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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Consensus Study Report

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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This activity was supported by Contract SB134117CQ0017, order 1333ND21FNB190206, with the National Institute of Standards and Technology. Any opinions, findings, conclusions, or recommendations expressed in this publication do not necessarily reflect the views of any organization or agency that provided support for the project.

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Suggested citation: National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. https://doi.org/10.17226/26684.

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
×

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, nongovernmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president.

The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. John L. Anderson is president.

The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president.

The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine.

Learn more about the National Academies of Sciences, Engineering, and Medicine at www.nationalacademies.org.

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
×

Consensus Study Reports published by the National Academies of Sciences, Engineering, and Medicine document the evidence-based consensus on the study’s statement of task by an authoring committee of experts. Reports typically include findings, conclusions, and recommendations based on information gathered by the committee and the committee’s deliberations. Each report has been subjected to a rigorous and independent peer-review process and it represents the position of the National Academies on the statement of task.

Proceedings published by the National Academies of Sciences, Engineering, and Medicine chronicle the presentations and discussions at a workshop, symposium, or other event convened by the National Academies. The statements and opinions contained in proceedings are those of the participants and are not endorsed by other participants, the planning committee, or the National Academies.

Rapid Expert Consultations published by the National Academies of Sciences, Engineering, and Medicine are authored by subject-matter experts on narrowly focused topics that can be supported by a body of evidence. The discussions contained in rapid expert consultations are considered those of the authors and do not contain policy recommendations. Rapid expert consultations are reviewed by the institution before release.

For information about other products and activities of the National Academies, please visit www.nationalacademies.org/about/whatwedo.

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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COMMITTEE ON TECHNICAL ASSESSMENT OF THE CAPITAL FACILITY NEEDS OF THE NATIONAL INSTITUTE OF STANDARDS AND TECHNOLOGY

ROSS B. COROTIS (NAE), University of Colorado Boulder, Chair

DOUG ALDRICH, Aldrich & Associates, LLC

JAMES B. CLAYTON, Institute for Responsible Infrastructure Stewardship

JAMES “JACK” DEMPSEY, Asset Management Partnership, LLC

ERIC DILLINGER, Woolpert Inc.

VIRGINIA K. HOLTZMAN-BELL, Captain, U.S. Coast Guard (retired)

STEVEN H. McKNIGHT, Strategic Alliances, Virginia Tech

CHRISTINE MERDON, Merdon Strategies, LLC

KENT BLAIR ROCHFORD, SPIE (International Society of Optics and Photonics)

C. DAVID TURNER, Brigadier General, U.S. Army (retired), 3E Turner & Associates

JORGE R. URRUTIA, MSI Universal

MARK WEATHERLY, Weatherly Consulting, LLC

Staff

CAMERON OSKVIG, Director, Board on Infrastructure and the Constructed Environment

JAMES C. MYSKA, Senior Program Officer, Study Director

JAYDA WADE, Research Associate

JOSEPH PALMER, SR., Senior Program Assistant

RADAKA LIGHTFOOT, Finance Business Partner

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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BOARD ON INFRASTRUCTURE AND THE CONSTRUCTED ENVIRONMENT

THOMAS P. BOSTICK (NAE), Lieutenant General (USA Ret), Bostick Global Strategies, Chair

BURCU AKINCI, Carnegie Mellon University

HON. STEPHEN AYERS, The Ayers Group, LLC

BURCIN BECERIK-GERBER, University of Southern California

LEAH BROOKS, The George Washington University

JAMES “JACK” DEMPSEY, Asset Management Partnership, LLC

LEONARDO DUENAS-OSORIO, Rice University

SANJIV GOKHALE, Vanderbilt University

DAVID H. HAUN, Haun Consulting, Inc.

