RFP JMU-P3-2026 Detailed Phase.pdf

Request for Detailed-Phase Proposals

RFP JMU-P3-2026

Implementation of Campus Master Plan On Land Owned or Managed by

James Madison University

September 15, 2026

Note: This public body does not discriminate against faith-based organizations in accordance with the Code of Virginia, § 2.2-4343.1 or against an offeror because of race, religion, color, sex, national origin, age, disability, or any other basis prohibited by state law relating to discrimination in employment.

REQUEST FOR PROPOSALS

RFP# JMU-P3-2026

Issue Date: 9/15/2026

Title: Implementation of Campus Master Plan on Land Owned or Managed by

James Madison University – Detailed Phase

Issuing Agency: Commonwealth of Virginia James Madison University Procurement Services, MSC 5720 752 Ott Street, Wine Price Building First Floor, Suite 1023 Harrisonburg, VA 22807

Period of Contract: From Date of Award as Negotiated

Sealed Proposals Will be Received Until 2:00 PM on 11/16/2026 For Furnishing the Services Described Herein. (See Special Terms & Conditions “O. Late Proposals”)

PROJECT BRIEFING CONFERENCE: See Section II. Project Briefing Conference

SEALED PROPOSALS MAY BE MAILED, EXPRESS MAILED, SUBMITTED IN EVA, OR HAND DELIVERED

DIRECTLY TO THE ISSUING AGENCY SHOWN ABOVE.

All Inquiries for Information and Clarification Should Be Directed To: Michael Morrison, Lead Contract Officer & Project Manager – Procurement Services, morrismp@jmu.edu 540/568-6181 (Fax) 540/568-7935 not later than ten business days before the proposal closing date.

NOTE: THE SIGNED PROPOSAL AND ALL ATTACHMENTS SHALL BE RETURNED

In compliance with this Request for Proposals, which includes the attached table of contents and all provisions and appendices attached and referenced therein, and subject to all the terms and conditions set forth herein, the undersigned offers and agrees to furnish the services in accordance with the attached RFP. It is understood that this RFP and scope of services may be modified, by mutual agreement, in subsequent negotiations. The University reserves the right to issue addenda to this RFP prior to the proposal closing date.

Name & Address of Firm:

By:

(Signature)

Name:

(Please Print)

Date: Title:

Web Address: Phone:

Email: Fax #:

ACKNOWLEDGE RECEIPT OF ADDENDUM: #1_____ #2_____ #3_____ #4_____ #5_____ (please initial)

SMALL, WOMAN OR MINORITY OWNED BUSINESS:

� YES; � NO; IF YES ⇒⇒ � SMALL; � WOMAN; � MINORITY IF MINORITY: � AA; � HA; � AsA; � NW; � Micro file://ad.jmu.edu/IT-File/AF/PROC/PROC-COMMON/Solicitations_Proc%20File%20Doc/Capital%20Construction%20Projects/JMU%20PPP%20Redevelopment%20Project/Solicitation/morrismp@jmu.edu

REQUEST FOR PROPOSAL

RFP# JMU-P3-2026

TABLE OF CONTENTS

I. PURPOSE ……………………………………………………………………………. Page 1

II. PROJECT BRIEFING ……………….…………………………………. Page 2

III. BACKGROUND …………………………………………………………………….. Page 2

IV. SMALL, WOMAN-OWNED, & MINORITY PARTICIPATION …………………... Page 4

V. PROJECT OVERVIEW AND OBJECTIVES ………………….…………………... Page 5

VI. PROPOSAL PREPARATION AND SUBMISSION ……………………………….. Page 15

VII. EVALUATION AND AWARD CRITERIA Page 30

VIII. INTERIM AND COMPREHENSIVE AGREEMENT ……………………………... Page 33

IX. NOTICE OF AWARD ……………………………………………………………….. Page 33

X. GENERAL TERMS AND CONDITIONS …………………………………………. Page 34

XI. SPECIAL TERMS AND CONDITIONS …………………………………………... Page 40

XII. METHOD OF PAYMENT …………………………………………………………... Page 43

XIII. BRIDGEFORTH STADIUM CONSIDERATIONS ………………………………… Page 44

XIV. ATTACHMENTS Page 45

A. Offeror Data Sheet

B. James Madison University Development Briefing Document

(separate attachment)

NOTE: This Detailed Phase request for proposals (RFP) is limited to the five (5) developers who submitted PPEA Conceptual Phase Proposals and were then shortlisted to proceed to this detailed phase.

The shortlisted developers proceeding to this detailed phase are listed below solely in alphabetical order:

• Campus Apartments (w/Mosaic Development Partners) – Philadelphia, PA

• Edgemoor Infrastructure & Real Estate – McLean, VA

• Landmark Development Services Company, LLC – Madison, WI

• Maslow’s Campus Communities – Austin, TX

• RISE (Dukes), LLC – Valdosta, GA

I. PURPOSE

James Madison University, a public institution of higher education in the Commonwealth of Virginia (“the University” or “JMU”), is soliciting Detailed Phase proposals from qualified private entities under the Public-Private Educations Facilities and Infrastructure Act of 2002 (PPEA) Guidelines adopted by the University in 2014. This RFP is issued pursuant to the Virginia Public-Private Education Facilities and Infrastructure Act (PPEA) (§ 56-575.1 et seq. of the Code of Virginia). Only partners who responded to the University’s Solicited PPEA RFP and have been down selected by the JMU internal working group and which were invited to receive this Detailed Phase RFP may respond.

