MG Letter to Commissioner Dong re Design Guide Update - 6.22.2016_incl Enclosures.pdf

JAMES C. DUFF

Director

JILL C. SAYENGA

Deputy Director

ADMINISTRATIVE OFFICE OF THE

UNITED STATES COURTS

WASHINGTON, D.C. 20544

JAMES R. BAUGHER

Associate Director Department of Administrative Services

MELANIE F. GILBERT

Chief Facilities and Security Office

A TRADITION OF SERVICE TO THE FEDERAL JUDICIARY

June 22, 2016

Mr. Norman Dong

Commissioner

Public Buildings Service

General Services Administration

1800 F Street, N.W.

Washington, DC 20405-0002

Dear Commissioner Dong:

As a follow-up to my June 3rd letter, please find enclosed updated chapters 1, 2, 15, and 16 of the U.S. Courts Design Guide (Guide) in both redline and clean formats, per your staff’s request.

These updates reflect the incorporation of Judicial Conference policies approved since the Guide was last updated in June 2008.

Two corrections have been made since the June 3rd transmittal. First is the removal of the former Judicial Conference policy requiring ballistic glazing on windows in all courtrooms and chambers. This policy was superseded by the Conference’s 2009 policy, which also appears in the

Guide, to allow ballistic glazing on exterior windows in judges’ private offices. Second is a clarification of the mechanical design criteria ranges for summer and winter design humidity.

These updated chapters will be incorporated into the Guide, and a complete document, in electronic format, will be provided to you and your staff in the near future. In the meantime, if you have any questions, please do not hesitate to contact me at (202) 502-1200. Thank you.

Sincerely, Melanie F. Gilbert

Chief

Enclosures cc: Honorable D. Brooks Smith

Ms. Laura Stagner

Mr. Andrew Heller

Mr. David Insinga

Mr. Norman Dong

Mr. Jack Cummins

Ms. Anna Franz

UNITED STATES COURTS

DESIGN GUIDE

Updated Chapters 1, 2, 15 and 16 June 2016

Clean Version

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m l 1 - 1

This chapter outlines the intent of the

Design Guide, how to use this publication and its contents, and briefly describes the organization of the federal court system, its administrative functions, and the judicial process.

Introduction Scope The comprehensive design guidelines contained in this document describe the types of spaces commonly associated with facilities for the U.S. Court of Appeals (USCA), the U.S.

District Court (USDC), and the U.S. Bankruptcy Court (USBC). The Design Guide includes criteria for accommodating courts in both multi-tenant and leased facilities.

The design guidelines presented in this document apply to the design and construction of new buildings, annexes, all new leased space, and repair and alterations projects in which new space is being configured for an entire court unit, including courtrooms and chambers.

Objectives The Design Guide has three major objectives. First, it serves as a planning tool for federal judges and key judicial personnel who are directly involved in the design of a federal court facility. Second, it provides relevant information for the General Services Administration (GSA) and an architectural/engineering (A/E) team to effectively plan, program, and design a functional, aesthetically appropriate, and cost-effective court facility. The information enables judges and judicial personnel to collaborate effectively with the GSA and the A/E team throughout a project’s design and documentation phases. The Design Guide also provides information for the A/E team and specialists regarding security, acoustics, telecommunications, data, and audio-visual systems. Finally, the Design Guide provides the Judicial Conference of the United States, through its Committee on Space and Facilities, and the Administrative Office of the U.S. Courts (AOUSC) with policy guidance for the overall planning, programming, and design of federal court facilities throughout the United States and its territories.

The Design Guide contains state-of-the-art design criteria for courthouses. Users should read all introductory text carefully to understand the scope, function, and intent of the design guidelines presented, and their relationship to the design process.

Revisions to the Design Guide

From 1997 to 2016, the Judicial Conference endorsed the following revisions to the 1997 edition of the Design Guide:

Reduced chambers space

Reduced chambers built-in bookcases

Required standard configurations for chambers and courtrooms by court type

Reduced staff private offices and open workstations sizes

Reduced central, satellite, and unstaffed court library spaces

Revised public spaces in district and bankruptcy clerks’ offices to accommodate new work practices

INTRODUCTION AND THE

FEDERAL COURT SYSTEM

1 - 2 I I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 )

Eliminated specific space for alternative dispute resolution proceedings

Eliminated jury boxes and jury facilities for bankruptcy judge courtrooms

Added new guidance on public spaces and atria

Revised guidance on providing a special proceedings courtroom

Eliminated child development centers in court facilities

Revised requirement for ballistic glazing

Revised policy for access flooring as a building system

Developed alternative designs for probation and pretrial services offices

Made the approval process for exceptions for the judicial circuit councils, the Committee on Space and Facilities, and the Judicial Conference of the United States more specific

Eliminated references to federal public defenders’ offices in new courthouses, with the exception of the trial preparation suite

Updated building systems (mechanical, electrical, and low voltage), lighting design, and acoustics standards to improve the effectiveness of the systems

Revised central mail facilities design standards

Adopted the Circuit Rent Budget (CRB) program as the judiciary’s rent management process

Adopted asset management planning (AMP) as the judiciary’s long-range facilities planning methodology

Added new courtroom sharing policies for senior district judges, magistrate judges, and bankruptcy judges

Revised the planning process for the size of new courthouses to include an assessment of space planned for projected judgeships

Eliminated raised access flooring as a mandatory requirement for wire management

Revised the approval process for the construction of security pavilions

Developed alternative workplace strategies for efficiently designed office environments to reduce space, support mobile work, and encourage collaboration

Changed the ballistic glazing policy for a judge’s private office

Added a new Renovation and Alteration Appendix

Programming and Budgetary Notes

Programming and budgetary notes found throughout the Design Guide provide assistance with decisions to be made during the development of courthouse projects.

