RFI_Temporary UH and Swing Space Solutions for Navy Installations.pdf

REQUEST FOR INFORMATION (RFI): TEMPORARY

UNACCOMPANIED HOUSING (UH) / SWING SPACE SOLUTIONS FOR

NAVY INSTALLATIONS JULY 24, 2026

This is not a Request for Proposals (RFP).

The United States Navy (USN) is issuing this Request for Information (RFI) to gather industry insight, capability information, and innovative solutions to address temporary Unaccompanied Housing (UH) shortfalls and swing space requirements across multiple USN installations.

This RFI seeks to understand the range of solutions available to rapidly provide safe, habitable, code-compliant temporary accommodations for USN personnel while largescale modernization, recapitalization, and commercialization efforts are underway. Respondents may propose solutions for one, multiple, or all locations listed below. Proposed solutions may be complete, partial, phased, or location-specific. This notice does not obligate the Government to issue a solicitation or pursue any acquisition strategy. Responses will inform future USN planning and decision-making.

1. INTRODUCTION

The USN is facing a convergence of challenges affecting its ability to provide adequate, safe, and modern unaccompanied housing for Sailors. Increased recruitment, higher‑than‑planned student throughput, deteriorating legacy barracks, and major renovation cycles have created significant capacity shortfalls across the enterprise. These pressures are compounded by simultaneous recapitalization efforts and the USN’s “No Sailor Lives Afloat” policy, which further expands demand for shore‑based beds.

Providing high‑quality housing is foundational to Sailor well‑being, mission readiness, and the USN’s ability to maintain an effective and resilient force. Ensuring that every Sailor has access to safe, habitable living accommodations, particularly during periods of training, transition, or displacement due to modernization, is essential to sustaining operational continuity and fleet performance.

To address these pressing needs, the USN is seeking industry insight, proven capabilities, and innovative solution concepts that can help shape the short-term strategy for providing temporary Unaccompanied Housing (UH) and swing space solutions across multiple USN installations. The USN does not yet know what the optimal mix of solutions will look like; therefore, the Government is inviting industry’s expertise to help identify feasible, scalable, rapidly deployable options, as well as visionary concepts that could expand solution pathways.

The USN encourages responses from developers, modular and prefabricated housing firms, leasing providers, workforce‑housing operators, and other innovative partners offering:

• Existing, ready‑to‑deploy inventory, especially for FY26 requirements;

• Existing modular, prefabricated, containerized, or hybrid housing systems that can be delivered quickly; and

• Conceptual or not‑yet‑constructed solutions, provided the respondent has successfully delivered similar models elsewhere and can clearly demonstrate feasibility, cost realism, schedule credibility, and a viable regulatory pathway.

Respondents may propose solutions for one installation, multiple installations, or the entire set of locations identified in this RFI. The Government welcomes full, partial, phased, or incremental solutions, provided respondents clearly articulate which requirements they can meet and provide credible approaches for any proposed deviations or adaptations.

This RFI seeks to leverage industry expertise to help the USN understand the realm of what is possible: both for near‑term operational needs and for more transformative concepts that may benefit the enterprise in the years ahead. Industry input will directly inform the development of potential Courses of Action (COAs) and may shape future acquisition planning.

This RFI is issued solely for market research and planning purposes. It does not constitute a Request for Proposals (RFP) and does not commit the Government to award any contract or pursue any specific course of action. The USN appreciates industry’s participation in helping identify actionable, innovative, and mission‑aligned solutions to support our Sailors.

2. BACKGROUND

The USN is committed to ensuring that every Sailor has access to safe, adequate, and well‑maintained unaccompanied housing. UH is more than a place to sleep - it is a foundational element of service member well‑being, morale, and readiness. As the center of daily life for many junior personnel, UH shapes their ability to rest, recover, connect with their peers, and perform at a high level. When UH is inadequate, it affects far more than living conditions; it erodes resilience, disrupts unit cohesion, affects mental and physical readiness, and undermines the USN’s ability to sustain an effective, mission‑ready force. When UH is modern, safe, and well‑designed, it reinforces the discipline, unity, and sense of belonging essential to service.