The University is undertaking this procurement to identify a highly qualified and experienced private development partner (or team) capable of delivering a comprehensive, phased program of campus development aligned with the University’s adopted Campus Master Plan. The University’s intent is to leverage the PPEA framework to accelerate project delivery, access private-sector expertise and innovation, and allocate appropriate levels of development, financial, operational, and lifecycle risk to the private partner.

The University anticipates entering into multiple ownership structures with the selected development partner that will be dependent on the nature of the asset(s) included in the development. A primary goal of the University is to leverage partnership structures in which the private entity assumes primary responsibility for the planning, financing, design, construction and, where applicable, operation and maintenance of project assets in accordance with university design guidelines and operating standards, particularly for commercial and retail assets or assets that generate third party fees (such as student housing). While the University may consider selective participation, including land contributions and limited, well-defined infrastructure participation, it is the University’s expectation that the majority of project risk, including but not limited to cost, schedule, financing, Authority Having Jurisdiction coordination, regulatory compliance, demand and operating performance, will be borne by the private partner.

This RFP is for solicitation purposes only and is not a contract. The University assumes no obligation to reimburse or pay any person or firm responding any costs, fees, or expenses incurred in the preparation of a response to this RFP, or for any meetings or travel costs related to such response. The University is under no obligation to any responding party until a Comprehensive Agreement has been executed for the development services described within this RFP.

The University has determined that the Projects contemplated by this RFP are critical to the University and constitute a priority justifying accelerated selection, review, and documentation timelines for proposals as permitted by § 55.575.3:1 (B) (4) of the PPEA

The University intends to conclude this PPEA procurement by entering into a Comprehensive Agreement under the PPEA. General and special terms and conditions which will be a part of the Comprehensive Agreement have been included in this RFP document. Requests for changes to the general and special terms and conditions by the Proposer shall be submitted preferably by submitting red-lined documents, indicating desired changes as part of their response to this RFP. Note however, that the University may reject any or all of such proposed changes.

The University may enter into an Interim Agreement with one or more proposers as a result of this Detailed Phase RFP to advance discrete aspects of the proposed program prior to entering into a Comprehensive Agreement.

The University reserves the right to modify, suspend, or terminate this procurement at any time, to reject any or all proposals, to waive informalities or irregularities, and to negotiate with one or more proposers as deemed to be in the best interest of the University and the Commonwealth. The University also reserves the right to ask qualified proposers to form new teams which best align with the University’s program goals.

Discussions between the University and private entities about the need for capital improvements will not limit the ability of the University to later determine to use standard procurement procedures to meet its on and off site infrastructure needs.

II. PROJECT BRIEFING CONFERENCE

PROJECT BRIEFING CONFERENCE: A project briefing conference will be held Wednesday September 30, 2026 from 2:00 – 4:00 PM. Further information regarding the time and location will be forthcoming.

Offerors may attend in person at:

Information forthcoming.

Or: Virtually via Zoom link: To receive an invitation link please contact Michael Morrison via email at morrismp@jmu.edu.

The purpose of this conference is to allow JMU to clarify and reinforce the expectations for the Detailed Phase and provide an opportunity to present questions and obtain clarification relative to any facet of this solicitation. JMU will review the Briefing Package (Attachment B) with offerors and answer questions related to the use of this document in preparing responses.

Questions or Inquiries prior to the meeting should be directed To: Michael Morrison, Lead Contract Officer & Project Manager – Procurement Services, morrismp@jmu.edu 540/568-6181 (Fax) 540/568-7935. Please submit all pre-proposal questions no later than 5:00 PM on July 14, 2026.

Attendance at this conference is a prerequisite to submitting a proposal. Bring a copy of the solicitation with you. Any changes resulting from this conference will be issued in a written addendum to the solicitation.

For information on Campus Parking, please contact Parking Services at 540-568-3300.

If you are an individual with a disability with need of reasonable accommodations to participate in this activity, please notify Michael Morrison at 540-568-6181 or via email at morrismp@jmu.edu no later than 5:00 PM on July 14, 2026. Individuals with Hearing/Speech disability are encouraged to use the Virginia Relay Service. TDD Users – 800-828-1120.

III. BACKGROUND

JMU is a comprehensive public institution in Harrisonburg, Virginia with an enrollment of nearly 23,000 students and over 3,700 faculty and staff. There are over 600 individual departments on campus that support seven academic divisions. The University offers over 120 majors, minors, and concentrations. Further information about the University may be found at the following website: http://www.jmu.edu.

A. MANDATORY CONTRACTS

The University holds mandatory and exclusive contracts for Beverage Pouring Rights, Bookstore Operations, and Dining Services as well as previous commitments to Public-Private Partners.

B. UNIVERSITY FINANCIAL STATEMENTS

The University Annual Financial Statements can be accessed using this link.