The notes include both judicial branch policy and lessons learned from completed projects. The notes supplement the criteria in the Design Guide; their purpose is to provide direction in using the flexibility of the Design Guide to develop justifiable and cost-effective federal courthouse projects.

Authority of the Circuit Judicial Councils Circuit judicial councils play an important space management role by reviewing district-wide facility plans, approving requests for new or modified space, and enforcing adherence to design guidelines. The circuit judicial councils have authority over and responsibility for a circuit’s space management program (28 USC (§332 and §462(b))) and for determining the need for space. As directed by the Judicial Conference of the United States, any significant exceptions to the Design Guide must be approved by the respective circuit judicial council.

General Programming Notes The Design Guide is intended to be a performance document. Criteria for any space or grouping of spaces must be considered in conjunction with the specific needs of the court office or function for which space is being designed.

Criteria in the Design Guide do not represent space entitlements. The criteria apply to an array of space types that must be justified based on the specific purpose of each project. Facility plans, programs, and designs must include only the space needed to satisfy the functional and security requirements of the court.

Differences between the space in an existing facility and the criteria in the Design Guide are not justification for facility alteration and expansion. In such cases, alternatives to space expansion are investigated before any additional space is requested.

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m l 1 - 3

Design architects and court staff are prohibited from adding spaces not originally contemplated in the approved prospectus or design program. Increasing the floor area or building volume is also prohibited.

General Budgetary Notes Renovation and new construction occur when the court and circuit judicial council identify space needs through the judiciary’s asset management planning process and document these needs in the long-range facilities plan. The GSA determines by what method the space is provided—for example, by the construction of a new building, the renovation of an existing building, a lease, or other means.

Any action taken by a court or circuit judicial council that would lead to extravagance in courthouse construction or renovation is prohibited; however, the Judicial Conference recognizes and strongly supports a pragmatic approach to design that includes the use of durable and sustainable materials. This approach ensures that courthouses constructed now will last well into the future.

How to Use This Book Fiscal Considerations The Design Guide is both a design and financial commitment document. The Judicial Conference’s space-rental budget correlates to the design standards contained in the Design Guide.

Architectural Programming Considerations The Design Guide lists and describes all major spaces and spatial groupings contained in federal courthouses. The number of major space groupings required for a particular court building shall be determined by the program of requirements submitted by the judiciary. Individual project circumstances dictate which of the major space groupings should be included in a building program.

Relevant Chapters for Trial Courts Three figures at the end of this chapter (Figures 1.1-1.3) identify the relevant chapters that provide information on the policy and standards for each court unit within the three types of courts: USCA, USDC, and USBC. The information in these chapters, along with technical information found in Chapters 12–16, are to be used to design the various types of court projects.

Adjacency Diagrams Adjacency diagrams are provided in Chapters 3 through 11. Each diagram represents an idealized arrangement of the required types of spaces, circulation patterns, and access points. Effort must be made during the design process to maintain the arrangements illustrated in the adjacency diagrams. In practice, however, this may not be possible.

It is important for users of the Design Guide to understand what the diagrams do and do not represent. Adjacency diagrams describe only circulatory relationships among spaces; they are not floor plans, which normally describe exact spatial sizes, configurations, and corridor distances between spaces. The boxes in the adjacency diagrams represent spaces and show only relative sizes. Regular shapes do not imply that actual spaces must be rectangular. Similarly, irregular shapes convey no particular form, since physical conditions, external constraints, and design considerations might dictate other configurations. In addition, the relationships between spaces along circulation routes indicate only adjacencies, not approximate distances. The location of spaces on one side of the diagram or another does not necessarily fix their position on any side of a planned facility or office. Circles showing vertical circulation do not indicate the number or specific location of elevators or stairwells; for example, while a diagram may indicate two circles showing vertical freight circulation, the requirements for a freight elevator might be accommodated by a single elevator.

The adjacency diagrams include three circulation patterns: public, restricted, and secure. Each is indicated by a different line style and weight. A dotted line represents public traffic patterns used by lawyers, spectators, media representatives, and other individuals. Restricted circulation patterns within and between office spaces are represented by broken lines. Restricted circulation is generally used by judges, courtroom deputy clerks, court security officers, authorized visitors, and administrative or clerical support staff. A solid line represents secure circulation for prisoner movement; secure circulation must not intersect public or restricted circulation.