Across the USN, UH represents one of the most important investments the Department can make in its people. The USN continues to advance major modernization, recapitalization, and commercialization housing initiatives to improve the quality of UH across the enterprise.

However, several simultaneous factors have created significant temporary housing shortfalls that require immediate action to ensure continuity of mission, training throughput, and barracks modernization timelines.

These shortfalls are driven by:

• Increased recruitment and higher‑than‑planned student throughput at multiple Training Commands;

• Legacy barracks degradation, requiring temporary displacement to complete long‑overdue repairs;

• Large‑scale renovations and conversions, which temporarily take existing UH facilities offline;

• “No Sailor Lives Afloat” policy, which increases demand for shore‑based UH; and

• Concurrent modernization projects across the enterprise, all of which require coordinated temporary “swing space” solutions.

The result is an enterprise‑wide shortage of unaccompanied housing beds–some immediate, some emerging over the next several fiscal years–that exceeds available capacity at many key installations.

Summary of Need Across the Enterprise

For the purposes of this RFI, the USN’s temporary and swing space requirements fall into two categories, and industry should treat them as complementary parts of the same enterprise challenge:

• Training Command Capacity Gaps: These are locations where increased student throughput, recruitment surges, facility condition, or degraded barracks have created a simple mismatch between available beds and required beds.

• Commercialization Swing Space Requirements: These are locations where existing barracks must be temporarily vacated to complete renovations, requiring large numbers of Sailors to be relocated for defined periods.

Respondents may propose solutions for one, multiple, or all locations listed below. Proposed solutions may be complete, partial, phased, or location‑specific.

2.1 Installation Specific Requirements

Based on current Navy assessments, the following locations have near-term or projected UH shortfalls:

Training Command Capacity Gaps: These installations face near-term shortages due to recruitment increases, throughput surges, facility degradation, and repair projects:

• Great Lakes, IL (NTC/RTC): ~ Near‑term shortfall of ~1,000 beds; surge to 1,500;

FY26–FY28.

• Pensacola, FL (Corry Station): Shortfall of ~600 beds; surge to 1,000; FY26–FY28.

• Pensacola, FL (NATTC / Main Side): Shortfall of ~2,000 beds; surge to 2,500; FY26–

FY28. Includes requirements for alternative temporary shower solutions during renovation periods.

• Meridian, MS: Shortfall of 250–500 beds; FY27–FY29.

• Panama City, FL: Shortfall of 100–300 beds; FY27–FY30.

Commercialization Swing Space Requirements: These requirements are tied to project phasing and the need to temporarily relocate Sailors while barracks are transferred, renovated, or modernized

• Hampton Roads, VA (NS Norfolk and Newport News): Approximately 1,300 beds (Phase II), plus enterprise surge requirement to 1,500; FY26–FY28.

• San Diego, CA (NBSD, NMCSD, NBC, NPL): Approximately 800 beds; surge to

1,200; FY27–FY29.

• Hawaii (JBPHH): Approximately 500 beds; surge to 1,000; FY27–FY29.

• Central California (CNRSW): Approximately 800 beds; surge to 1,200; FY28–FY30.

• Northwest (CNRNW): Approximately 800 beds; surge to 1,200; FY29–FY30.

Collectively, these challenges represent one of the most significant UH deficiencies the USN has faced in recent years. While long‑term solutions are being addressed through modernization and other commercialization initiatives, immediate and near‑term capacity shortfalls must be mitigated through temporary, flexible, and scalable housing options.

2.2 Site Location Requirements

Given the geographic diversity of USN installations included in this RFI, proposed housing solutions must be located in areas that enable Sailors to maintain reasonable access to their assigned installation, consistent with the USN’s commitment to providing safe, adequate, and high‑quality living conditions. The USN is deeply invested in ensuring that service members have dependable, habitable spaces that support their day‑to‑day well‑being, resilience, and mission readiness. Housing solutions, whether temporary, modular, leased, or alternative, must therefore be situated and maintained in a manner that upholds those standards.

