.2.4.1 OFFICES AND WORKSTATIONS
Having determined the number of persons to be accommodated in the space, their job functions, and their organizational hierarchy, the next step is to establish how much space will be required to house them. The goal is to create offices and workstations that provide a pleasant and efficient working environment for their occupants, but without waste of space. Based on past experience and practice, the EPA has developed planning guidelines that suggest appropriate ranges of size for various categories of agency personnel. A thoughtful application of these guidelines, which are listed in Table 3.2.3 will result in an equitable facility, consistent with similar facilities in the agency, and one that falls within GSA’s general space limits.
In developing the POR, the planning team must be aware of the need for flexibility since organizational needs will inevitably change, and a program that provides adaptability to change will age well. The use of one or two universally-sized workstations (rather than rigid adherence to a hierarchy of workstation sizes), suited to most employees except for senior management, will permit future changes with little need for reconfiguration of workstations. The “universal” workstation (mentioned above in 3.1), which is typically from 75 to 80 net square feet (6.97 to 7.43 sm), is found to be workable for the majority of professionals and senior clerical staff and permit the future reassignment of personnel with minimal disruption to the existing layout. Exhibits 1A and 1B, which follow, illustrate