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Key to Symbols

P

Restricted Circulation

Secure Circulation

Public Circulation

Unscreened Public Access

Screened Public Access

Screened Public Access, locked when not in use

Restricted Access, Uncontrolled

Restricted Access, Remote Access Control Restricted Access, Direct Access Control/Keylock

Secure Access, Authorized Staff

Secure Access, Prisoner/Security Staff

Restricted Access, Counter/Window Service

Privacy Lock

Circulation/Access Control Point

S Secure Vertical Circulation

R Restricted Vertical Circulation

P Public Vertical Circulation

F Freight Vertical Circulation

Direct Visual Access, One-Way

Direct Visual Access, Two-Way

Key to Symbols

P

Restricted Circulation

Secure Circulation

Public Circulation

Unscreened Public Access

Screened Public Access

Screened Public Access, locked when not in use

Restricted Access, Uncontrolled

Restricted Access, Remote Access Control Restricted Access, Direct Access Control/Keylock

Secure Access, Authorized Staff

Secure Access, Prisoner/Security Staff

Restricted Access, Counter/Window Service

Privacy Lock

Circulation/Access Control Point

SS Secure Vertical Circulation

RR Restricted Vertical Circulation

PP Public Vertical Circulation

FF Freight Vertical Circulation

Direct Visual Access, One-Way

Direct Visual Access, Two-Way

Although the lines used to indicate traffic patterns imply the existence of corridors, this is not always the case. In some instances, a circulation pattern is subsumed by another space, such as when lobby space is used as a public circulation area. In other instances, a circulation pattern might intersect an indicated space—for example, where public traffic intersects a reception counter used to control access from waiting areas to restricted spaces. Any uncontrolled intersection of differing circulation patterns constitutes a breach of security and must be avoided.

Additionally, lines indicating circulation do not describe egress requirements.

Large black dots on the adjacency diagrams indicate either transition or circulation termination points, that is, termination points for public or restricted circulation, points of transition from one circulation type to another (e.g., public to restricted or external to internal), or transition points from a circulation type to a given space (e.g., from public access to a reception area).

Vertical circulation is also shown on the adjacency diagrams. A circumscribed P indicates vertical public circulation for movement between floors. A circumscribed R indicates restricted vertical circulation, extending to secure parking within the building and connecting with restricted circulation on other floors. A circumscribed F indicates vertical circulation for the movement of freight and other bulky items. A circumscribed S indicates vertical secure circulation exclusively for in-custody defendants and security officers of the U.S. Marshals Service (USMS).

Access to facility circulation patterns, offices, and individual space types is indicated on the adjacency diagrams by arrows. Outlined arrows denote public entry or access points; solid arrows denote restricted and secure entry or access points. For both types of arrows, access types are further distinguished with numbers. Please refer to the keys of the individual adjacency diagrams for additional information.

The types, numbers, and sizes of spaces shown on the adjacency diagrams should not be interpreted literally as specific requirements; instead, the actual types, numbers, and sizes of spaces must be determined on a case-by-case basis, depending upon the program, design, applicable building codes, and other requirements.

For certain spaces, such as courtrooms and judges’ chambers suites, the number of boxes shown on the adjacency diagrams does not necessarily indicate the number of actual spaces in a planned facility. The diagram should be used as a guide for determining the space required.

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m l 1 - 5

Organization of the Design Guide The Design Guide consists of 16 chapters, a glossary, and an index.

Figures 1.1, 1.2, and 1.3 at the end of this chapter indicate relevant chapters for U.S.

Court of Appeals projects, U.S. District Court projects, and U.S. Bankruptcy Courts projects, respectively, while Figures 3.5, 3.6, and 3.7 in the “Planning for U.S.

Courthouses” chapter illustrate adjacency relationships.

Chapter 1: Introduction and the Federal Court System outlines the intent, the use, and the contents of the Design Guide, and briefly describes the organization of the federal court system, its administrative functions, and the judicial process.

Chapter 2: Courthouse Programming and Budgetary Considerations includes a guide to supporting documents; describes the process used to plan, program, design, and construct federal court facilities; and discusses strategies for developing cost-effective courthouses to accommodate the judiciary’s current and future needs. The budgetary responsibilities of the judiciary, the GSA, and other courthouse project participants are also described.

Chapter 3: Planning for U.S. Courthouses contains general design guidelines for judges and judicial personnel working with an A/E team to design a new court facility. In addition, the chapter assists A/E team members in understanding the functional and spatial relationships among the major components of a court facility, and the need for separate circulation systems. The chapter describes the major spaces in each of the three court types (USCA, USDC, and USBC) and spaces common to all courthouses, contains a typical floor plate for a courtroom floor, and discusses collegial versus collocated judges’ chambers and courts in multi-tenant buildings.

Chapters 4 through 11 contain specific design guidelines to assist the A/E team in the design of a new court facility. Each chapter addresses a major functional category of space or grouping of spaces. These chapters include discussions of functions and activities, user capacities, and specific design requirements, and contain programming and budgetary notes, a list of possible space types, and adjacency diagrams.

Chapter 4: Courtrooms and Associated Spaces contains specific design guidelines for appellate courtrooms and for district, magistrate, and bankruptcy judges’ courtrooms.

Chapter 5: Jury Facilities describes specific design guidelines for the jury assembly suite, trial jury suite, and grand jury suite.