Because each region and installation has unique market conditions, respondents may propose one, multiple, or all locations; however, all proposals must address the following site location principles.

Commute Radius: As a general guideline, the preferred location for any temporary UH or swing space solution is one that enables Sailors to commute to their assigned installation within approximately 35 minutes during normal traffic conditions.

Respondents shall identify:

• The installation being supported

• The complete address of the proposed site

• Estimated commute time (typical traffic)

• Any constraints affecting access (gate proximity, congestion, parking, etc.)

If a proposed solution is outside this preferred radius, respondents should explain why it may still be viable (e.g., immediate availability, exceptional quality of life features, limited local housing inventory, or unique value).

Facility Condition Standards: All proposed off installation housing solutions, whether apartments, hotels, modular communities, manufactured units, or repurposed facilities, must meet minimum condition and operational standards that preserve resident safety and quality of life. Specifically:

• No outstanding deferred maintenance items that would impact habitability, safety, or building performance.

• Grounds and exterior areas must be clean, maintained, and free of hazards. Landscaping should be trimmed within the past year, and grass must not exceed 6 inches in height.

• Exterior lighting at all building access points and parking areas must be operable.

• Controlled access is required (keyed entry, key fob systems, coded access, or equivalent).

• Responsiveness of property management must be demonstrated.

These requirements establish expected baseline conditions; respondents may propose alternative or phased approaches if a facility can be brought into compliance within the project timeline.

Local Authority Compliance: Respondents must identify applicable zoning or land‑use constraints, any required variances or approvals, and planned mitigations if the facility requires upgrades or reconfiguration. Solutions that do not yet fully meet zoning or occupancy requirements may still be proposed if the respondent provides a clear path to compliance, an estimated timeline, and associated costs and risks.

3. SCOPE OF WORK

The USN is seeking flexible, scalable, and mission‑aligned temporary housing solutions to support Sailors across a diverse set of installations. Consistent with the USN’s commitment to ensuring clean, comfortable and safe living conditions for its service members, the Government is interested in both existing, ready‑to‑deploy assets as well as innovative or conceptual solutions that have been successfully implemented by respondents in previous projects and can be credibly adapted to this requirement.

Because industry insight is essential to shaping an executable strategy, this Scope of Work is intentionally solution‑agnostic, reflecting the USN’s recognition that no single approach will satisfy all installations or timelines. Contractors may therefore propose full, partial, incremental, or hybrid solutions for any of the listed locations.

To encourage realistic and implementable responses, all proposed solutions, whether existing or conceptual, must demonstrate feasibility through credible procurement pathways, schedule realism, technical detail, past performance, and defensible cost estimates. Respondents are encouraged to identify where their solutions align with requirements, where they can meet requirements through modification, and where alternative approaches may yield a more beneficial outcome.

The Government is open to a range of solution types and delivery models, provided they maintain adequate living conditions, comply with applicable codes, and support service member readiness and well‑being.

3.1 Solution Types

The following solution categories are of interest. This list is not exhaustive, and respondents are encouraged to identify alternative or hybrid concepts:

• Modular / prefabricated units

• Containerized Housing Units (CHUs)

• Trailer-based or RV-based housing

• Turnkey workforce housing (“man-camps”)

• Leased commercial apartments

• Leased commercial hotel/extended stay units

• Converted or repurposed facilities

• Houseboats (where locally feasible)

• Traditional construction if it can be delivered within the required timeframe

• Innovative or conceptual models that leverage past proven experience, such as adaptive reuse, stackable modular concepts, or integrated campus‑style housing

Respondents may combine solution types across installations or offer a single approach for specific locations.

3.2 Minimum Performance Expectations

Solutions should be designed and operated to ensure a clean, comfortable and safe living environment for Sailors. Contractor shall furnish all labor, materials, equipment, furnishings, utilities, and services required to provide, operate, and maintain temporary housing units.