Annual Financial Statements mailto:morrismp@jmu.edu file://ad.jmu.edu/IT-File/AF/PROC/PROC-COMMON/Solicitations_Proc%20File%20Doc/Capital%20Construction%20Projects/JMU%20PPP%20Redevelopment%20Project/Solicitation/morrismp@jmu.edu mailto:morrismp@jmu.edu http://www.jmu.edu/ https://www.jmu.edu/financeoffice/accounting-reporting/financial-reporting/annual-financial-statements.shtml

C. REGULATORY FRAMEWORK

This project will be governed by:

1. Virginia Public-Private Education Facilities and Infrastructure Act (PPEA) (§ 56-575.1 et seq. of the Code of Virginia);

2. The JMU Public-Private Educations Facilities and Infrastructure Act of 2002 (PPEA) Guidelines adopted in 2014;

3. Review by the Commonwealth of Virginia Office of Public-Private Partnerships (as applicable)

4. Any and all approvals required by the Governor and/or the General Assembly.

D. BUILDING & DEVELOPMENT

The University functions with a high standard of quality to ensure the creation of buildings and development that are code compliant, accessible, and simple to operate and maintain.

Proposers are expected to adhere to the JMU Design and Construction Guidelines https://www.jmu.edu/facmgt/fm_resources/guidelines/jmu-design-construction-guidelines.pdf, along with and not limited to any additional guidelines or requirements specified in this document for construction and development.

The University operates within the regulatory framework of the Commonwealth of Virginia, and certain statutory and regulatory requirements will apply to projects delivered under this procurement.

Proposers should anticipate that applicable projects may be subject to review and approval processes including, but not limited to:

1. The Authority Having Jurisdiction: the city of Harrisonburg and/or Virginia Division of

Engineering and Buildings.

2. All applicable codes

3. Environmental Impact Report for each phase of work on State property

4. Art and Architectural Review Board for all buildings/structures constructed on State property

5. Americans with Disabilities Act:

a. ADA90 – Title II;

b. Chapters 1 and 3-11 of the Standards for Accessible and Usable Buildings and Facilities;

c. Chapter 2: Scoping Requirements of the Department of Justice’s 2010 ADA Standards for

Accessible Design;

d. Chapter 11 Virginia Construction Code

e. Code of Virginia 51.5-44

E. SUSTAINABILITY & ENVIRONMENTAL

1. Sustainability Specific Requirements

a. Sustainability Objective

The Offeror shall design, construct, finance, operate, maintain, and hand back the Project in a manner that optimizes environmental performance, minimizes lifecycle greenhouse gas emissions, reduces operating costs, and supports long-term resilience. Sustainability outcomes shall be achieved across the full project lifecycle and shall be fully integrated into design, construction, operations, and maintenance activities.

https://www.jmu.edu/facmgt/fm_resources/guidelines/jmu-design-construction-guidelines.pdf

b. Applicable Standards Facilities shall, at a minimum, be designed and delivered to meet or exceed the requirements of:

(1) FM Sustainability Plan 2024-2026

(2) Applicable federal, state, and local environmental laws and regulations; and

(3) One of the following sustainability certification systems, as outlined in JMU Policy 1703 on Sustainable Construction:

• LEED

• Green Globes

• Virginia Energy Conservation Environmental Standards (VEES)

(4) Lifecycle Analysis Offerors shall submit a lifecycle cost analysis and whole life carbon assessment demonstrating how design decisions minimize total cost of ownership and embodied and operational carbon over the Project term.

Sustainability strategies shall not be evaluated on first cost alone, but on demonstrated lifecycle value.

2. Stormwater Specific Requirements

a. The contractor shall comply with the University’s MS4 permit requirements, JMU Policy 4310

(IDDE), FM Policies (IV 10, IV 11, IV 12) and DEQ-approved Standards and Specifications (S&S) when planning or performing this work.

b. Any work done on university state-owned or state-leased land or properties in a designated floodway or floodplain shall be reviewed by Facilities Management: Sustainability department for compliance with the Department of Conservation and Recreation (DCR)’s updated state floodplain management standards. Floodplain development permits must be submitted and approved by DCR prior to any work in the floodplain or floodway areas.

c. The contractor shall minimize any impacts to the Newman Lake Dam, which is a regulated impounding structure. Any work impacting or planned to potentially impact any portion of the Newman Lake shoreline, components of the dam spillway, or the footprint of the dam embankment, will require a review by the Facilities Management: Sustainability department to ensure compliance with the state’s Dam Safety Act and impounding structure regulations enforced by the DCR. A permit may be required prior to work altering or disturbing the Newman Lake Dam.

d. In accordance with §10.1-104.6:2, invasive plants listed on the DCR Invasive Plant Species List shall not be planted, sold, or propagated by any agency of the Commonwealth.

e. The usage of rainwater harvesting and reuse should be evaluated to reduce potable water use and conserve water for uses such as gray water, irrigation, and/or cooling tower needs.

3. Environmental Specific Recommendations

a. Native plants and trees listed on the Department of Conservation and Recreation (DCR)’s website should be prioritized when planting or propagating on state properties.

b. The contractor is encouraged to follow the most up to date version of the University’s Campus

Tree Care Plan during any stage of a development or redevelopment project.