Chapter 6: Judges’ Chambers Suites describes specific design guidelines for the resident and non-resident chambers suites of circuit, district, magistrate, and bankruptcy judges.

Chapter 7: Central Court Libraries contains specific design guidelines for circuit headquarters libraries, satellite libraries, and unstaffed libraries.

Chapter 8: Clerk’s Office contains specific design guidelines for clerks’ offices of the USCA, USDC, and USBC.

Chapter 9: Probation and Pretrial Services Offices contains specific design guidelines for the offices of probation and pretrial services personnel.

Chapter 10: Other Court Units contains specific design guidelines for the Office of the Circuit Executive (USCA), the Office of the Bankruptcy Administrator, the Office of the Bankruptcy Appellate Panel clerk (BAP), the Office of the Senior Staff Attorney (USCA), the Office of the Pre-argument/Conference Attorney (USCA), the Office of the District Court Executive (USDC), and the trial preparation suite for the federal defender.

Chapter 11: Common Building Spaces defines specific design guidelines for shared judges’ conference rooms, news media rooms, central mail and package screening stations, central mail facilities, bulk and archival storage, and communications equipment rooms and risers.

Chapter 12: Tenant Improvements and Furnishings contains specific design criteria for finishes, built-in millwork, and movable furniture.

Chapter 13: Interior Signage contains specific standards for interior signage.

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Chapter 14: Acoustics contains specific acoustic criteria for various areas of the courthouse.

Chapter 15: Building Systems contains specific technical requirements relevant to courthouse functions and spaces. Generic performance criteria for these systems are provided within the GSA’s Facilities Standards for the Public Buildings Service

(GSA P-100).

Chapter 16: Building Security describes security requirements for court facilities.

The appendix provides a useful glossary of abbreviations used in the Design Guide.

Changes to the Design Guide Any suggestions for modifications to the Design Guide should be forwarded to the chief of the AOUSC Space and Facilities Division.

The Federal Court System

As established by the Constitution, the federal courts constitute one of three coequal branches of our national government. The other two branches are the executive and legislative. Unlike the members of the executive and legislative branches (i.e., President, Vice President, senators, and representatives), who are elected for a set number of years, members of the judiciary and the Court of International Trade are appointed for life, as set forth in Article III of the Constitution. U.S. Supreme Court justices, circuit judges, and district court judges are appointed to office by the President, with the approval of the Senate. Judges are subject to removal from office only through impeachment, as provided in the Constitution. The Constitution also prohibits lowering the pay of federal judges. These two forms of protection allow federal judges to make decisions, even unpopular ones, without fear of removal from office or reduction of salary.

Types of Federal Courts Article III of the Constitution provides for a Supreme Court and whatever other federal courts Congress considers necessary. The number of federal judges is small.

While the Supreme Court and its justices are located in Washington, D.C., most members of the federal judiciary are dispersed throughout the United States and its territories.

Trial Courts. Congress divided the country into 94 federal judicial districts, each with its own USDC. The USDCs are the federal trial courts, where cases are tried, witnesses testify, and juries serve.

In the federal trial courts, broadest judicial responsibility is given to district judges.

District judges conduct a wide range of judicial proceedings, including hearings, bench trials, and jury trials. Proceedings occur in both civil and criminal cases. Only district judges are authorized to conduct major criminal trials.

There are currently 678 authorized district judgeships.1 Typically, 1 to 5 district judges are located in small to medium-sized court facilities; however, in several large metropolitan areas, 15 or more district judges are located in a single facility.

Generally, one trial courtroom is required for each district judgeship.

Magistrate and bankruptcy judges assist district judges by conducting some of the proceedings in the federal trial courts. Both are appointed by circuit and district judges and serve for a set number of years.

Magistrate judges exercise jurisdiction in a narrower range of cases than district judges, as determined by statute and a delegation of authority from district judges.

Magistrate judges hear preliminary matters in criminal cases and try minor criminal cases. Under certain circumstances, magistrate judges may conduct the full range of proceedings in civil cases, up to and including jury trials. Bankruptcy judges have authority under federal bankruptcy law to act over all matters involving debtor-creditor relationships. Bankruptcy judges conduct a variety of civil hearings and, in very limited circumstances, may conduct civil jury trials.

Courts of Appeal. Congress grouped the 94 USDCs into 12 regional circuits and a federal circuit and established within each circuit a single USCA. Litigants who lose in the USDC may appeal their case to the USCA, which reviews cases to see whether the trial judge applied the law correctly. The USCA also reviews cases decided by

1 Fiscal year 2007 authorized permanent judgeships.

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m l 1 - 7 the tax court and various federal agencies, such as the National Labor Relations Board. The USCA is the final stop for most litigation in the federal system. There are currently 179 circuit judges authorized to review cases in the 13 circuits, including the Federal Circuit. Typically, one to five circuit judges are located in a few cities in the various circuits. Occasionally, many more judges are housed in a single location.

Only one headquarters courtroom (en banc courtroom) exists within each circuit.

One or more auxiliary, or panel, courtrooms might be located throughout each circuit. Most federal court facilities, however, do not house circuit judges or courtrooms.