Required performance expectations include:

Habitability, Adequacy & General Requirements:

• Each option shall include furnishings, climate control, utilities, and code-compliant living space

• Compliance with DoW minimum adequacy standards as well as federal, state, and local habitability and safety standards

• Adherence to International Building Code (IBC) or applicable local codes

• Fire/life safety compliance

• ABA/ADA accessibility where required

Room Requirements: Each individual living space should include:

• Bed, mattress, and linens

• Desk or workspace

• Closet or lockable personal storage

• Lighting and electrical outlets

• HVAC (heating and cooling appropriate to climate)

• Wi-Fi or wired internet service

• Smoke and carbon monoxide detectors

Common Facilities (as applicable):

• Laundry facilities

• Restroom and shower facilities (temporary shower solutions may be required at some locations)

• Janitorial and trash services

• Morale/Recreation/Common spaces

• Parking and pedestrian access

Utilities and Support Services:

• Electricity

• Water/wastewater

• Heating/cooling

• Internet access (high bandwidth to support Sailor needs)

• Waste disposal

Operations & Maintenance: Respondents must describe an operations model that includes:

• Monthly preventive maintenance

• Emergency and non-emergency repair timelines

• Waste disposal and utility management

• Internet and communications infrastructure

• Pest control and life-safety maintenance

3.3 Safety & Security Requirements

All solutions must provide a safe living environment, including:

• Adequate exterior and interior lighting

• Controlled access systems (keyed, card, or coded entry)

• Compliance with DoW ATFP standards for on‑installation solutions

• Ability to support ISC risk management processes for off‑installation solutions

3.4 Delivery, Installation, Removal, and Restoration

Respondents should address the following lifecycle considerations:

• Transportation and delivery logistics

• Site preparation requirements (noting USN preference to avoid permanent site impacts such as fixed concrete pads unless unavoidable)

• Utility connections and commissioning

• Code inspections prior to occupancy

• Procedures for removal, demobilization, and land restoration at the end of performance.

Infrastructure located off installation may not require removal or restoration if the respondent can demonstrate continued feasible use within the private sector beyond the USN’s use.

3.5 Performance Standards

To ensure proposed solutions support a clean, comfortable and safe living environment for Sailors, the USN has identified the following desired performance objectives. These standards are intended to guide respondents in shaping realistic and feasible solutions; however, respondents are not required to meet every objective to submit a valuable response. Respondents should identify where they meet, exceed, or differ from these benchmarks and provide alternative approaches where applicable.

Desired Performance Objectives:

• Housing readiness target of ≥98%

• Emergency maintenance response time of ≤ 2 hours

• Non‑emergency maintenance response time of ≤ 24 hours

• Alignment with DoW habitability standards, safety requirements, and applicable codes

• A Contractor Quality Control (QC) plan that includes regular inspections, documentation, and timely corrective actions

Respondents may propose equivalent or modified performance expectations based on the nature of their solution, available assets, regional constraints, operating model, or phased deployment approach. The Government seeks to understand how each solution maintains clean, comfortable and safe housing conditions throughout the performance period.

3.6 Scalability, Phasing, and Incremental Concepts

Because UH needs differ across installations and time horizons, respondents are encouraged to propose:

• Scalable solutions that can expand or contract with fluctuating demand

• Solutions that are available within a reasonable timeframe to coincide with the start of renovation projects and influxes of personnel

• Phased or incremental deployments aligned to renovation schedules, surge requirements, or transfer timelines

• Alternative site utilization strategies, including mixed portfolios of modular + leased units

• Hybrid or distributed models for installations with geographically dispersed demand

Solutions do not need to meet every requirement outlined in this RFI to be considered valuable.

What matters is whether the concept is credible, feasible, clear in its assumptions, and grounded in demonstrated capability.

3.7 Requirements for Conceptual or Not-Yet-Constructed Solutions

To prevent speculative proposals, conceptual solutions must be accompanied by:

• A description of where the solution has been successfully implemented

• Applicable past performance or analogous project examples

• Technical specifications, engineering basis, or design intent

• Feasible delivery timelines and critical path analysis

• ROM cost estimates (installation, operations, and lifecycle considerations)

• Known regulatory or permitting challenges and paths to resolution

This ensures that innovative ideas are grounded in proven capability rather than untested concepts.

