AMP for Design and Construction FY 2025 Report Cover Letter
June 30, 2026
Secretary Matthew J. Gorzkowicz
Executive Office of Administration and Finance
State House, Room 373
RE:FY 2025 Annual Report Supplier Diversity – Affirmative Marketing Program for Design & Construction, Workforce Reporting, and VBE Reporting
Dear Secretary Gorzkowicz:
Attached please find the FY 2025 (“FY 25”) report for DCAMM's Affirmative Marketing Program (AMP) for MBE/WBE business participation, veteran business participation, and minority and women workforce hours on DCAMM design and construction projects.
I am very pleased to report that DCAMM’s has exceeded all FY 25 payment and award goals for construction and design for projects in FY 25. The FY 25 report reflects overall payments to MBEs and WBEs of nearly $67 million on DCAMM construction and design projects.
DCAMM has also exceeded the 3% goal for VBE construction firms in FY 25, with nearly $19 million in payments directed towards VBEs in FY 25, reflecting over 4.5% of the total construction payments for the year. This results from ongoing VBE participation in the new Holyoke Veterans Home project, among the largest projects in DCAMM’s history, along with awards to VBE primes on several other projects.
For workforce participation, we continue to see strong growth in the share of total hours worked by both minorities and women on our construction projects. This includes significant increases (for the third year in a row) in the share of women construction hours in FY 25. Participation of women and minority workers on design contracts continues to be very strong.
DCAMM has progressed on several key initiatives to continue expanding construction workforce opportunities. These include significant efforts by the Public Construction Advisory Council, established under Governor Healy’s EO 630. The 27-member Council brings together industry, labor, and awarding authorities to examine barriers to participation by small, emerging, and diverse businesses in public construction and to recommend measures to reduce or eliminate those barriers.
In February 2025, DCAMM established the Access and Opportunity Committee (AOC) Program. This is an effective, innovative approach building on collaboration among DCAMM staff, prime contractors, and industry stakeholders to increase minority, women, and veteran workforce participation and diverse business utilization on large-scale projects with Estimated Construction Cost (ECC) greater than $35 million.
The report found on this page provides additional details about these initiatives and results for DCAMM’s Affirmative Marketing Program, including detailed backup reports for payments, awards, and workforce tracking for FY 25.
Sincerely,
Adam Baacke
Commissioner
Distribution:
Mr. Marcony Almeida-Barros, Deputy Chief of Staff, Access and Opportunity
Mark Fine, Assistant Secretary, Operational Services Division
The Honorable Senator Michael J. Rodrigues, Senate Committee on Ways and Means
The Honorable Representative Aaron Michlewitz, House Committee on Ways and Means
Mr. Michael D. Hurley, Clerk of the Senate
Mr. Timothy Caroll, Clerk of the House
The Honorable Senator Nick Collins, Joint Committee on State Administration
The Honorable Representative Antonio F. D. Cabral, Joint Committee on State Administration
1. Introduction - FY 2025 AMP Annual Report
This report presents the results under the Division of Capital Asset Management and Maintenance’s (DCAMM) Fiscal Year 2025 (FY 25) Affirmative Marketing Program (AMP) for Design and Construction, as well as FY 25 workforce utilization data compiled from DCAMM construction and design projects. This report also includes Veteran Business Enterprise (VBE), and Service-Disabled Veteran Owned Business Enterprise (SDVOBE) participation on construction and design projects. These firms are collectively referenced throughout this report as VBEs.
1.1 Foundations of DCAMM’s AMP Program
DCAMM’s program to expand access and opportunity to public construction and design projects for Minority and Women-owned (MBE/WBE) firms spans over four decades. Massachusetts General Law Chapter 7C, §6 and its predecessor legislation originally established programs first for MBE firms, then later expanded to WBE firms. The early program focused exclusively on construction and later included design services. AMP 2020 is the current iteration of the program which sets separate MBE and WBE goals for each DCAMM design and construction project based on the trade-specific marketplace availability of MBEs and WBEs as determined through industry studies.
