Mr. STEED. That would give you, under the most favorable circumstances, a turnkey job that Dr. Mumford can begin to occupy on what date? Mr. CAMPIOLI. Five years from now, I would say. Mr. STEED. 1970 or 1971? Mr. CAMPIOLI. Yes, sir. Mr. STEED. You believe your situation on space is going to get much worse before it gets better? Dr. MUMFORD. Yes, sir. We will no doubt be coming to your committee for additional rental space during that period. Mr. STEWART. The time schedule is dependent to a great degree on the speed with which I can get the various commissions to reach agreements. There is further the one unknown element which will have an effect on timing and that is the extent of the consultations required with the committee designated by the American Institute of Archiects. We have already mentioned this element which will have effect on any timetable. COSTS OF SPACE OUTSIDE LIBRARY Mr. STEED. Doctor, what are you spending now for outside space? Dr. MUMFORD. Reimbursable cost of General Services Administration guard service at the navy yard annex. You see, the committee appropriated money for the renovation of the navy yard annex and then after a year the GSA took over the operation of it. Mr. STEED. What amount of money? Dr. MUMFORD. $1,100,000. Mr. STEED. The space at Baltimore is being paid by GSA? Mr. STEED. This is a cost to the taxpayer through the Government, whether it is directly to you or some other agency? Dr. MUMFORD. Yes, sir. Mr. STEED. Give us a figure as to what amount of money, in terms of saving, we are talking about here if and when you are in the new building that you can foresee, that can be used as an offset to the building cost. Dr. MUMFORD. We could prepare a statement on that. You would include the cost to the Government? The space we are occupying at the navy yard annex, while not a net cost to the Library, is Government-owned space. Mr. STEED. As far as the taxpayer is concerned, it is the fact this is going to cost him. Dr. MUMFORD. If we were not using it some other agency would be. Mr. STEED. We would like to have some idea of what the saving in these areas would be. You might try, if you can, to estimate the additional amount that you foresee that is going to be added to that between now and the time you can occupy the new building for the same reason that you do not have the space now. Dr. MUMFORD. Yes, sir. Mr. STEED. That will give us, then, some measure- at least partial measure of offset in terms of the cost of this as against the alternative of not doing it. Dr. MUMFORD. Yes, sir. (The following was supplied :) ACQUISITION OF ADDITIONAL RENTAL SPACE FOR USE UNTIL THE THIRD LIBRARY BUILDING IS CONSTRUCTED The Library must acquire additional outside space to accommodate its growth from the present time until the third building is constructed. In 1960 congestion in the present buildings was estimated to be 260,000 square feet. In the past 5 years the Library's normal growth at 44,000 square feet a year has added 220,000 square feet to the space deficit. During that period access to GSA buildings has, in effect, transferred about 125,000 square feet of that deficit to outside space. We estimate that the present contents of the Library's buildings can be contained in approximately their present state if we acquire 220,000 square feet of outside space to absorb the 5 years growth until 1970-71. It is desirable that space in that amount be acquired as soon as possible. Estimates of cost of Library of Congress occupancy of Navy Yard Annex buildings 159 and 159E, Washington, D.C., and of storage space at the Federal Depot, Middle River, Md. Annual cost 5-year cost (1) Navy Yard Annex, Washington, D.C.: Buildings 159 and 159E ground floor: 85,000 square feet, at $1.50 per Health room service provided by the Library of Congress' net cost Shuttle service: 52,000 ADEQUACY OF $500,000 FOR PRELIMINARY PLANS Mr. LANGEN. I think the subject has been pretty well covered but let me make a couple of inquiries. I am still wondering just how complete the plans are going to be for this $500,000 appropriation request. Is that going to produce a firm building figure? Mr. CAMPIOLI. No, sir. The only way that we can get a firm building figure will be when we complete the preparation of the contract drawings and specifications. At that point the figure we get will be or should be firm subject to changes or modifications during the period of construction. Mr. LANGEN. When is that apt to come? Mr. CAMPIOLI. After we prepare the preliminaries and after we receive the necessary approvals and are authorized to proceed with the contract drawings and specifications. I would say 2 years from now we would then know what the bona fide figures are going to be. Mr. LANGEN. As far as this committee is concerned, any inquiry we would want to make relative to a final plan and a final building cost, it would then take at least another year and a half before you got to that point, is that right? Mr. CAMPIOLI. I would say so; yes, sir. Mr. STEED. If the gentleman would yield, I think also that some of these people are going to make decisions on the type of material, socalled gingerbread, a number of things that will affect the cost; is that so? Mr. CAMPIOLI. Yes, sir. Mr. STEED. These are matters not determined as of this point? Mr. STEWART. The question of architecture is yet to be resolvedon one side you have the Italian Renaissance architecture of the old Library Building and on the west side of the Federal classic design of the Cannon Building-to reconcile those two designs with a building setting off to the corner opposite each one of them is going to present a challenge to the architects. I do not mean to say that it can not be resolved but it is something that is going to require rather intensive study to accomplish. Mr. STEED. There are going to be influences upon this architecture the design already built into the Capitol Hill area that would not be necessarily so in just a building that is going somewhere to be put up by itself? Mr. STEWART. That is right. Mr. LANGEN. In view of that, and as a matter of anticipation, come the next fiscal year when again this committee will, I assume, be giving some consideration to moneys that are needed for that fiscal year, how much money is then going to be necessary to add to this $500,000 appropriation in order to complete these final plans? I gather that the building and the appropriation for the building is not going to be approved until those final plans are finished; is that correct? Mr. CAMPIOLI. Yes, sir. Mr. STEWART. Yes, sir. Mr. LANGEN. What then will be the anticipated additional planning cost? Mr. CAMPIOLI. Based on