3.8 Flexibility for Partial or Alternative Solutions

Recognizing that each region and site presents distinct challenges, respondents are encouraged to propose partial or alternative solutions, including cases where they:

• Meet most but not all requirements

• Offer a different approach that better satisfies local constraints

• Can bring a facility into full compliance within a reasonable timeline

• Recommend trade‑offs or modifications that improve feasibility or cost‑effectiveness

The USN seeks to understand what is realistically achievable, not to limit industry creativity through rigid standards.

4. RFI RESPONSE REQUIREMENTS

Respondents are invited to submit information that will assist the USN in assessing the feasibility, scalability, and suitability of potential temporary Unaccompanied Housing and swing space solutions across multiple USN installations. The USN welcomes responses for one location, multiple locations, or all locations identified in this RFI. Submissions may include existing inventory, existing deployable solutions, incremental approaches, or conceptual solutions grounded in past performance and demonstrated feasibility.

Respondents are not required to meet every requirement outlined in this RFI; however, all submissions must clearly identify where the proposed solution aligns with USN needs and where alternate approaches, modifications, or phased strategies are recommended. The Government is seeking realistic, evidence‑based, clearly justified solutions and will not consider proposals that lack a credible path to implementation.

Respondents shall submit the following materials:

4.1 Required Submission Elements

Respondents shall provide a 5‑page capability statement addressing the high‑level narrative elements of their solution, and shall use the Excel response workbook to provide detailed, location‑specific, and technical information. The capability statement should summarize the respondent’s approach, experience, feasibility, and major solution attributes. All granular details, such as capacity by site, timelines, technical specifications, KPIs, utilities, risks, and O&M plans, shall be captured in the Installation Solutions Excel workbook to maintain the 5‑page limit.

Respondents shall also submit a separate Market Research Excel document containing the market and financial information requested in the RFI (see section 4.3 below).

Respondents are not expected to address every requirement within the 5‑page document; the capability statement serves as the narrative overview, while the Excel workbook captures the detailed data needed for Government analysis.

1. Installation Solutions Excel Response Workbook (Government-Provided Template):

Each respondent shall complete the Excel workbook provided by the Government. The workbook should include a separate tab for each installation. Respondents shall complete only the tabs for the location(s) they wish to address.

Required fields will include, but are not limited to:

• Proposed solution type(s) for each location

• Bed capacity, surge capacity, and phasing

• Detailed delivery and readiness timelines

• Unit configuration and facility characteristics

• Habitability, safety, and compliance features

• O&M approach, service levels, and maintenance timelines

• Utility, site prep, and infrastructure considerations

• Zoning, permitting, and regulatory constraints

• Detailed ROM cost estimates (installation, monthly, lifecycle, etc.)

• Risks, dependencies, and mitigation approaches

2. Capability Statement (Maximum 5 Pages):

Respondents shall provide a capability statement, not to exceed five pages, describing the proposed solution(s), organizational capability, feasibility, and approach. The capability statement should substantiate the information provided in the Excel workbook and offer narrative clarity.

3. Market Research Excel Document:

This document is distinct from the Installation Solutions Excel workbook and will be provided by the respondent. It should include observed, external, and forecasted data regarding local economic conditions, housing market dynamics, market financial metrics, and project financial metrics. All market research data must be clearly labeled as assumption (forecast/pro forma), observed (internal actuals), or external (third-party/government). Acceptable formats include:

• Internal data from portfolio performance or project underwriting

• External market reports from third-party providers

• Historical or forecasted project pro forma financials

• Condensed analysis of local government data

• Industry expertise where other data sources do not exist

4.2 Capability Statement Content

Respondents shall address the following:

1. Executive Summary: Overview of the company and the proposed solution(s).

2. Overview of Proposed Solution(s): High-level description of whether the solution is

• existing inventory,

• existing deployable housing product,

• a conceptual solution grounded in past performance, or

• any location-specific requirements unique to a given installation.