CHRISTOPHER J. MOSSEY, Fermi National Accelerator Laboratory

ANDREW PERSILY, National Institute of Standards and Technology

CHRIS D. POLAND (NAE), Chris D Poland Consulting Engineer

JAMES RISPOLI, North Carolina State University, Chair FFC

DOROTHY ROBYN, Boston University

Staff

CAMERON OSKVIG, Director

JAMES C. MYSKA, Senior Program Officer

BRITTANY SEGUNDO, Program Officer

JOSEPH PALMER, SR., Senior Program Assistant

JAYDA WADE, Research Associate

RADAKA LIGHTFOOT, Finance Business Partner

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
×

Reviewers

This Consensus Study Report was reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise. The purpose of this independent review is to provide candid and critical comments that will assist the National Academies of Sciences, Engineering, and Medicine in making each published report as sound as possible and to ensure that it meets the institutional standards for quality, objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process.

We thank the following individuals for their review of this report:

Although the reviewers listed above provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations of this report nor did they see the final draft before its release. The review of this report was overseen by Cherry Murray (NAS/NAE), University of Arizona, and G. Edward Gibson, Jr., Arizona State University. They were responsible for making certain that an independent examination of this report was carried out in accordance with the standards of the National Academies and that all review comments were carefully considered. Responsibility for the final content rests entirely with the authoring committee and the National Academies.

Page viii Cite
Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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3 EXISTING FACILITIES AT BOULDER, COLORADO, AND GAITHERSBURG, MARYLAND, CAMPUSES AND THEIR CURRENT CHALLENGES

Facilities Overview

Current Facilities, Issues, and Impacts

Laboratory Facilities

Campus Infrastructure Issues

NIST Facilities and Utilities Infrastructure in Greatest Need of Recapitalization or Repair

Conclusion

References

4 PRACTICES FOR SUSTAINMENT, RESTORATION, AND MODERNIZATION OF NIST’S EXISTING FACILITIES

Introduction

Terminology

The Search for the Root Cause of NIST’s Unsatisfactory Facilities Situation

Committee Evaluation of OFPM’s Internal Practices

OFPM Internal Practices for FSRM Planning and Programming

OFPM Internal Practices for Budgeting for FSRM Funds

OFPM Internal Practices for Execution of FSRM Funds

The Search for the Root Cause Continues

A Brief History of NIST FSRM Funding

FSRM Funding Practices External to OFPM

Closing in on a Cause and a Cure

Genesis of OFPM’s Draft Coordinated Recovery Plan for Existing Infrastructure

2020 Integrated Master Plans Implementation Report

2022 Draft NIST Infrastructure Plan

The Committee’s Understanding of OFPM’s Draft Coordinated Recovery Plan

Committee Evaluation of OFPM’s Draft Coordinated Recovery Plan

Committee Evaluation of OFPM’s Draft Recovery Sub-Plan for Recapitalization (CMR-funded)

Committee Evaluation of OFPM’s Draft Recovery Sub-Plan for Stabilization (SCMMR-funded)

Committee Overall Conclusion and Recommendations for Recovery from NIST’S Unsatisfactory Facilities Situation

Conclusion

References

5 PRACTICES OF PORTFOLIO MANAGEMENT AND CAPITAL PROJECT PLANNING

Introduction

Portfolio Management Process for Capital Projects

Strategic Plans

NIST Master Plans

NIST Master Plans Sufficiency in Meeting DOC Guidelines

Strategic Portfolio Management Process Beyond Master Planning

Enterprise Risk Management

Planning Based on the Energy Independence and Security Act

Planning Based on the National Historic Prevention Act

DOC Process Subsequent to Publishing Master Plan

Implementation of the Master Plans

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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2020 Integrated Master Plans Implementation Report Requirement

Implementation Plan Scenarios Based on Historically Constrained Budget Levels

Budget Scenario: $80 Million CMR Annually

Budget Scenario: $60 Million CMR Annually

Implementation Plan to Complete Master Plans Expeditiously

Revised Phasing of the Sub-Plan for Recapitalization (CMR-funded) to Build Out the Master Plan

