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Last updated: June 25, 2024
The construction industry has been responding to low embodied carbon material requirements and IRA-funded market signals. Since the program launched in May 2023, manufacturers have published about 17,000 additional environmental product declarations in the four material categories, demonstrating that industry is responding to market demand for materials made with lower emissions. GSA has experienced geographical constraints for concrete and asphalt with EPDs for some projects in sparsely-populated parts of the country. Continued emphasis by industry needs to be on developing EPDs for LEC materials available in specific local markets where our projects are located. GSA has found low embodied carbon glass and steel to be widely-available based on several procurement actions in process.
In terms of cost and performance, our first IRA-funded awards procured American-made low carbon glass at a price that was competitive with pricing for conventional glass — while delivering the same performance characteristics, and without any schedule impact. Similarly, an asphalt company in Colorado was able to develop and provide its first EPD (for a pre-IRA GSA LEC paving project) in five weeks, without any cost or schedule impact. GSA appreciates suppliers’ initiative, and plans to share more cost, availability, and performance findings as additional awards are made.
GSA is considering ways to systematically prefer bidders whose submitted EPDs don’t just meet our thresholds, but demonstrate exemplary lower-carbon characteristics, even compared to other bidders who submit EPDs that meet the same threshold. GSA continues engaging with industry, other Federal and state agencies pursuing Buy Clean program, and other experts on best practices and efficient, effective policies.
Below are key lessons learned from the pilot.
Concrete and asphalt are local materials. Neither product is typically suitable for travel beyond an approximate 90-minute radius of project sites before its usability is compromised. Availability of compliant concrete continues to be a challenge, particularly in remote project areas, however our outreach efforts are yielding results and market responsiveness. In Texas, where GSA needs substantial amounts of low-carbon concrete at major land port of entry modernization and paving projects, we engaged with the Texas Department of Transportation, or TXDOT, and the National Concrete Ready-mix Association, and determined that 8 of 15 conventional concrete mixes used by TXDOT at three of our project locations along the border with Mexico may already comply with one of more of our IRA global warming potential (GWP) limits — if EPDs are published to document the compliance of these mixes for use in our IRA LEC projects.
Three of the four primary American glass manufacturers are now producing glass meeting GSA’s most-stringent top 20% GWP limits. Our project at the Charles E. Whittaker U.S. Courthouse in Kansas City, MO will benefit from these improvements with approximately 375 tons (100,000 square feet) of glass from two U.S. manufacturers. All of that glass will meet our most-stringent GWP limit, while meeting crucial project needs. Additionally, window fabricators are starting to use top 20% flat glass in their insulated glazing units. These IGUs may be suitable for some GSA window replacement projects. That can provide operational benefits though lower energy consumption while also continuing to expand the markets for low-carbon glass and windows.
The steel industry has shown substantial improvement, with average GWPs (emissions per unit of product) dropping in most of GSA’s steel product subcategories, including hot-rolled sections and cold-formed galvanized steel. Two major U.S. manufacturers of steel have also published their first-ever EPDs, or are currently in the process of doing so. Both companies have said their action was motivated by our Federal Buy Clean leadership.
GSA low embodied carbon material requirements remain largely unchanged since the pilot commenced in May 2023. The GWP limits remain the same because consistency in these initial stages helps manufacturers make investments to enable their products to qualify for our IRA funding, instead of potentially shifting targets when industry efforts are just ramping up. Due to industry feedback about the difficulty of tracking and meeting different GWP limits and policies on projects in different states or for different agencies, GSA is also monitoring complementary work by FHWA and EPA that is expected to yield GWP limits for these same material categories. GSA will evaluate future policies and thresholds for their suitability for the GSA project portfolio, and consider opportunities for interagency harmonization.
One substantial change in our IRA LEC post-pilot requirements clarifies the definition of glass material assemblies. Standardizing on the insulating glass unit, or IGU, will yield consistency in applying the “80/20” assembly rule from the EPA Interim Determination — at least 80% of IGU weight must be compliant flat glass. This clarification is noted both in the FAQs and the low embodied carbon glass requirements.
GSA will continue to monitor the market, engage with stakeholders and industry, and learn from our federal government partners. By fully implementing its IRA low embodied carbon program, we will gather more information in more markets on more projects to help understand where, and for which materials, gaps in availability may persist and how those gaps may be addressed.
Since the May 2023 launch of the GSA LEC program, the industry has responded with an additional 17,000 environmental product declarations in our IRA LEC product categories.
