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Record of Proceedings

Denver City Council Budget and Policy Committee Discusses Best Value Contracting - September 12, 2025

Council CommitteesFriday, September 12, 2025
BodyDenver, Colorado
SessionCouncil Committees
DateFriday, September 12, 2025
StatusFILED
Video Record
0:00 / 52:12

Transcript — Verbatim
0:01

Welcome back to this biweekly meeting of the budget and policy committee of Denver City Council.

0:09

Join us for the discussion as the budget and policy committee starts now.

0:22

Good afternoon, everyone.

0:25

I think number eight.

0:26

My name is President Amanda Sandoval.

0:28

I present District One.

0:30

Um we only have one agenda item uh this afternoon, so should be a great discussion.

0:36

But before we get started, let's go around and do some introductions and I'll start to my left.

0:41

Good afternoon, Florida Vivere's lucky district seven.

0:44

Good afternoon, Paul Care from South Member District Six.

0:47

Jamie Torres, West Emmer District Three.

0:49

Uh good afternoon, Darrell Watson, fine, district nine.

0:52

I'm in Sawyer, District Five.

0:54

Kevin Flynn, South West Denver's District Two.

0:56

Chris Irons, Demers.

0:58

Perfect time.

0:59

Great.

1:00

So we have Paul Best Value Contracting in front of us, and then I'll pass it over to our team.

1:06

And if you all just want to introduce yourselves, then the floor is yours.

1:10

Great.

1:11

Good afternoon.

1:12

Cammy Joeleam, the Director of Administration within General Services.

1:16

Nicole Sundras, Citywide Contracts Manager for General Services.

1:20

Michael Romero, Director of Purchasing General Services.

1:23

Dave Emps, Director of Contracts and Procurement for Dotti.

1:26

Nick Williams, Deputy Manager Dottie.

1:29

All right, the floor is yours.

1:31

Thank you.

1:32

I'll just kind of kick us off and appreciate your time today and the opportunity to come and talk about how our two agencies manage best value for contracting.

1:44

And I would say, as we were working through this presentation, we realized that we believe that this will be one presentation in several presentations to this body, just because there are so many individual agencies that are part of the best value contracting process.

2:02

And so we'd like to leave that just on the table of being able to revisit this in the future.

2:07

But I'll be taking lots of notes for your questions and capturing the discussion items so we can do a good job of creating that space and uh informing those next steps.

2:19

So I'll kick that over to uh to Mike.

2:22

Yeah.

2:23

So I'll go over today some specific revised municipal code sections that inform our solicitation processes.

2:30

Okay, so chapter 20, Article 4, division 2, definition section 2061.

2:37

Um we do have a definition for best value within our code.

2:41

Um basically gonna summarize the bold section, the overall combination of quality, price, and various elements of required services or performance measures that in total are optimal relative to the city's needs.

2:54

And we also have a definition definition here of request for proposal, which is different from the IFB, which basically an award is made in consideration of best value, not necessary.

3:10

Also, within our chapter 20 is uh a definition of contracts.

3:16

And basically, again, the IFP's lowest responsive bids, except for the case of request for proposals, which can be awarded to most qualified responsive and responsible proposers who also provide best value to the city as well.

3:32

So this is basically within our code.

3:35

And then one more definition, uh, chapter 28, which is in the women's small business enterprise and minority section.

3:43

Um very similar definition of request for proposal, where again an award is made a consideration of best value and not necessary lowest price.

3:52

So we do have solicitation methodologies where we're not just looking for the lowest price, we are actually looking for additional competencies and you know, experience background uh approach, a number of different factors.

4:06

Nicole will be going to have here in a moment.

4:10

Thank you, Michael.

4:12

Uh so again, as Michael stated, the RFP evaluation criteria is a little bit different than an informal bid.

4:18

Um, as informal bids, we're really looking at price specifically, but with the RFP evaluation criteria.

4:24

Uh the policy of general services expands to that the evaluation criteria, other can cost, other than cost, maybe characterize best value under the lifecycle costing.

4:36

As you'll see, there are quite a bit of different areas of where we believe that best value would come from.