IV. SMALL, WOMAN-OWNED, & MINORITY (SWaM) PARTICIPATION

It is the policy of the Commonwealth of Virginia to contribute to the establishment, preservation, and strengthening of small businesses and businesses owned by women and minorities and to encourage their participation in State procurement activities. The University encourages contractors to provide for the participation of small businesses, and businesses owned by women and minorities through partnerships, joint ventures, subcontracts, and other contractual opportunities. Proposals shall include developer plans to support the small business community in project activities.

https://www.jmu.edu/jmu-policy/policies/1703.shtml https://www.jmu.edu/facmgt/sustainability/stormwater/ms4.shtml https://www.jmu.edu/jmu-policy/policies/4310.shtml https://www.jmu.edu/facmgt/fm_resources/policies/index.shtml https://www.jmu.edu/facmgt/sustainability/stormwater/land-disturbing-activities.shtml https://www.dcr.virginia.gov/dam-safety-and-floodplains/fpordnce https://www.dcr.virginia.gov/dam-safety-and-floodplains/fpordnce https://www.dcr.virginia.gov/dam-safety-and-floodplains/dam-safety-index https://www.dcr.virginia.gov/dam-safety-and-floodplains/document/ds-va-code-4vac50-20-10.pdf https://law.lis.virginia.gov/vacode/title10.1/chapter1/section10.1-104.6:2/ https://www.dcr.virginia.gov/natural-heritage/invsppdflist https://www.dcr.virginia.gov/natural-heritage/invsppdflist https://www.dcr.virginia.gov/natural-heritage/native-plants-finder https://www.jmu.edu/facmgt/sustainability/tree-campus/jmu_campus_tree_care_plan_2025_12.pdf https://www.jmu.edu/facmgt/sustainability/tree-campus/jmu_campus_tree_care_plan_2025_12.pdf

V. PROJECT OVERVIEW AND OBJECTIVES

A. UNIVERSITY DEVELOPMENT VISION

James Madison University is undertaking this procurement to identify a Master Development Partner capable of assisting the University in moving from long-range campus planning to implementation of a coordinated, financially sustainable program of campus development.

The University’s Campus Master Plan establishes the long-term physical vision for the campus. The accompanying JMU Development Briefing Package, incorporated into this solicitation as a companion planning document, further translates that vision into a series of development zones and provides a common planning baseline regarding potential uses, development intensity, site conditions, infrastructure, mobility, regulatory considerations, housing demand, phasing considerations, and other factors relevant to implementation.

The Development Briefing Package is intended to serve as a planning framework and common point of departure, as opposed to a predetermined development program. Consistent with the Campus Master Plan, it should be understood as a flexible framework capable of responding to changing University priorities, market conditions, financial feasibility, infrastructure requirements, and other circumstances.

JMU is therefore not seeking a proposer merely to reproduce or implement the concepts contained in the Development Briefing Package. Each proposer is expected to apply its own development, financial, design, construction, operational, market, and other expertise to evaluate the opportunities presented; independently validate or challenge material assumptions where appropriate; identify additional opportunities or constraints; and recommend an executable development strategy that best advances the University’s objectives.

The Detailed Phase is intended to move this procurement from conceptual vision to demonstrated implementation. Each proposer shall identify:

1. What it recommends JMU develop;

2. In what sequence development should occur;

3. How the proposed program should be financed and delivered;

4. What enabling actions, infrastructure investments, relocations, approvals, and University decisions are required;

5. How development and financial risks should be allocated;

6. What independent value the proposer’s analysis and development expertise add to the University’s existing work; and

7. How the recommended near-term program establishes the physical, operational, and financial foundation for subsequent development.

JMU is seeking a Master Development Partner capable of looking beyond individual projects and assisting the University in understanding the relationships among development opportunities across the campus.

The Master Development Partner can suggest what objectives from this list can be advanced through an interim agreement prior to a comprehensive agreement being completed.

B. UNIVERSITY GOALS AND OBJECTIVES

As previously stated, JMU’s objective isn’t just the delivery of an individual building or project. The University is in search of a coordinated, long-term development strategy capable of advancing multiple interrelated institutional priorities. The following objectives shall guide development of the Detailed Phase proposal.

1. Expand the Residential Campus

JMU seeks to substantially increase the number and range of students who have the opportunity to live on campus. For purposes of long-range planning, proposers should evaluate a development program capable of producing approximately 10,000 net new student beds over the course of the broader development program. This objective reflects anticipated modest enrollment growth and the University’s long-term interest in materially increasing the proportion of students living on campus, with a planning objective of approximately one-half to sixty percent of the student population.

The housing program illustrated in the Development Briefing Package is a planning baseline, not the University’s final development program. Proposers shall evaluate whether the identified Development Zones, densities, housing types, and phasing are sufficient to achieve JMU’s long-range housing objective and identify additional capacity, alternative sites, changes in density, or other modifications recommended to do so.

The 10,000-net-new-bed objective is a long-range planning objective and should not be interpreted as requiring that all housing be delivered through a single transaction, location, financing structure, construction phase, or housing type.

2. Accelerate Near-Term Housing Delivery

As an important first step toward the long-range housing objective, JMU’s current target is approximately 3,000 net new student beds available for occupancy by Fall 2029. Please note that JMU’s base target has changed from 1,000 new student beds available by Fall 2028 based on feedback received during the Conceptual Phase, however, any strategies to deliver new student beds in advance of the new Fall 2029 base target in a manner consistent with the University’s Design and Construction Guidelines are encouraged.