Flat glass manufacturers have tripled the number of companies with offerings meeting our most stringent limits. The steel industry has also responded with an increase from 173 to 184 North American EPDs in the steel subcategories used by GSA (rebar, hollow structural sections, hot-rolled sections, cold-formed and galvanized, and structural plate). The number of cold-formed and galvanized steel EPDs has increased by about 60% since a year ago. These additional EPDs also reflect industry movement toward lower EPA Global Warming Potential materials.
According to publicly-accessible data, the increase in North American EPDs over the past year includes: over 14,000 additional EPDs for concrete, a 15% increase; 2,700 new asphalt EPDs, quadrupling the number from a year ago; and additional EPDs in most subcategories of steel, including a 60% increase in the number of EPDs for structural steel plate and two steel manufacturers’ first EPDs ever. GSA commends this transparency by manufacturers, and looks forward to these trends continuing and even accelerating further in the years ahead.
| Material category | Published EPDs* before pilot (May 16, 2023) | Published EPDs* after pilot (May 16, 2024) |
|---|---|---|
| Asphalt | 903 | 3,615 |
| Concrete (ready-mix, cement, and concrete masonry units) | 96,853 | 111,070 |
| Glass (flat glass) | 19 | 27 |
| Steel (rebar, hollow structural steel, hot-rolled sections, plate, and cold-formed galvanized) | 173 | 184 |
*Total numbers of North American EPDs in GSA’s material categories, regardless of product category rule, as reported from a free, publicly-available EPD database.
IRA-related industry engagements included:
GSA conducted industry outreach by meeting with or presenting to groups, companies, and organizations including, but not limited to:
Additionally, GSA received feedback from:
For more information on each LEC pilot project see our LEC Pilot Report from December 2023 [PDF - 4 MB]. Additional low embodied carbon results will be posted in the IRA section as procurement actions are finalized. For additional background on the LEC Pilot Program, please visit the archived fact sheet.
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An SBA program that helps provide a level playing field for small businesses owned by socially and economically disadvantaged people or entities that meet the following eligibility requirements:
See Title 13 Part 124 of the Code of Federal Regulations for more information.
From 5 USC 5701(6), "continental United States" means the several states and the District of Columbia, but does not include Alaska or Hawaii.
A multiple-award IDIQ governmentwide acquisition contract offering complete and flexible IT solutions worldwide. A best-in-class GWAC and preferred governmentwide solution, Alliant 2 offers:
It provides best-value IT solutions to federal agencies, while strengthening chances in federal contracting for small businesses through subcontracting.
A dedicated, flexible fuel, or dual-fuel vehicle designed to operate on at least one alternative fuel.
An investment in our nation’s infrastructure and competitiveness. The law provides funding for LPOE modernization projects that will create new good-paying jobs, bolster safety and security, and make our economy more resilient to supply chain challenges.
An agreement established by a government buyer with a Multiple Award Schedule contractor to fill repetitive needs for supplies or services.
Types of funds to use on specific expenses.
The work done to make a structure or system ready for use or to bring a construction or development project to a completed state.
Negotiated firm-fixed pricing on airline seats for official government travel. The locked-in ticket prices for the fiscal year save federal agencies time and money. Federal employees enjoy flexibility to change their plans without incurring penalties or additional costs. All negotiated rates have:
Use the CPP search tool to find current fares.
A space where individuals work independently or co-work collaboratively in a shared office. The work environment is similar to a typical office, usually inclusive of office equipment and amenities. Typical features of co-working facilities include work spaces, wireless internet, communal printer/copier/fax, shared kitchens, restrooms and open seating areas. May also be referred to as a “shared office.”
A system that is bought from a commercial vendor to solve a particular problem, as opposed to one that a vendor custom builds.
An employee who negotiates and awards contracts with vendors and who has the sole authority to change, alter or modify a contract.
An employee whose duties are to develop proper requirements and ensure contractors meet the commitments during contract administration, including the timeliness and delivery of quality goods and services as required by the contract.
A request of GSA where a federal agency retains and manages all aspects of the procurement process and is able to work with the selected vendor after award.
The process of handling real property that is surplus to the federal government’s needs. Federal law mandates the disposal process, which has these major steps (although not every property goes through every step):
An SBA program that gives preferential consideration for certain government contracts to businesses that meet the following eligibility requirements:
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Also called electric vehicle chargers, this includes EV charge cords, charge stands, attachment plugs, vehicle connectors, and protection, which provide for the safe transfer of energy between the electric utility power and the electric vehicle.
The primary regulation for federal agencies to use when buying supplies and services with funds from Congress.
Use acquisition.gov to browse FAR parts or subparts or download the full FAR in various formats.
The travel and relocation policy for all federal civilian employees and others authorized to travel at government expense.
