1. ABSTRACT OF THE PROGRAM
The "design-build" process of construction is frequently utilized in the private sector for commercial buildings. Its proven success for expediting, simplifying and economizing has contributed to the increasing popularity in the architectural and construction fields.
Faced with imminent lease expirations, new office space for various County agencies was imperative. Noting the success of this project delivery method, the Johnson County Government thus elected to utilize the design-build process to expedite the project.
Working with a consulting architect/engineer, Facilities Department staff developed a flexible and innovative procurement method. The new selection process would:
- Be qualifications-based
- Provide a facility that presented "best value" not necessarily lowest cost
- Be a compensated design competition to encourage innovation
Two committees composed of County personnel and future building occupants drafted comprehensive parameters for the new structure. These included adaptability and flexibility, high quality work environments, sustainable design and energy efficiency. Various strategies will reduce operation and maintenance costs. Additionally, the building will incorporate innovative design features, productivity enhancements, and easily accessible customer services.
The process will result in a high performance, flexible, sustainable building constructed on a fast-track schedule with maximized value and environmentally responsible emphasis.
2. PROBLEM/NEED FOR PROGRAM
Wanting to address the space needs and to respond to rapid population and service demand growth, the County developed a Strategic Facilities Master Plan. This work indicated that the County had a number of agencies in costly leased facilities; some spaces that were documented as inadequate for agency requirements; and some points of service were not optimally located for the public. Several of the facilities lease agreements were due to expire in a few years making time of the essence. The strategic plan thoroughly documented that it was in the best interests of the County to own its facilities rather than continue leasing.
The Planning & Design Group of the Facilities Department created a procurement plan that would:
• Ensure completion of a new office building to coincide with lease expirations
• Be timely to take advantage of favorable bond rates and construction climate
• Ensure sound financial management/procurement processes
3. DESCRIPTION OF THE PROGRAM
Given the County's desire for expeditious construction, quality of result (and quality of contractors), and sound fiscal management, the Planning & Design Group (PDG ) settled on the "design-build" (D-B) process for procurement of the County's new office building. Having never attempted this procedure on such a complex scale previously, the PDG decided to seek the assistance of a consulting architectural/engineering firm. Working briskly over a six month span, the County-consultant team developed a performance-based request for proposals (RFP) for design-build services.
The procurement process was critical to establishing a base that would enable the County to achieve the desired goals. The major objectives of the procurement process included:
- A qualifications-based selection process for the entire D-B team
- A "best value" approach rather than the traditional low bid method
- A stipulated sum against which D-B teams would design for maximum value
- A compensated design process to maximize innovation and commitment
- Sustainable design strategies
- A prominent civic facility with long-term quality, flexibility and durability required of public architecture
- A design with life-cycle capital, operational and maintenance efficiencies
- Improved constituent services
- Expedited contracting and construction schedules
The design-build process provides a single point of responsibility for the project owner throughout the entire process. Accountability is improved. Work proceeds more quickly as construction can start before design is entirely completed. The project duration from conception to implementation can thus be compressed. The integrated nature of the process involves not only the architect, contractor, and owner, but also sub-contractors and suppliers. With the design-build team managing the entire process, it permits a greater range of innovation and cost-savings.
A comprehensive performance-based document was the center of the RFP process. It focused on value and innovation, team structure and roles. The process was designed to primarily consider the qualifications of submitters. Thirteen responses were received and the field was then narrowed to six for presentations/interviews. From this group three finalists were selected. Those teams were then invited to develop a preliminary design proposal based on the same stipulated sum; thus eliciting the best design innovations and demonstrating their abilities to provide the County with the most "bang for the buck".
The design-build proposal preparation process required considerable work and financial investment from the finalists. Recognizing this, the County offered a significant stipend to the unsuccessful finalists upon providing a complete proposal submission. This created a higher level of interest in the project and demonstrated the County's level of commitment to a high quality process and product. The County in turn took ownership of all submitted design concepts along with the freedom to utilize any and all in the final building design. This provided a win-win situation for all parties with maximum benefit to the County.
Following finalist submissions, there was another round of presentations and interviews. After selection, proposal refinement and negotiations were undertaken with the selected team. That process yielded an even better product for the same cost including such attributes as:
- More useable building space at 127,000 square feet
- Environmentally responsible structure with LEED Gold designation*
- Flexible high performance office environment
*LEED - Leadership in Energy and Environmental Design - a US Green Building Council standard for measuring and certifying energy efficient and sustainable building design.
4. USE OF TECHNOLOGY
The building is the target and recipient of various modern technologies designed to be environmentally friendly and provide sustainability/long-term durability and low maintenance for the structure. These technologies include:
- Solar orientation of the building to maximize both summer and winter conditions
- High performance glass to facilitate maximum natural light while reducing heat gain/loss
- Light shelves and clerestories to allow maximum natural light into the interior of the building
- Use of recycled building products
- High efficiency lighting, occupancy sensors and automatic dimming capabilities in response to variations in natural light
- High efficiency heating and cooling equipment
- Exceptionally high indoor air quality
- Individual temperature and ventilation controls for every employee
5. COST OF THE PROGRAM
During the pre-design phase in preparation of the RFP, the County utilized the services of HDR Architecture/Engineering, Inc. Up to the design-build proposal submittal point, consultant assistance costs were in the $200,000 range. Additionally three architects from the County Facilities Department were significantly involved in directing the process. Other staff assisted as necessary during the eight month process leading to the final design presentations. A stipend of $50,000 was paid to each of the two unsuccessful finalists. The total project budget is $30 million. The County designated $22.7 million as the stipulated sum for design and construction.
6. RESULTS/SUCCESS OF PROGRAM
The process provided a comprehensive road map that lead to the RFP preparation and the resulting D-B proposals. In addition to the stipulated sum to bring the project in "on budget", there were numerous other tangible results that came out of the procurement-design-build process. These benefits include:
• Three outstanding proposals with three sets of cost data greatly benefiting the County in the final negotiations
• More square footage than originally programmed
• LEED Gold certification requirements exceeded
• Concept of the building acting as an instrument of public education about environmental stewardship
• Significant costs avoided by collaboration of the entire integrated D-B team.
These included approaches such as site preparation cost savings through collaboration between the project designers and the excavation contractor and steel fabrication savings through similar communication and close teamwork.
• Best value option of demountable office partitions allowing future flexibility
• Reduced operating and maintenance costs
• Significantly higher value than called for in the original base proposal
• Maximized use of taxpayer dollars
• All parties satisfied with the outcome of the process
7. WORTHINESS FOR AWARD
The Johnson County innovative and creative design-build method for the new County office building successfully demonstrated the value of this process in the public sector. This was a complex building project incorporating new technologies, sustainability and energy economies, all to be accomplished in a condensed timeframe.a perfect scenario for applying the design-build method.
The County realized success in numerous instances and with a variety of positive results. These demonstrate the benefits, applicability and transferability of the design-build process to other public agencies that may be faced with a complex building project, the need to provide financial accountability and value maximization for constituencies.