The Supreme Court. The U.S. Supreme Court is the highest court in the land. Cases from the 13 appellate courts and the highest courts of each state can be appealed to the Supreme Court. The Supreme Court is not required to hear every case brought before it. In fact, each year the Supreme Court agrees to hear less than 10 percent of the appeals presented. The courtroom and other facilities for the nine Supreme Court justices are located in the Supreme Court Building in Washington, D.C. Design criteria for the Supreme Court are not included in the Design Guide.

Administration of the Federal Courts Federal judges, as members of the judicial branch of government, are responsible for the efficient operation of the federal courts. Policies for federal courts are established by a committee of federal judges, called the Judicial Conference of the United States.

The Judicial Conference is chaired by the Chief Justice of the U.S. Supreme Court.

Standing committees of judges have policy responsibilities that are exercised on behalf of the Judicial Conference. Furthermore, in each of the various circuits, administrative oversight is carried out through committees called circuit judicial councils. Day-to-day administration in the circuits and districts is the responsibility of chief judges; however, within the broad parameters of established policies, federal judges have a considerable degree of independence concerning the operation of their respective courts.

The federal judiciary is served by the AOUSC, which is located in Washington, D.C.

The AOUSC performs a wide range of administrative duties to assist the operation of the federal courts. Other administrative officers directly responsible for carrying out judicial work include clerks of court and circuit and district court executives.

Section 462 of title 28, United States Code, gives the Director of the AOUSC authority to provide accommodations for the courts, “but only if the judicial council of the appropriate circuit has approved the accommodations as necessary” and directs that the Administrator of General Services shall provide the accommodations that the Director requests.

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Note: The adjacency diagram is intended only as an illustration.

Key

Figure 1.1 U.S. Court of Appeals – Relevant Chapters

Chapter 3 Planning for U.S. Courthouses

Chapter 4 Courtrooms and Associated Spaces

Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office

Chapter 10 Other Court Units

Chapter 3 Planning for U.S. Courthouses Chapter 3 Planning for U.S. Courthouses

Chapter 4 Courtrooms and Associated Spaces Chapter 4 Courtrooms and Associated Spaces

Chapter 6 Judges’ Chambers Suites Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office Chapter 8 Clerk’s Office

Chapter 10 Other Court Units Chapter 10 Other Court Units

R

P

Attorney Work Rm.

Public Waiting

Circuit Exec.’s Office

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Public Waiting

Non-resident Judge’s

Chambers

Conference/ Training

Room

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Conf. Room

Robing

Appellate Panel

Courtroom

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Conf. Room

Robing

Appellate En Banc

Courtroom

Public Entry

Headquarters Circuit Library

Senior Staff

Attorney’s Office

Circuit Clerk’s Office

RR

PP

Attorney Work Rm.

Public Waiting

Circuit Exec.’s Office

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Public Waiting

Non-resident Judge’s

Chambers

Conference/ Training

Room

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Conf. Room

Robing

Appellate Panel

Courtroom

Circuit Judge’s

Chambers Suite

Circuit Judge’s

Chambers Suite

Conf. Room

Robing

Appellate En Banc

Courtroom

Public Entry

Headquarters Circuit Library

Senior Staff

Attorney’s Office

Circuit Clerk’s Office

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) I n t r o d u c t i o n a n d Th e F ed e r a l C ou r t S ys t e m l 1 - 9

P

R

F

U.S.

Probation

Office

Conference/ Training

Room Jury

Assembly Suite

Public Entry

U.S.

Attorney

S

Central Cell

Block

Grand Jury

Court Reporter

Witness Security

S

Public Waiting

District Judge’s

Courtroom

District Judge’s

Courtroom

Trial Jury Suite

Trial Jury Suite

Public Waiting

District Judge’s

Chambers Suite

District Judge’s

Chambers Suite

S

Public Waiting

Magistrate Judge’s

Courtroom

Magistrate Judge’s

Courtroom

Trial Jury Suite

Public Waiting

Magistrate Judge’s

Chambers Suite

Magistrate Judge’s

Chambers Suite

District Clerk’s Office

Satellite Court

Library

U.S.

Marshal’s

Office

U.S.

Pretrial

Services Office

Trial Jury Suite

P

R

F

U.S.

Probation

Office

Conference/ Training

Room Jury

Assembly Suite

Public Entry

U.S.

Attorney

S

Central Cell

Block

Grand Jury

Court Reporter

Witness Security

S

Public Waiting

District Judge’s

Courtroom

District Judge’s

Courtroom

Trial Jury Suite

Trial Jury Suite

Public Waiting

District Judge’s

Chambers Suite

District Judge’s

Chambers Suite

S

Public Waiting

Magistrate Judge’s

Courtroom

Magistrate Judge’s

Courtroom

Trial Jury Suite

Trial Jury Suite

Public Waiting

Magistrate Judge’s

Chambers Suite

Magistrate Judge’s

Chambers Suite

District Clerk’s Office

Satellite Court

Library

U.S.

Marshal’s

Office

U.S.