4:42

A couple I'd just like to point out uh local servicing availability, cost of operation, uh financial condition of the vendor or proposer, as well as past uh performance by a vendor to the city.

5:00

On the next slide, uh, we have kind of outlined we've outlined a few solicitation and contract types for uh some more uh description and discussion as well.

5:08

You will see we have uh professional goods and services, and this really again is defined previously with the request per proposals.

5:17

Again, we're looking at price, but also we'll uh have that consideration for best value to the city.

5:23

Um, under on call uh professional agreements, we are also able to issue tax task orders.

5:31

Again, that is just a mini contract under an overarching uh executed on call agreement for professional services.

5:39

It's very specific to the service requests.

5:42

So we're just making sure that the scope is followed and what that small mini contract per se is covered under that task order.

5:50

And then we also have a mechanism which is a request for encumbrance.

Discussion Breakdown — Share of Meeting
Contracts And Procurement█████████████████████████████████████████████89%
Small Business Opportunity███6%
Worker Protections██3%
Workforce Development2%
Summary of Proceedings

Denver City Council Budget and Policy Committee Discusses Best Value Contracting - September 12, 2025

The Budget and Policy Committee of the Denver City Council, chaired by President Amanda Sandoval, convened on September 12, 2025, for a single agenda item: a presentation on best value contracting from the Department of General Services and the Department of Transportation and Infrastructure (DOTI). The discussion centered on existing frameworks, evaluation criteria, and the interplay with Executive Order 8 (EO8), as well as concerns raised by labor unions and community desires for more holistic procurement.

Discussion Items

  • Best Value Contracting Definitions and Framework: Michael Romero (Director of Purchasing, General Services) reviewed relevant municipal code sections (Chapter 20, Article 4) defining best value as the optimal combination of quality, price, and performance measures. Nicole Sundras (Citywide Contracts Manager) explained that RFP evaluations consider factors beyond price, such as local servicing availability, cost of operation, vendor financial condition, and past performance. Dave Emps (Director of Contracts and Procurement, DOTI) described DOTI’s pre-qualification process for contractors on projects over $1 million, which includes evaluating experience modification rates (EMR), bonding, and financials. He noted that pre-qualification forms have been reduced from 34 to 17 pages and are now required every two years instead of annually, with small businesses exempt from certified audited financial statements until the $15 million threshold.

  • Councilmember Sawyer’s Questions on Worker Considerations: Councilmember Sawyer expressed that community stakeholders want best value contracting to include worker safety, training, and wages beyond prevailing wage. She noted that despite the framework, the city often defaults to the lowest price. She asked about the alignment with EO8, which governs procurement. Robert Wheeler (City Attorney’s Office) stated that a revision to EO8 is being drafted that will explicitly encourage best value contracting, and that it is “getting close” to circulation. This was the first time Councilmember Sawyer had heard of this in six years.

  • Councilmember Hines’ Questions on Union Concerns: Councilmember Hines inquired about slide 19 (later clarified as slide 20) titled “Union Concerns.” Dominic Moreno (Mayor’s Office) explained that the slide was derived from a memo by SEIU (Service Employees International Union) advocating for “high road contracting.” The concerns included that bidder qualifications are not used, prevailing wage is not enforced, climate standards (e.g., shade, hydration stations) are absent, and labor harmony is not required. Dave Emps countered that DOTI does enforce prevailing wage, uses pre-qualification, and considers OSHA violations and EMR scores over four years. Councilmember Hines also discussed the potential for a legislative standard to insulate best value from changes in administration.

  • Councilmember Alvidrez’s Questions on Small Business and Pre-Qualification: Councilmember Alvidrez asked about hurdles for small businesses, such as the $1 million pre-qualification threshold and EMR rates. Dave Emps noted that pre-qualification is for projects over $1 million, and that an EMR above 1.5 is a red flag, but that scores are averaged over four years, so a single incident is not disqualifying. He also highlighted that small businesses with strong performance as subcontractors can step up to prime roles.