The Development Briefing Package includes an illustrative housing phasing strategy developed in relation to the University’s earlier Conceptual Phase schedule. For purposes of the Detailed Phase, proposers shall independently evaluate that phasing against the University’s current Fall 2029 target.

Each proposer shall provide a detailed implementation schedule supporting its recommended delivery strategy, including material assumptions regarding:

• design and programming;

• site availability;

• existing facility demolition or relocation;

• regulatory and University approvals;

• financing and financial close;

• utility and infrastructure improvements;

• construction;

• occupancy;

• procurement of required third parties; and

• other critical-path activities.

The University values an aggressive schedule but places greater value on a schedule that is credible, transparent, and executable. If a proposer concludes that all or a portion of the approximately 3,000-bed target cannot reasonably be delivered by Fall 2029, it shall identify the limiting factors, the maximum reasonably achievable delivery by that date, and the earliest credible date for the balance.

3. Maintain Residential Capacity During Redevelopment

The University recognizes that substantial portions of the existing residential inventory may ultimately be replaced as part of the long-term development program. Accordingly, development should be sequenced so that, wherever reasonably practicable, new capacity is brought online before existing residential capacity is removed from service.

Proposers should demonstrate the effect of each proposed phase on total on-campus bed capacity and identify any period in which demolition, renovation, or other activities would result in a temporary reduction in available housing.

4. Replace and Reimagine the Student Union

The University intends to replace the existing student union as part of its broader campus development strategy. The Detailed Phase proposal should evaluate the role, location, approximate scale, development relationship, financing considerations, and implementation requirements of a future student union.

JMU does not expect proposers at this stage to present a final programmed or fully designed facility.

Rather, the University expects proposers to demonstrate how the student union should relate to surrounding student-life, residential, athletics, dining, retail, event, and public-space uses and how the project can progress from its current level of definition toward implementation.

The student union assumptions shown in the Development Briefing Package are planning assumptions. Proposers should identify which elements they recommend retaining, modifying, relocating, deferring, or replacing.

5. Expand Bridgeforth Stadium and Develop the Madison District

The University seeks a strategy for expansion and enhancement of Bridgeforth Stadium, with a long-term objective of achieving a minimum seating capacity of approximately 30,000, together with improvements to the overall fan and event experience.

The Development Briefing Package identifies the Madison District as an integrated Mid-Campus development opportunity that may include stadium expansion, an indoor practice/event facility, the student union, housing, retail and dining, commercial office, hospitality, parking, pedestrian connectivity, and related uses.

Detailed Phase proposers should evaluate whether these uses are most effectively pursued as individual projects, as an integrated district-development strategy, or through some combination thereof. The program quantities, locations, and phasing illustrated in the Development Briefing Package are planning concepts rather than fixed requirements.

At this stage, the University expects a preliminary development and business strategy rather than precision regarding facilities that have not yet undergone complete programming or design. The proposal should nevertheless address anticipated scale, order-of-magnitude cost, potential revenue sources, funding and financing alternatives, dependencies, enabling projects, delivery structure, and recommended implementation sequence.

See Appendix A. Bridgeforth Stadium Considerations for additional details regarding JMU Athletics requirements for stadium/Athletics projects.

6. Create Enterprise Value

JMU is interested in development strategies that do more than consume available financial capacity.

Proposers should identify opportunities for commercial, mixed-use, auxiliary, real-estate, infrastructure, operational, or other activities that may:

• generate new recurring revenue;

• reduce existing or future University costs;

• improve utilization of University-controlled land or assets;

• create value from development rights;

• support cross-subsidization or other financial relationships among projects;

• enhance demand for University facilities or services; or

• otherwise improve the financial feasibility of the University’s priority projects.

JMU is particularly interested in understanding whether an opportunity that may not initially appear among the University’s highest-priority projects should appropriately occur earlier because it creates material enterprise value or unlocks subsequent development.

a. Based on past projects, provide JMU with historical data when sponsorships have been received from organizations that have occupied project spaces.

b. Based on the JMU projects envisioned by this RFP, provide estimates of possible sponsorship revenue and duration of those sponsorships.

7. Unlock Future Development

Proposers should identify development constraints and enabling actions that must be resolved for subsequent projects to proceed. These may include:

• utility and infrastructure improvements;

• demolition;

• temporary facilities;

• program relocation;

• parking replacement;

• transportation improvements;

• site access;

• environmental, floodplain, stormwater, or resilience improvements;

• regulatory approvals;

• land or property actions; and

• other physical, financial, or operational dependencies.

The University is particularly interested in the proposer’s ability to identify dependencies and opportunities that may not otherwise be apparent from evaluating individual projects in isolation.

8. Address Godwin Hall and Aquatics as an Enabling Opportunity

Future Mid-Campus redevelopment is dependent in part upon relocation or replacement of functions presently located in Godwin Hall. The Development Briefing Package illustrates a potential pool and tennis facility at University Park as one possible response to the existing aquatics function. JMU has not predetermined that this represents the only or preferred solution.