our computations we would ask for the balance of the money to complete the contract drawings which would bring the architectural and engineering services up to 75 percent as against the 20 percent that we are now speaking of. This would probably be a figure of $2,500,000 that we would be asking for the completion of the contract drawings and specifications. Dr. MUMFORD. Mr. Chairman, for a point of clarification: I understood Mr. Campioli to say earlier that this $500,000 is for the preliminary plans and estimates of total costs. Mr. CAMPIOLI. Estimate of total cost based on the preliminary plans and for other incidental expenses. Mr. SLACK. If you would yield there, who makes this estimate? Mr. CAMPIOLI. The associate architects and engineers prepare the estimate and submit it to us. Mr. SLACK. Do they employ estimators and is there obligation to employ estimators or is that a separately appropriated figure? Mr. CAMPIOLI. No, sir. We do not stipulate how the associates shall arrive at the figure. Most of the architects that we have been working with engage the services of professional estimators and in some cases they have their figure checked by a contractor of high reputation before submitting it to us. Mr. SLACK. We had an experience in another place yesterday with employment of professional estimators being off 22 percent on the cost of a building. It looks to me like there ought to be some way to get estimators who can finalize this thing at a more exact figure and not have bids then come in 20 to 25 percent beyond the estimated cost. This happens quite frequently in not only Government construction but other construction around the country. FACTORS AFFECTING VALIDITY OF CONSTRUCTION COST ESTIMATES Mr. CAMPIOLI. I made a study of this matter after our last meeting when we met on the west front and if I may be permitted I would like to read from this study. Inasmuch as the matter of estimates and costs appears to be a subject for discussion at various hearings throughout the year, I thought it advisable to set down my thoughts on this matter: 1. Estimates prepared on the basis of most fragmentary information consisting of no more than rough diagrammatic or schematic sketches can only be considered as little better than guess estimates. These estimates can be based on the use of square footage and cubage indexes at the time of their preparation, or use of the best considered professional judgment based on experience in such matters. That is the point we are at on this project right now. The second category would be estimates prepared on the basis of preliminary or outline drawings and specifications as the next best step in the process of obtaining a more realistic estimate. But even in this instance there must be considerable speculation in the preparation of such estimates inasmuch as while the plan layouts are developed and the design of the exterior is established, the details of construction are not yet developed and the design of the mechanical, electrical, and interior decor is also often not yet established. In this instance, architects frequently check their figures with professional estimators or building contractors before submitting preliminary estimates. A certain amount of guesswork and assumptions must be made even in this stage. Now we come to the third stage. Estimates based on completed working drawings and specifications are the most accurate and reliable that can be prepared. However, even such estimates when prepared by an individual architect, engineer, professional estimator, or contractor can vary from the low bid which is obtained from a group of contractors when competing on the same documents. Even a bona fide low bid can vary, particularly on projects where an existing building is involved as there may be various conditions which cannot be foreseen or anticipated until the work is underway or in progress. Authorized changes after contract award also affect the eventual total costs. Strikes, delays, work stoppages further affect the eventual cost. The conditions of the bidding market at the time of bidding on a project can have a substantial effect on the amount of the low bid. A hungry market will produce low bids and a flourishing market will produce a substantially higher bid on the same set of documents. What the foregoing all points up to is that the various estimates at the various stages of the development of the work represent the best professional judgments that can be made at these stages by those entrusted with this task. It can be said that there can easily be a 20 percent differential from stage No. 1 to stage No. 3 and 10 percent from stage No. 2 to No. 3 on new construction work. On alterations or additions to existing buildings, the variations can be even greater due to the possibility of unknown factors. In general, however, it may be stated that the best estimates to hang your hat on would be those prepared on the basis of final working drawings and specifications. Mr. LANGEN. In other words, the expression you have used, there is not going to be much to "hang your hat on" as far as costs are concerned Mr. CAMPIOLI. I borrowed that from you. Mr. LANGEN. As far as that cost is concerned of this building as produced by the estimates contemplated by $500,000? Mr. CAMPIOLI. Each stage produces the best estimates with the information you have developed up to that point. The more information. you develop in the way of details on drawings, the closer estimate you can obtain. You do not get into details until you prepare the contract drawings. Mr. LANGEN. When we get the $500,000, the basic design of the architects will then become known? Mr. CAMPIOLI. The plan layout showing each floor level and arrangement of space, how it is to be used and for what purpose. There will be no construction details at that point. Mr. LANGEN. That is all, Mr. Chairman. Mr. STEED. Yes. CONSTRUCTION ADVERTISING PROCEDURE Mr. SLACK. Under your bid invitation, will that be advertised nationally? Mr. CAMPIOLI. Yes, sir. Mr. SLACK. Would you have any estimate or guesstimate as to the number of bidders that you might have? Mr. CAMPIOLI. On a project of this size, nowadays it is the custom for contractors very often to join in a joint venture on large projects. There are some contractors who still will take projects of this size by themselves but as a result of the joint ventures that may be formed, I would judge that we will probably get 8 or 10 bids on this project. Mr. SLACK. That is a pretty large project for one contractor to be able to bond. Mr. CAMPIOLI. Yes, sir. Most of them do not want to tie up that much money for such a long period of time. |