  • On-Call Contracts and Transparency: Councilmember Hines expressed frustration with on-call contracts due to limited budget oversight. Nick Williams (Deputy Manager, DOTI) offered to provide briefings on a new round of on-call contracts, emphasizing improved transparency. Councilmember Hines cited an example where $7 million for the 5280 trail was awarded to an on-call vendor after 18 months of inaction, questioning whether that was best value.

  • General Services and HOST Procurement: Jeff Kazitzki (Deputy Director, HOST) noted that HOST is moving toward a performance-based contracting model and would present separately. General Services representatives described efforts to consolidate contracting and create a resource hub, with the Division of Small Business Opportunity compliance team transitioning to General Services.

Key Outcomes

  • No formal votes were taken.
  • The City Attorney’s Office is revising EO8 to explicitly encourage best value contracting, with a draft expected soon.
  • The city will continue a series of presentations to the committee on best value practices across different agencies, including HOST.
  • Dominic Moreno will share the SEIU letter on high road contracting with the full City Council.
  • DOTI committed to publishing evaluation criteria matrices for construction projects to increase transparency.
  • The committee and agencies will continue discussions on incorporating worker training, safety, and equity criteria into best value evaluations.

Meeting Transcript

Welcome back to this biweekly meeting of the budget and policy committee of Denver City Council. Join us for the discussion as the budget and policy committee starts now. Good afternoon, everyone. I think number eight. My name is President Amanda Sandoval. I present District One. Um we only have one agenda item uh this afternoon, so should be a great discussion. But before we get started, let's go around and do some introductions and I'll start to my left. Good afternoon, Florida Vivere's lucky district seven. Good afternoon, Paul Care from South Member District Six. Jamie Torres, West Emmer District Three. Uh good afternoon, Darrell Watson, fine, district nine. I'm in Sawyer, District Five. Kevin Flynn, South West Denver's District Two. Chris Irons, Demers. Perfect time. Great. So we have Paul Best Value Contracting in front of us, and then I'll pass it over to our team. And if you all just want to introduce yourselves, then the floor is yours. Great. Good afternoon. Cammy Joeleam, the Director of Administration within General Services. Nicole Sundras, Citywide Contracts Manager for General Services. Michael Romero, Director of Purchasing General Services. Dave Emps, Director of Contracts and Procurement for Dotti. Nick Williams, Deputy Manager Dottie. All right, the floor is yours. Thank you. I'll just kind of kick us off and appreciate your time today and the opportunity to come and talk about how our two agencies manage best value for contracting. And I would say, as we were working through this presentation, we realized that we believe that this will be one presentation in several presentations to this body, just because there are so many individual agencies that are part of the best value contracting process. And so we'd like to leave that just on the table of being able to revisit this in the future. But I'll be taking lots of notes for your questions and capturing the discussion items so we can do a good job of creating that space and uh informing those next steps. So I'll kick that over to uh to Mike. Yeah. So I'll go over today some specific revised municipal code sections that inform our solicitation processes. Okay, so chapter 20, Article 4, division 2, definition section 2061. Um we do have a definition for best value within our code. Um basically gonna summarize the bold section, the overall combination of quality, price, and various elements of required services or performance measures that in total are optimal relative to the city's needs. And we also have a definition definition here of request for proposal, which is different from the IFB, which basically an award is made in consideration of best value, not necessary. Also, within our chapter 20 is uh a definition of contracts. And basically, again, the IFP's lowest responsive bids, except for the case of request for proposals, which can be awarded to most qualified responsive and responsible proposers who also provide best value to the city as well. So this is basically within our code. And then one more definition, uh, chapter 28, which is in the women's small business enterprise and minority section. Um very similar definition of request for proposal, where again an award is made a consideration of best value and not necessary lowest price. So we do have solicitation methodologies where we're not just looking for the lowest price, we are actually looking for additional competencies and you know, experience background uh approach, a number of different factors. Nicole will be going to have here in a moment. Thank you, Michael. Uh so again, as Michael stated, the RFP evaluation criteria is a little bit different than an informal bid. Um, as informal bids, we're really looking at price specifically, but with the RFP evaluation criteria. Uh the policy of general services expands to that the evaluation criteria, other can cost, other than cost, maybe characterize best value under the lifecycle costing.

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