Proposers should evaluate potential strategies for relocating or replacing aquatics and other functions necessary to enable future Godwin Hall redevelopment, including whether relocation could itself create opportunities for improved facilities, partnerships, alternative financing, revenue generation, or broader campus-development value.

9. Strengthen the Student Experience

Development should reinforce JMU as a residential, student-centered campus and create environments that support engagement, belonging, wellness, academic success, recreation, athletics, and social interaction.

Proposers should consider the relationships among housing, academics, student life, recreation, dining, retail, athletics, transportation, landscape, and public space rather than treating buildings as isolated assets.

10. Improve Campus Connectivity

The Campus Master Plan and Development Briefing Package place significant emphasis on strengthening connections among JMU’s campus precincts and overcoming barriers created by Interstate 81, the Norfolk Southern rail corridor, topography, and existing transportation patterns.

Development proposals should demonstrate how individual projects reinforce a more cohesive, accessible, walkable, and connected campus and should identify required pedestrian, bicycle, transit, vehicular, bridge, parking, or other mobility improvements.

11. Preserve Long-Term Institutional Flexibility The development program will occur over many years. Enrollment, academic programs, student preferences, market conditions, financing markets, technology, capital availability, and institutional priorities will change during that period. JMU therefore values development strategies that create future options rather than unnecessarily eliminate them.

Projects should be capable of advancing independently where appropriate, and transaction structures should avoid unnecessarily committing the University to future phases before those phases have been evaluated and authorized.

C. GUIDING DEVELOPMENT PRINCIPLES

1. Think and Act as a Master Developer

The selected Master Development Partner will be expected to evaluate individual opportunities in the context of the overall campus-development program. JMU does not presume that the order in which priorities are identified in this RFP necessarily represents the optimal order of construction.

A proposer may recommend that an enabling, infrastructure, auxiliary, commercial, mixed-use, or other project advance earlier when it demonstrates that doing so removes a development constraint, creates meaningful enterprise value, generates or preserves financial capacity, enables subsequent housing, student-life, or athletics development, reduces overall program risk, accelerates subsequent projects, or otherwise provides superior long-term value to the University.

The proposer shall clearly explain the basis for any recommended sequencing that differs materially from the priorities or phasing contemplated by JMU.

2. Prioritize Mid-Campus Without Predetermining Every Move

JMU considers Mid-Campus its highest-priority area for integrated redevelopment. Detailed Phase proposals should therefore devote substantial attention to Mid-Campus, including the Village, Madison District, surrounding housing, student-life and athletics uses, and the infrastructure and enabling actions necessary to support redevelopment.

JMU nevertheless encourages proposers to recommend development elsewhere earlier when doing so can demonstrably accelerate or improve the overall program.

3. Treat Housing, Student Life, Athletics, Infrastructure and Enterprise Uses as an Integrated Program

JMU does not assume that every project will use the same financing structure, delivery method, operating model, ownership structure, or implementation schedule. The proposer should recommend the structure best suited to each project while demonstrating how those projects function collectively as a coordinated development program.

4. Use the Development Briefing Package as a Baseline, Not an Answer Key

The Development Briefing Package reflects substantial University and consultant planning work and provides all shortlisted teams a common starting point. Its development zones, program quantities, housing typologies, square-feet-per-bed assumptions, parking ratios, infrastructure concepts, regulatory assumptions, and illustrative phasing should be evaluated rather than automatically adopted.

Where a proposer relies on a material Briefing Package assumption, it should be prepared to explain why the assumption is appropriate. Where it recommends a different assumption, it should identify the basis and resulting cost, schedule, financial, operational, or development effect.

5. Solve Problems Before They Become Project Constraints

The University expects a Master Development Partner to identify dependencies early and to develop practical strategies for resolving them. This includes program relocations, infrastructure capacity, floodplain and stormwater conditions, parking and mobility, utility sequencing, regulatory pathways, and other issues that may affect the timing or feasibility of later projects.

6. Demonstrate Independent Value

The University and its consultants have already undertaken substantial planning, demand, infrastructure, financial, and other analyses. Information supplied by JMU is intended to provide proposers with a common baseline from which to work. It should not substitute for the independent judgment expected of a Master Development Partner.

Proposers should identify where their independent analysis confirms, modifies, updates, challenges, or supplements a JMU assumption; identifies an additional risk or constraint; identifies an additional development opportunity; or produces a materially different recommendation.

The University is interested not merely in what information the proposer used, but in what analytical and development value the proposer added to it.

D. DEVELOPMENT AND DESIGN STANDARDS

JMU places significant importance on the quality, durability, maintainability, operational performance, energy performance, and lifecycle value of its facilities. All Detailed Phase proposals shall therefore be developed on the assumption that proposed projects will comply with the JMU Design and Construction Guidelines, applicable University standards, and the requirements of this RFP and its attachments.

Detailed Phase proposals shall treat those requirements as a baseline assumption for development concepts, cost estimates, schedules, financial models, lifecycle analyses, and proposed transaction structures.