Pretrial

Services Office

Trial Jury Suite

Trial Jury Suite

Figure 1.2 U.S. District Court – Relevant Chapters

Chapter 4 Courtrooms and Associated Spaces

Chapter 5 Jury Facilities

Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office

Chapter 9 Probation and Pretrial Services Offices

Chapter 10 Other Court Units

Chapter 3 Planning for U.S. Courthouses Chapter 3 Planning for U.S. Courthouses

Chapter 4 Courtrooms and Associated Spaces Chapter 4 Courtrooms and Associated Spaces

Chapter 5 Jury Facilities Chapter 5 Jury Facilities

Chapter 6 Judges’ Chambers Suites Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office Chapter 8 Clerk’s Office

Chapter 9 Probation and Pretrial Services Offices Chapter 9 Probation and Pretrial Services Offices

Chapter 10 Other Court Units Chapter 10 Other Court Units

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Figure 1.3 U.S. Bankruptcy Court – Relevant Chapters

Chapter 4 Courtrooms and Associated Spaces

Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office

Chapter 3 Planning for U.S. Courthouses Chapter 3 Planning for U.S. Courthouses

Chapter 4 Courtrooms and Associated Spaces Chapter 4 Courtrooms and Associated Spaces

Chapter 6 Judges’ Chambers Suites Chapter 6 Judges’ Chambers Suites

Chapter 7 Central Court Libraries Chapter 7 Central Court Libraries

Chapter 8 Clerk’s Office Chapter 8 Clerk’s Office

R

Unstaffed Library

F

Public Entry

P

Bankruptcy Judge’s

Courtroom

Bankruptcy Judge’s

Courtroom

Bankruptcy Judge’s

Chambers Suite

Bankruptcy Judge’s

Chambers Suite

Public Waiting

Public Waiting

Conference/ Training

Room

Bankruptcy Clerk’s Office

RR

Unstaffed Library

FFF

Public Entry

PPP

Bankruptcy Judge’s

Courtroom

Bankruptcy Judge’s

Courtroom

Bankruptcy Judge’s

Chambers Suite

Bankruptcy Judge’s

Chambers Suite

Public Waiting

Public Waiting

Conference/ Training

Room

Bankruptcy Clerk’s Office

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) Co u r t h o u s e P ro g r am m i n g an d Bu d g e t a r y C o n s i d e r a t i o n s l 2 - 1

This chapter describes the process used to plan, program, design, and construct federal court facilities and provides strategies for developing cost-effective courthouses to accommodate the judiciary’s current and future needs. The budgetary responsibilities of the judiciary, the General Services

Administration (GSA), and other courthouse project participants are also described.

Federal courthouse space and ceiling requirements are developed through a multifaceted process of planning, programming, design, and construction. This process includes a project team composed of the judiciary (judges, court unit executives, court project architects, assistant circuit executives for space, circuit judicial councils, and Administrative Office of the U.S. Courts [AOUSC] management and professional staff), consultants (architects, engineers, audiovisual engineers, registered communications distribution designers, acoustic and lighting engineers, and U.S. Marshals Service [USMS] systems and equipment engineers), the GSA, the USMS, other federal agencies, and contractors. The project team is required to make informed decisions about the judiciary’s functional needs while effectively controlling project costs. The project team must consider efficiency, value, life-cycle cost, and budgetary impact when making design decisions.

The application of criteria presented in the Design Guide will help direct project decisions toward producing functional, cost-effective facilities. The Design Guide allows flexibility and supports efforts to define criteria and explore solutions that enhance performance and that are fiscally responsible.

The criteria presented in this document do not represent an entitlement of space, furnishings, or finishes.

Supporting Documents The references listed below represent program and design criteria, courthouse planning and related guidelines, policies, and information on many facets of the design and construction of federal courthouses.

General References American Society of Heating, Refrigerating, and Air-

Conditioning Engineers (ASHRAE) Handbook of Fundamentals, most current edition

Architectural Barriers Act Accessibility Standard

(ABAAS)

This document contains scoping technical requirements for implementation of the Architectural Barriers Act (ABA) of 1968 and is the new GSA accessibility standard which replaced the UFAS on May 9, 2006. This standard applies to all federal projects. www.access-board.gov

Design Notebook for Federal Building Lobby Security, GSA and USMS, undated The goal of this publication is to illustrate how effective security screening and the related equipment and personnel can be integrated into the design of lobby spaces in new courthouses. The notebook includes prototype designs as well as typical details.

COURTHOUSE PROGRAMMING AND

BUDGETARY CONSIDERATIONS

http://www.access-board.gov/

2 - 2 I C o u r t h o u s e P r o gr a m m i ng a n d B u d g e t a r y C o n s i d e r a t i o n s U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . Ju n e 2 0 16 )

Facilities Standards for the Public Buildings Service (GSA P-100), most current edition

Court facilities are built under the GSA’s construction program. Facilities Standards for the Public Buildings Service establishes design standards and criteria for new buildings, major and minor alterations, and work in historic structures for the Public Buildings Service (PBS) of the GSA. The publication includes criteria for the site; building structure (including seismic design);

building mechanical and electrical systems; building services such as elevators, fire protection, and security; and general office design. The publication also contains references to appropriate building codes. In contrast, the Design Guide covers only those criteria pertaining to the unique functions of the U.S. courts. Where appropriate, the Design Guide directly references criteria found in Facilities Standards for the Public Buildings Service.

http://www.gsa.gov/portal/mediaId/187607/fileName/P100_Version_2014.act ion

Illuminating Engineering Society of North America (IESNA) Lighting Handbook, 9th Edition, Chapter 10, “Lighting Design Guide”

Interagency Security Committee (ISC) Security Design Criteria for New Federal

Office Buildings and Major Modernization Projects, Medium-High-Level Construction, GSA, most current edition

Pricing Desk Guide, GSA Public Building Service (PBS), most current edition

The Pricing Desk Guide presents the policies and procedures that the PBS uses to price real estate and related services to Federal agencies.