A program that promotes the adoption of secure cloud services across the federal government by providing a standardized approach to security and risk assessment.
A GSA business line that provides safe, reliable, low-cost vehicle solutions for federal agency customers and eligible entities. Offerings include:
A charge card for U.S. government personnel to use when paying for fuel and maintenance of GSA Fleet vehicles. Find out where the Fleet card is accepted, how to use it and more.
A Department of Homeland Security program that allows members to use expedited lanes at U.S. airports and when crossing international borders by air, land and sea.
A charge card for certain U.S. Government employees to use when buying mission-related supplies or services using simplified acquisition procedures, when applicable, and when the total cost does not exceed micro-purchase thresholds.
A charge card for U.S. government personnel to use when paying for reimbursable expenses while on official travel. Visit smartpay.gsa.gov for more.
A vehicle used to perform an agency’s mission(s), as authorized by the agency.
A pre-competed, multiple-award, indefinite delivery, indefinite quantity contract that agencies can use to buy total IT solutions more efficiently and economically.
A ceremony marking the official start of a new construction project, typically involving driving shovels into ground at the site.
An online shopping and ordering system at gsaadvantage.gov that provides access for federal government employees and in some cases, state and local entities, to purchase from thousands of contractors offering millions of supplies and services.
An online auction site at gsaauctions.gov that allows the general public to bid on and buy excess federal personal property assets such as:
Real property for which GSA is responsible. It can be either federally owned or leased from a public or private property owner.
An SBA program that gives preferential consideration for certain government contracts to business that meet the following eligibility requirements:
See Title 13 Part 126 Subpart B of the Code of Federal Regulations for more information.
A type of contract when the quantity of supplies or services, above a specified minimum, the government will require is not known. IDIQs help streamline the contract process and speed service delivery.
A fee paid by businesses who are awarded contracts under Multiple Award Schedule to cover GSA’s cost of operating the program. The fee is a fixed percentage of reported sales under MAS contracts that contractors pay within 30 calendar days following the completion of each quarter.
A law that provides $3.375 billion for us to:
This includes $2.15 billion for low embodied carbon materials in construction projects, $975 million to support emerging and sustainable technologies, and $250 million for measures to convert more buildings into High Performance Green Buildings.
A written agreement entered into between two federal agencies, or major organizational units within an agency, which specifies the goods to be furnished or tasks to be accomplished by one agency (the servicing agency) in support of the other (the requesting agency).
A facility, also known as a border station, that provides controlled entry into or departure from the United States for persons or materials. It houses the U.S. Customs and Border Protection and other federal inspection agencies responsible for the enforcement of federal laws related to entering into or departing from the U.S.
An employee who is responsible for preparing, negotiating, awarding and monitoring compliance of lease agreements.
Criteria used to select the technically acceptable proposal with the lowest evaluated price. Solicitations must specify that award will be made on the basis of the lowest evaluated price of proposals meeting or exceeding the acceptability standards for non-cost factors.
The rate of reimbursement for driving a privately owned vehicle when your agency authorizes it. Current rates are at gsa.gov/mileage.
Long-term governmentwide contracts with commercial firms providing federal, state, and local government buyers access to more than 11 million commercial products and services at volume discount pricing. Also called Schedules or Federal Supply Schedules.
The standard federal agencies use to classify business establishments for the purpose of collecting, analyzing, and publishing statistical data related to the U.S. business economy.
A family of seven separate governmentwide multiple award, IDIQ contracts for program management, management consulting, logistics, engineering, scientific and financial services.
A formal, signed agreement between GSA’s Public Buildings Service and a federal agency for a specific space assignment.
Services performed under a contract with a federal agency that include:
Official verification of someone’s origin, identity, and nationality. A U.S. passport is required of U.S. citizens for international travel and reentry into the United States. There are three types of passports: diplomatic, official, and regular. A government official may have at the same time a valid regular passport and a valid official or diplomatic passport. Use GSA Form 2083 to begin a request for an official passport.
The per day rates for the lower 48 continental United States, which federal employees are reimbursed for expenses incurred while on official travel. Per diem includes three allowances:
An identification card that allows credentialed government personal to access facilities, computers, or information systems. May also be referred to as HSPD-12 card, LincPass, Smart Card, or CAC.
Furniture and equipment such as appliances, wall hangings, technological devices, and the relocation expenses for such property.
Information that can be used to distinguish or trace an individual’s identity, either alone or when combined with other information that is linked or linkable to a specific individual. Get more info from OMB Circular A-130 [PDF].