1. Quality and Lifecycle Expectations

Proposed facilities should reflect the University’s expectation for long-term institutional assets and should emphasize:

• durability and useful life;

• maintainability and access to building systems;

• energy and water efficiency;

• lifecycle cost;

• resilient building systems and envelopes;

• operational efficiency;

• appropriate material quality;

• accessibility and universal design;

• compatibility with the surrounding campus context; and

• long-term adaptability

A proposal shall not achieve apparent financial feasibility by silently assuming a reduction in University quality, durability, maintainability, or lifecycle standards.

2. Modular Construction

Modular construction is not an acceptable delivery solution for the program. Detailed Phase concepts, schedules, construction estimates, financial models, and other commitments shall not assume modular construction as the basis for achieving cost or schedule objectives.

3. Exceptions and Variances

Any requested exception, variance, alternative material, construction system, performance standard, or other deviation from an applicable JMU requirement, including the JMU Design Guidelines, shall be affirmatively and specifically identified in the Detailed Phase proposal.

For each proposed exception, the proposer shall identify the applicable JMU requirement; the proposed deviation; the reason for requesting it; and the first-cost, lifecycle-cost, schedule, durability, useful-life, operations, maintenance, and other material consequences.

Unless expressly identified as an exception in the Detailed Phase proposal, JMU will consider all proposed concepts, pricing, schedules, and financial analyses to assume full compliance with applicable University standards and design guidelines. Identification of a requested exception shall not constitute University acceptance or approval of the exception.

E. DEVELOPMENT PROGRAM AND PRIORITIES

The Development Briefing Package identifies potential development opportunities across the JMU campus and organizes those opportunities around institutional, auxiliary, student-experience, and real-estate objectives. Proposers should use the Briefing Package as the common planning baseline but shall develop and explain their own recommended implementation strategy.

For the Detailed Phase, JMU places particular emphasis on the following:

• Student Housing: a long-term program capable of producing approximately 10,000 net new beds, together with a near-term target of approximately 3,000 net new beds available for occupancy by Fall 2029.

• Village and Mid-Campus Redevelopment: transformation of the existing Village and surrounding Mid-Campus areas into a higher-density, integrated residential and student-life environment while appropriately managing existing housing capacity, infrastructure, circulation, utilities, and other dependencies.

• Student Union: replacement of the existing student union and integration of student-life functions into the broader Mid-Campus environment.

• Bridgeforth Stadium and Madison District: expansion and enhancement of Bridgeforth Stadium and development of a broader Madison District capable of supporting athletics, student life, events, complementary development, and year-round activation.

• Enabling Projects and Program Relocations: identification and implementation of projects necessary to make priority sites available for redevelopment, including potential strategies for relocation or replacement of functions currently located within Godwin Hall.

• Infrastructure, Parking, Mobility, Connectivity and Resilience: utility, transportation, parking, stormwater, floodplain, access, pedestrian, bicycle, bridge, and other investments necessary to support the proposed development program.

• Enterprise Opportunities: revenue-generating, cost-reducing, or value-creating opportunities that improve the financial sustainability of the broader development program.

The proposer may recommend additional projects or opportunities identified through its independent analysis.

F. NEAR-TERM IMPLEMENTATION PROGRAM

Each proposer shall identify a Near-Term Implementation Program representing the projects and enabling actions it recommends that JMU pursue during the initial period of the Master Development Partnership.

At a minimum, the Near-Term Implementation Program shall address:

1. approximately 3,000 net new student beds available for occupancy by Fall 2029, or the most credible executable delivery strategy if the Offeror concludes that the full target cannot reasonably be achieved by that date;

2. the Student Union;

3. Bridgeforth Stadium expansion and the Madison District;

4. infrastructure and utility requirements;

5. parking, transportation, access, mobility, stormwater, floodplain, and resilience considerations;

6. required program relocations and enabling projects;

7. enterprise opportunities materially contributing to implementation; and

8. the relationship between the Near-Term Implementation Program and the University’s longer-term objective of approximately 10,000 net new beds.

JMU is not requiring that each of these elements commence simultaneously or that the order presented above represent the required development sequence.

Each proposer shall recommend the sequence it believes provides the best combination of executability, speed to delivery, financial sustainability, enterprise value, student and institutional benefit, risk management, preservation of existing campus operations, long-term flexibility, and ability to unlock subsequent development.

Where a proposer recommends advancing another project before one of the University’s stated principal priorities, the proposer shall explain the strategic and financial rationale and demonstrate how the earlier project advances the broader program.

G. FINANCING AND TRANSACTION OBJECTIVES

JMU seeks financially sustainable transaction structures that appropriately allocate development, financing, construction, operating, and lifecycle risks.

The University prefers structures that minimize University capital requirements, balance-sheet and credit impacts, contingent liabilities, and long-term financial exposure while preserving appropriate institutional control and flexibility.

The University currently maintains a “AA-” issuer default rating from FitchRatings (“Fitch”), most recently affirmed on June 18, 2026. The rating reflects the University’s moderately growing student base and sound financial operations that typically generate strong adjusted cash flow margins of no less than 12%. Fitch expects that the University’s leverage profile will remain in line with its “aa” Financial Profile assessment as measured by available funds-to-adjusted debt (approximately 71% at FYE 2025). Factors that could lead to a negative rating action include debt issuance without offsetting state or capital gifts resulting in leverage ratios weaking to around 40%.