Requirements and Specifications for Special Purpose and Support Space Manual

(also referenced as USMS Publication 64), Volume One, Courthouse Management Group Engineering and Architectural, most current edition

Requirements and Specifications for Special Purpose and Support Space Manual

(also referenced as USMS Publication 64), Volume Two, Electronic Security and Hardware, most current edition

Requirements and Specifications for Special Purpose and Support Space Manual (also referenced as USMS Publication 64), Volume Three, Judicial Security Systems Requirements and Specifications, most current edition

Security equipment identified in the Design Guide will be furnished by the USMS. Detailed specifications for security equipment and criteria for USMS administrative and secure spaces are found in USMS Publication 64.

Site Security Design Guide, GSA, most current edition

The Guide establishes the principles, elements and the process that should be followed when designing site security at any federal project whether it is new or existing.

Renovation and Alteration Appendix to the U.S. Courts Design Guide, most current edition

This Appendix provides guidance and information for major and minor renovation and alteration projects that are planned either by the judiciary or by GSA, and is intended to be used in conjunction with this Design Guide. It is included at Vol. 16, Ch. 2, Appx. 2b of the Guide to Judiciary Policy.

Telecommunications Cabling Standards Telecommunications Industry Association (TIA) and Electronics Industries

Alliance (EIA), TIA/EIA-568-B Series, Commercial Building

Telephone/Data Procurement Policy ANSI/CSA/TIA/EIA-942, Telecommunications Infrastructure Standard for

Data Centers

TIA/EIA-569-A, Commercial Building Standards for Telecommunications

Pathways

Vulnerability Assessment of Federal Facilities, Level IV Buildings, Department of

Justice (June 2007 or most current edition)

In addition, the following related guides and manuals published by the Administrative Office of the U.S. Courts (AOUSC) should guide architectural and engineering decisions.

http://www.gsa.gov/portal/mediaId/187607/fileName/P100_Version_2014.action http://www.gsa.gov/portal/mediaId/187607/fileName/P100_Version_2014.action

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) Co u r t h o u s e P ro g r am m i n g an d Bu d g e t a r y C o n s i d e r a t i o n s l 2 - 3

Administrative Office of the U.S. Courts References Documents or references relating specifically to policies and procedures within the judiciary are available through the Space and Facilities Division of the AOUSC.

“AnyCourt” (Program of Requirements)

The judiciary’s automated space-planning tool is used to provide a court’s space program of requirements based on personnel data documented in the long-range facilities plan reviewed by the circuit judicial council.

United States Courts Asset Management Planning (AMP) Business Rules, most current edition The judiciary’s AMP Business Rules were adopted by the Judicial Conference of the United States in 2008 to guide the long-range facilities planning process, providing a framework to identify planning alternatives and housing strategies that optimize existing court facilities, support operational needs, and ensure cost efficiency and effectiveness. The rules also specifically address the application of space standards, planning assumptions, and parameters for determining if and when a potential housing strategy will be recommended for progression to the next stage of the planning process, i.e., a prospectus-level GSA feasibility study or a below prospectus-level project.

Courtroom Technology Manual, most current edition

The Courtroom Technology Manual defines the roles of the GSA, architectural/engineering teams, and technical consultants for courthouse technology projects and provides technical standards for infrastructure, video evidence presentation systems, videoconferencing systems, and sound systems.

http://www.uscourts.gov/statistics-reports/publications/courtroom-technology-manual

Guide to Judiciary Policies and Procedures

The Guide to Judiciary Policies and Procedures is the official medium by which guidance and information are provided to the judiciary in support of its day-to-day operations. The guide also codifies policies that are promulgated by the Director of the AOUSC and/or approved by the Judicial Conference of the United States. Contributing offices and divisions within the AOUSC are responsible for maintaining their information in a current condition.

This document also provides information on the funding, authorization, and documentation required for new furnishings. In addition, information is provided on the hierarchy system for furniture quality and furniture types per position/level of courthouse staff and cost ceilings.

U.S. Courts, “The Federal Judiciary,” www.uscourts.gov

United States Courthouse Design and Construction Process, most current edition

United States Courts Courtroom Mock-up Evaluation and Assessment Report, Gulfport, MS; Helena, MT; Miami, FL; Orlando, FL, most current edition

United States Courts Moving Guide: A Handbook for Relocating or Expanding

Court Operations, most current edition

United States Courts, Courthouse Design Reference Manual: An Architect’s Desk

Reference, most current edition This sourcebook of technical information about U.S. federal courthouses was written for design professionals and the judiciary. Please refer to Chapter 4, “Courtrooms and Associated Spaces,” for thumbnail sketches of courtroom types, together with summary descriptions.