Evaluation of Project Costs

Evaluation of New Construction Costs for Laboratories

Evaluation of Renovation Costs for Laboratory Facilities

Evaluation of Costs for Non-Laboratory Facilities

Evaluation of OFPM’s Overall Project Cost Estimating

Capital Acquisition Strategies

Energy Saving Performance Contracts to Expedite Utility Infrastructure Improvements

General Services Administration Construction and Operation, NIST Lease Back

Current Authorizations for Funding

Best Management Practices for Consideration

Total Ownership Costs and Life-Cycle Costing of Alternatives

Renovation Versus Replacement

Project Staffing to Meet Obligation of Funding Demands

Performance Management and Performance Measurement

Conclusion

References

6 SUSTAINABLE OWNERSHIP STRATEGIES FOR NIST’S FACILITY PORTFOLIO

A Proactive Ownership Strategy

Program Requirements

Total Cost of Ownership

Portfolio Renewal

Ownership Strategy

A NIST Real Property Capital Plan

References

APPENDIXES

A Best Facility Sustainment, Restoration, and Modernization Practices

B Best Practices for Laboratories

C Facilities at NIST’s Boulder Campus

D Facilities at NIST’s Gaithersburg Campus

E Glossary

F Acronyms and Abbreviations

G Committee Biographical Sketches

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Page xiii Cite
Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Preface

The conference report accompanying the Consolidated Appropriations Act of 2021 (P.L. 116-260) requested that the National Institute of Standards and Technology (NIST) “contract with an independent entity to develop a report that assesses the comprehensive capital needs of NIST’s campuses.” In response, NIST’s Office of Facilities and Property Management approached the National Academies of Sciences, Engineering, and Medicine (the National Academies) to conduct this assessment.

NIST provides critical impact to the nation through metrology, standards development, and cutting-edge research, with a mission to promote U.S. innovation and industrial competitiveness by advancing measurement science, standards, and technology in ways that enhance economic security and improve quality of life. NIST supports innovative manufacturing that impacts the U.S. economy and national security. It undertakes mission-essential forensic analyses for federal, state, and local law enforcement, as well as the Department of Homeland Security. The NIST mission is accomplished primarily at its campuses in Gaithersburg, Maryland, and Boulder, Colorado. While not the focus of this study, NIST has two smaller campuses that host transmitters for the distribution of national performance frequency standard time, one in Fort Collins, Colorado, and the other in Kehaka, Kauai, Hawaii.

NIST and the National Academies of Sciences, Engineering, and Medicine entered into a contract on September 1, 2021, and the National Academies established the Committee on Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology, composed of diverse experts in the fields of architecture, construction, engineering economics, facility management and condition assessment, building performance, building design standards, building operations and maintenance, federal planning and budgeting, scientific research infrastructure, infrastructure lifetime management, asset management, and metrology.

The committee soon realized that even among its own members there was a lack of understanding of the depth and breadth of NIST activities. The committee thus undertook the task of learning much more about NIST’s work and its contributions to the nation. This then provided guidance for the selection of laboratories visited during tours of the two main facilities of NIST: the Gaithersburg, Maryland, headquarters and laboratories and the Boulder, Colorado, laboratories. The committee held six set committee meetings, three virtual, two in-person, and one hybrid with a remote option for members who could not travel to the meeting. There were also three meetings to engage in deliberations and report development, one hybrid and two virtual. Subsets of committee members held virtual meetings with representatives from three government agencies (National Institutes of Health, Department of the Interior, and U.S.

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
×

Army Corps of Engineers’ Engineer Research and Development Center) and one university research laboratory (Applied Physics Laboratory of Johns Hopkins University).