3. Ability to Deliver & Past Experience: Summary of relevant technical capability and evidence of prior delivery of similar solutions.

4. Solution Feasibility: High-level explanation of why the solution is realistic for the required timelines and locations.

5. Summary of Capacity, Timeline & Deployment Approach: A narrative overview (details go in the Excel workbook).

6. Summary of Compliance & Quality of Life: How the solution meets habitability, safety, and basic standards (again, details go in Excel).

7. ROM Cost Overview: High-level costs; detailed costs go in the Excel workbook.

8. Primary Risks & Mitigation Concepts: Narrative summary; risk register goes in the Excel workbook.

4.3 Market Research

The USN intends to make data driven decisions utilizing the capability information and innovative solutions provided from industry partners. To achieve this goal, the USN seeks general market and project specific information from respondents to better contextualize responses. For a given location, the USN requests information on: (i) conditions for prior projects or (ii) forecasted conditions for project solutions. The USN requests detailed information as a supplement to information on capabilities and solutions, to include but not limited to:

• Conditions for prior projects o Local economic information at time of underwriting (e.g. population growth, demographics, employment growth) o Housing market dynamics at time of underwriting (e.g. new construction forecasts, existing housing supply, housing demand growth, existing housing demand, vacancy rates, comparable rents) o Market financial metrics at time of underwriting (e.g. local market cap rates, investor internal rate of return expectations, market financing costs for construction ang permanent financing, variability in asset performance) o Project financial metrics at time of underwriting (e.g. total itemized development costs, debt service coverage ratio, project internal rate of return, project financing costs for construction and permanent financing, project cap rate)

• Forecasted conditions for project solutions o Local economic information at release of RFI (e.g. population growth, demographics, employment growth) o Housing market dynamics at release of RFI (e.g. new construction forecasts, existing housing supply, housing demand growth, existing housing demand, vacancy rates, comparable rents) o Market financial metrics at release of RFI (e.g. local market cap rates, investor internal rate of return expectations, market financing costs for construction ang permanent financing, variability in asset performance) o Project financial metrics as forecasted (e.g. total itemized development costs, debt service coverage ratios, project internal rates of return, project financing costs for construction and permanent financing, project cap rates)

The USN understands local markets may contain multiple differentiated sub-markets for housing based on a variety of factors. Where necessary for the USN’s understanding, the requested information should reflect relevant sub-market information that best contextualizes the respondents’ proposed capabilities and project solutions.

The USN will accept information in the following structures:

• Internal data collected from portfolio performance or project underwriting

• External market reports from third party data and analysis providers

• Historical or forecasted project pro-forma financials

• Condensed analysis of local government data

• Industry expertise, where other data sources do not exist

Information provided should be clearly labeled as assumption (forecast / pro‑forma), observed (internal actuals), or external (third‑party / government). Data should be provided in Excel format.

5. SUBMISSION INSTRUCTIONS

• Due Date: August 24, 2026 at 11:59 PM EST

• Submission Email: navfac-re@us.navy.mil

• Subject Line: “Response to Navy UH Swing Space RFI – [Company Name]”

• Total File Size Limit: ≤10MB

• Questions Deadline: August 7, 2026 at 11:59 PM EST (responses consolidated and posted to SAM.gov)

Proprietary information must be clearly marked and will be handled accordingly.

6. DISCLAIMER

This RFI is for informational and planning purposes only. It does not constitute a solicitation or a commitment by the Government to award a contract. The Government will not reimburse any costs associated with preparing responses.

Non-participation in this RFI does not preclude participation in any future solicitation.

The Government reserves the right to use or incorporate language, information, or concepts contained in this RFI and in any responses received when developing, negotiating, or executing future solicitations or contracts. By submitting a response, vendors acknowledge and accept that their submissions may inform or be integrated into future contract documents.

mailto:navfac-re@us.navy.mil