The Space and Facilities Division (SFD) of the AOUSC has available upon request post-occupancy evaluation reports of completed courthouse and courtroom designs, courthouse videos, and other documentation of the lessons learned from completed projects.

Design professionals who use the Design Guide are expected to possess knowledge of and access to literature pertaining to their particular skill areas. Such professionals are also expected to use government, industry, and consensus-based standards in applying Design Guide criteria to the design of court projects.

http://www.uscourts.gov/

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General Cost-Control Strategies The cost of a courthouse is primarily determined by the size of the building, including both the area (the size and number of spaces) and the volume (the floor-to-floor heights). The size is determined by evaluating the functional requirements of the court (planning), applying the criteria in the Design Guide to determine space needs (programming), and developing efficient spatial relationships (design). For each courthouse, construction materials and methods must be selected to satisfy the court’s requirements and achieve an optimum balance of up-front initial costs and life-cycle costs.

New buildings provide the opportunity to explore cost-saving strategies while defining the functional needs of the courthouse. The project development process for a courthouse facility in an existing structure represents a greater challenge in creating a balance between function and cost-effectiveness and, therefore, demands greater flexibility in defining the program and its relationship to the Design Guide.

Figure 2.1 Cost Influence Graph

The AOUSC, judges, and court unit executives must be a part of the initial planning and program development process to ensure that all requirements are addressed.

Before beginning the program development and design phases, the GSA and the judiciary should work together to reach an agreement on the appropriate budget for tenant improvements and shell and core costs. As the cost influence graph in Figure

2.1 shows, the greatest opportunity to influence project cost occurs in the planning and programming phases.

Management participation in the planning and programming phases is very important to ensure cost-effectiveness during design and construction. As the project progresses toward the design and construction phases, the cost of implementing changes increases.

Construction Cost Benchmarking The GSA construction cost benchmarks are the estimates used for project budgets.

The cost of constructing judicial facilities is typically higher than the cost of constructing standard federal office buildings, due to the courts’ special requirements, such as security and specialized spaces, such as courtrooms.

(See Table 2.1 for a summary of constructed costs by building element.)

Funding Responsibilities Rental fees paid by the judiciary to the GSA are based on an occupancy agreement (OA) executed by the GSA and the AOUSC. The OA identifies shell and core, tenant improvements, parking, and GSA fees. With very few exceptions, the GSA’s rental rates include standards contained in the Design Guide. The project team should refer to the GSA’s Pricing Desk Guide.

The Design Guide works in conjunction with the GSA criteria to define which features and finishes are provided by the GSA as part of the construction cost and which must be funded separately by the judiciary. Tenant improvement features, such as service counters and ballistic-resistant glazing, result in the judiciary paying either a higher rental rate or a one-time reimbursable charge.

Please refer to Table 2.2 for details concerning the funding responsibilities of the judiciary, the GSA, and court-related agencies.

PlanningHigh

Low

Programming

Design

Construction Bid

Construction

Start Completion

PlanningHigh

Low

Programming

Design

Construction Bid

Construction

Start Completion

Project Timeline

Ability to Influence Cost

Project Expenditures

PlanningHigh

Low

Programming

Design

Construction Bid

Construction

Start Completion

PlanningHigh

Low

Programming

Design

Construction Bid

Construction

Start Completion

Project Timeline

Ability to Influence Cost

Project Expenditures

In flu en ce o n

C os ts

U . S . C o u r t s D e s i g n G u i de l 2 0 0 7 ( R e v . J u n e 2 0 16 ) Co u r t h o u s e P ro g r am m i n g an d Bu d g e t a r y C o n s i d e r a t i o n s l 2 - 5

Programming and Design Cost-Control Considerations A facility program that is too rigidly defined does not allow for growth and flexibility. Since a project can take seven years from initiation to completion, a rigid program may result in redesign change orders. To avoid this redesign cost, the AnyCourt program of requirements will be used by the GSA and the architectural/engineering firm to determine the court’s needs. The judiciary allows for program growth, with detailed 10- and 30-year housing requirements (as specified in the AnyCourt).

Typically, the GSA designs and constructs courthouses to meet a court’s 10-year requirement on a 30-year site. For courthouses, 30-year needs must be considered to avoid having to relocate the courts from a building after it has been constructed. On all prospectus-level construction projects, the GSA must require the design architect to provide a plan for accommodating the 30-year needs of the court on the acquired site and to demonstrate how the plan complements the project’s 10-year housing requirements.

A well-designed courthouse includes a flexible strategy for relocation, expansion, and movement of spaces to address not only the 10-year requirements but also the court’s 30-year growth requirements.

Convertible Spaces. Court-related offices initially located in the courthouse can be relocated from the facility to allow expansion of the court. Vacated spaces can be converted into courtrooms and/or associated and support facilities. Major court-related offices with the least need to be adjacent to the court include the U.S.

attorney’s office. In addition, areas…