The committee toured both the NIST campuses in Gaithersburg, Maryland (579 acres, 61 buildings), and Boulder, Colorado (206 acres, 30 buildings). At the request of the committee, the tours included spaces in good and bad condition to allow the committee to understand the challenges of poor facilities, the reassignment of space to meet mission critical activities, programs that require critical dependencies on building environment, and the benefits of modern, good-condition facilities.

Instead of addressing the time frames spelled out in the statement of task precisely as written (i.e., 5, 10, 15, and 20 years), the committee concluded it was more meaningful to present time horizons for addressing the backlog of maintenance, functionality, and renovation for suitability to mission associated with existing facilities; and the time horizons for modernization, decommissioning, replacement, and acquisition of facilities. These included both a 10- to 20-year facilities recovery plan and ongoing 20- to 30-year master plans.

The committee is aware that the audiences for its report are likely to be the Senate and House authorizing committees for NIST and the Appropriations Subcommittees for Commerce, Justice, Science, and Related Agencies; the National Capital Planning Commission; the Office of Management and Budget’s Housing, Treasury and Commerce Division; the Department of Commerce; the Under Secretary for Standards and Technology and NIST Director; and the NIST Office of Financial Resource Management. The findings and recommendations resulting from this study will likely influence the strategies and approaches for the implementation of a NIST capital strategy for buildings and infrastructure across its portfolio of facilities.

The committee had numerous occasions to be grateful for the exceptional competence and efficiency of the study director, James Myska, who excelled at the herculean task of herding the dozen highly accomplished and experienced members of this committee. The advantage of the committee membership was the degree of broad competence that was completely appropriate to meet the statement of task. Jim provided substantive contributions to fulfilling tasks in addition to managing the myriad activities that go into these studies and, finally, his production of the final report went beyond the committee’s expectations. He served as technical resource, fact-checker, inspiration, author, editor, and taskmaster. He was repeatedly able to turn vigorous discussion into consensus, scattered notes into coherent text, and rambling discourse into disciplined thinking. For the logistical arrangements of the committee’s in-person meetings, Joseph Palmer provided impeccable service. Jayda Wade, a late addition to the staff team, quickly became a vital team member. She helped with the task of report editing, making numerous contributions to the quality of the report, and provided much-needed assistance in the myriad tasks necessary to the production of a report.

From the very first virtual meeting to the last editing and response to reviewer comments, the commitment and enthusiasm of the committee members was exceptional. The committee understood at every step that it represented the National Academies and not NIST. Yet as it learned more and more about the benefits NIST provides to our country and our way of life, and the unsatisfactory physical condition and functionality of much of its facilities, there emerged a shared sentiment of the great urgency for major improvements in those facilities. The funding for improving the condition of NIST’s facilities depends mostly on money from congressional appropriations and priorities, though internal NIST budget allocation decisions also play a role in the current situation. And only with such an infusion will NIST be able to remain among the best metrology institutes at the forefront of the civilized world.

Ross B. Corotis, Chair
Committee on Technical Assessment of the Capital Facility
Needs of the National Institute of Standards and Technology

Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Page viii Cite
Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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Page xiii Cite
Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
×
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2023. Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology. Washington, DC: The National Academies Press. doi: 10.17226/26684.
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The National Institute of Standards and Technology (NIST) provides critical impact to the nation through standards development and cutting-edge research, with a mission to promote U.S. innovation and industrial competitiveness by advancing measurement science, standards, and technology in ways that enhance economic security and improve quality of life. NIST supports innovative manufacturing that impacts the U.S. economy and national security. The NIST mission is accomplished primarily at its campuses in Gaithersburg, Maryland, and Boulder, Colorado.

At the request of NIST, Technical Assessment of the Capital Facility Needs of the National Institute of Standards and Technology assesses the comprehensive capital needs of the NIST campuses. This report evaluates current strategies and tools for capital facilities assessment, and methods for determining annual funding levels for sustainment, restoration, and modernization. The report makes recommendations for facility management strategies that will provide the functionality needed by world-class scientists on vital assignments of national consequence.

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