You should only drive a privately owned vehicle for official travel after your agency evaluates the use of:
When your agency has determined a POV to be the most advantageous method of transportation, you are authorized reimbursement for mileage and some additional allowances (parking, bridge, road and tunnel fees, etc.).
Approvals from GSA’s congressional authorizing committees, the U.S. Senate Committee on Environment and Public Works and the U.S. House Committee on Transportation and Infrastructure, for proposed capital and leasing projects that require funding over an annually established threshold.
Region 1 (New England): Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, Vermont
Region 2 (Northeast and Caribbean): Northern New Jersey, New York, Puerto Rico, U.S. Virgin Islands
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Formal agreements between GSA and a federal agency customer where GSA agrees to provide goods, services, or both, and the federal agency agrees to reimburse GSA’s direct and indirect costs. The customer portal for RWA information is called eRETA at extportal.pbs.gsa.gov.
A document used in negotiated procurements to communicate government requirements to prospective contractors (firms holding Multiple Award Schedule contracts) and to solicit proposals (offers) from them.
A document used to communicate government requirements, but which do not solicit binding offers. Quotations submitted in response are not offers. The Multiple Award Schedule order is the offer, and then the contractor can do something to show acceptance, like ordering supplies or contacting subcontractors.
Long-term governmentwide contracts with commercial firms providing federal, state, and local government buyers access to more than 11 million commercial products and services at volume discount pricing. Also called Multiple Award Schedule or Federal Supply Schedules.
An SBA program that gives preferential consideration for certain government contracts to businesses that meet the following eligibility requirements:
See Title 13 Part 125 Subpart B of the Code of Federal Regulations for more information.
An SBA designation for businesses that meet size standards set for each NAICS code. Most manufacturing companies with 500 employees or fewer, and most non-manufacturing businesses with average annual receipts under $7.5 million, will qualify as a small business.
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To improve and stimulate small business utilization, we award contracts to businesses that are owned and controlled by socially and economically disadvantaged individuals. We have contracting assistance for:
A Small Business Administration program that gives preferential consideration for certain government contracts to business that meet the following eligibility requirements:
See Title 13 Section 124.1001 of the Code of Federal Regulations for more information.
The basis for the lease negotiation process, which becomes part of the lease. SFOs include the information necessary to enable prospective offerors to prepare proposals. See SFO minimum requirements.
Specific supply and service subcategories within our Multiple Award Schedule. For the Information Technology Category, a SIN might be new equipment or cloud services.
A national policy committing to create and maintain conditions under which humans and nature can exist in productive harmony to support present and future generations.
An online system at sam.gov, which the U.S. Government uses to consolidate acquisition and award systems for use by contractors wishing to do business with the federal government. Formerly known as FBO.gov, all contracting opportunities valued over $25,000 are posted at sam.gov.
When you use a government purchase card, such as the "GSA SmartPay" travel card for business travel, your lodging and rental car costs may be exempt from state sales tax. Individually billed account travel cards are not tax exempt in all states. Search for exemption status, forms and important information.
The finishes and fixtures federal agency tenants select that take a space from a shell condition to a finished, usable condition and compliant with all applicable building codes and standards.
A statute that applies to all Multiple Award Schedule contracts, unless otherwise stated in the solicitation or contract, which requires contractors to sell to the U.S. Government only products that are manufactured or “substantially transformed” in the U.S. or a TAA-designated country.
An option for vendors to report transactional data — information generated when the government purchases goods or services from a vendor — to help us make federal government buying more effective.
See our TDR page for which SINs are eligible and which line-item data to submit.
A unique number required to do business with the federal government.
An indicator of how efficiently a federal agency is currently using space, it is traditionally calculated by dividing the usable square feet of the space, by the number of personnel who occupy the space.
A Small Business Administration program that gives preferential consideration for certain government contracts to businesses that meet the following eligibility requirements:
A governmentwide acquisition contract exclusively for service-disabled veteran-owned small businesses to sell IT services such as:
The amount of solid waste, such as trash or garbage, construction and demolition waste, and hazardous waste, that is reused, recycled or composted instead of being put in a landfill or burned.
A GSA program designed to promote recycling and reuse of solid waste.
A Small Business Administration program that gives preferential consideration for certain government contracts to businesses that meet the following eligibility requirements:
See Title 13 Part 127 Subpart B of the Code of Federal Regulations for more information.
Vehicles that, when operating, produce zero tailpipe exhaust emissions of any criteria pollutant (or precursor pollutant) or greenhouse gas. These include battery and fuel cell electric vehicles, as well as plug-in hybrid vehicles that are capable of operating on gas and electricity. They also may be called all-electric vehicles.
U.S. General Services Administration