Under Fitch’s “U.S. Public Finance College and University Rating Criteria” published on September 22, 2022, Fitch reviews the framework agreements governing the financing for public-private partnerships (“P3s”) to assess the level of liability incurred by the institution, if any.

• Where the institution does not bear material operating cost or demand risks associated with the undertaking the liability will not be included when assessing the institution’s financial profile.

• If the institution is the primary source or revenues for the P3 or if the framework agreement obligates the institution to make a payment of project-related debt in the event that the framework agreement terminates either for convenience of the institution or default on the project debt, Fitch will add this liability to the institution’s leverage.

• If the institution provides a contingent payment stream to support revenue, the probability of payment being required and the significance of that payment will provide the context for Fitch’s treatment of the liability in the institution’s credit analysis.

The University’s ability to maintain a minimum “AA-” is a key priority, and the respondent’s proposed ownership and finance structures will be evaluated in a manner consistent with Fitch’s rating criteria. This analysis includes assessing structures that may leverage existing University cash flows and how that may impact the University’s future operating performance.

The University does not presume that a single financing or transaction structure will be appropriate for every project. Proposers may recommend different structures for different projects where doing so provides superior lifecycle value, affordability, financial sustainability, risk allocation, schedule, institutional flexibility, or strategic benefit.

For each recommended structure, the proposer shall clearly identify the economic consequences to JMU, including, as applicable:

• University capital contributions;

• land contributions;

• infrastructure contributions;

• debt or credit implications;

• lease payments;

• occupancy commitments;

• master-lease obligations;

• minimum revenue or utilization commitments;

• guarantees or other credit support;

• use or pledge of existing revenues;

• cross-collateralization;

• agreements in perpetuity;

• contingent obligations;

• termination liabilities;

• conditions of tax credit agreements;

• residual or handback value; and

• other material direct or indirect financial exposure.

A transaction should not be characterized as transferring financial risk to the private partner merely because it uses private financing. The proposer shall identify who ultimately bears demand, revenue, financing, construction, operating, lifecycle, and residual-value risk and under what circumstances those risks may return to JMU.

H. UNIVERSITY CONTROL, FLEXIBILITY AND PROJECT AUTHORIZATION

Selection as JMU’s Master Development Partner shall not constitute a commitment by the University to authorize every project identified in a proposal or to award every future development opportunity exclusively to the selected Master Development Partner.

Individual projects and phases shall remain subject to University authorization, financial feasibility, applicable governmental and University approvals, and the governance procedures established in the Comprehensive Agreement.

JMU reserves the right to determine that an individual project should be modified, deferred, discontinued, independently procured, publicly financed, privately financed through another structure, or delivered through another lawful procurement or project-delivery method when the University determines that doing so is in its best interest.

Proposers shall specifically identify any requested exclusivity, right of first offer, right of first refusal, matching right, competing-facility restriction, competing-housing or competing-beds restriction, minimum development commitment, future-project entitlement, or other limitation upon JMU’s ability to pursue future projects independently. No such right shall be assumed merely by virtue of selection as Master Development Partner.

I. ROLE OF THE DEVELOPMENT BRIEFING PACKAGE

The Development Briefing Package is incorporated into the Detailed Phase procurement as a companion planning document. It provides the shortlisted proposers with a common reference regarding development zones, proposed programs, site and infrastructure considerations, design considerations, phasing, regulatory approvals, housing demand, mobility, access, utilities, and other existing planning work.

The Development Briefing Package shall not be interpreted as:

• a requirement that every identified project be constructed;

• a guarantee of the feasibility of an identified use, density, bed count, utility capacity, or schedule;

• a final program;

• a final infrastructure determination;

• a substitute for proposer due diligence;

• a commitment to a particular project sequence;

• approval of a financing, ownership, land-control, or regulatory structure; or

• authorization to deviate from JMU Design and Construction Guidelines or other University requirements.

Proposers are expected to identify material assumptions from the Development Briefing Package upon which they rely and to identify and explain material recommendations that differ from it. Section VI requires a formal reconciliation of material Briefing Package assumptions as part of the Detailed Phase response.

VI. PROPOSAL PREPARATION AND SUBMISSION

A. GENERAL INSTRUCTIONS

To ensure timely and adequate consideration of your proposal, offerors are to limit all contact, whether verbal or written, pertaining to this RFP to the James Madison University Procurement Office for the duration of this Proposal process. Failure to do so may jeopardize further consideration of Offeror’s proposal.

ELECTRONIC OR PAPER SUBMISSIONS MAY BE ACCEPTED FOR THIS PROPOSAL.

INSTRUCTIONS BELOW FOR OFFEROR’S CHOSEN METHOD (A. ELECTRONIC

SUBMISSION or B. PAPER RESPONSE).

1. RFP Response: In order to be considered for selection, the Offeror shall submit a complete response to this RFP; and shall submit to the issuing Purchasing Agency:

a. ELECTRONIC SUBMISSIONS:

(1) ELECTRONIC RESPONSES SUBMITTED THROUGH eVA WILL BE ACCEPTED.

Emailed responses will not be accepted. Please see below, “eVA Procurement Website and Registration” for additional information on registration. It is the responsibility of the Supplier to ensure their proposal and all required documentation is properly completed, readable, and uploaded to eVA.