In addition to Chapter 7C, §6, Chapter 149, §44A(2)(G), along with A&F Administrative Bulletins 14 and 17A as well as related laws, executive orders and ANF bulletins establish current MBE/WBE business participation and workforce data collection and reporting requirements and set workforce participation benchmarks on DCAMM, and other state agency (and state-funded) construction contracts. Executive Order 599 includes participation, tracking and reporting of Veteran Business Enterprises (VBE) and Service-Disabled Veteran Owned Business Enterprise (SDVOBE) contract expenditures.
1.2 Organization of FY 25 AMP Report – Construction, Design, Workforce
Due to the ongoing overlap of the previous Legacy AMP Program and the newer AMP 2020 Program, construction and design payments are again reported separately for these two project subsets. Projects advertised on or after July 1, 2020, fall under the AMP 2020 Program and projects advertised before that date fall under the Legacy Program. This section provides an overview of results for both groups of projects. In FY 25 about 90% of total construction and 64% of total design payments were made on projects under the newer AMP 2020 Program.
The Legacy and AMP 2020 distinctions are not relevant to our workforce program, which promotes minority and women participation on our construction and design projects. The framework for our workforce reporting is discussed below under Section 4 below.
Subsequent sections of this report provide more detailed summaries (with project-level backup reports), along with discussions on methodology and AMP initiatives underway by DCAMM and our partners.
1.3 Methodology for Calculating Payment and Award Program Results
Calculating results for payments and contract awards is identical for both Legacy and AMP 2020 project portfolios. The results are weighted averages comparing all relevant prime spending (and awards under AMP 2020) for design or construction from MMARS – the Commonwealth’s accounting system of record – with MBE, WBE, VBE primes, and subcontractors tracked through various internal data platforms. This prime spending across the construction and design portfolio forms the denominator in a fraction, with the numerator comprised of MBE, WBE (or VBE) participation through either prime or subcontracts on those same projects. The resulting ratios (% shares credited to MBE/WBE or VBE firms) for the fiscal year are then compared with the goals/targets we have established for each program. This process is repeated for new awards under AMP 2020.
Including both AMP 2020 and continuing Legacy projects, MBEs and WBEs received nearly $78 million in total payments for construction and design. Sections 2.1 and 2.2 highlight payment and award results from AMP 2020 projects. Legacy program results (payments only) are summarized in Section 3 below.
The summary tables immediately following these text sections provide data tables with supplemental details for payments, awards, and workforce data. The back up reports page contains reports at the most granular level..
2. AMP 2020 Program Results
2.1 AMP 2020 Program – Payment Results
DCAMM exceeded all payment goals for AMP 2020 construction and design projects during FY 25.
For projects under the AMP 2020 Program, DCAMM measures performance against the availability goals provided through our latest industry study.
We are pleased to report that we outperformed the MBE and WBE goals for both awards and payments in FY 25, including all specific goals for construction and design. Details of results are provided in the sections that follow.
Payments to MBE and WBE firms for design and construction under AMP 2020 projects totaled nearly $67 million in FY 25.
Construction
| Category | FY 25 Payment Results | Availability-based Goals | FY 25 Payments (millions) |
|---|---|---|---|
| MBE | 7.2% | 4.0% | $27.2 |
| WBE | 7.7% | 7.4% | $29.0 |
| Total | - | - | $56.2 |
Design
| Category | FY 25 Payment Results | Availability-based Goals | FY 25 Payments (millions) |
|---|---|---|---|
| MBE | 7.1% | 4.6% | $2.0 |
| WBE | 29.7% | 12.2% | $8.5 |
| Total | - | - | $10.5 |
2.2 AMP 2020 Program - Awards Results
DCAMM exceeded all AMP 2020 MBE and WBE awards goals for design and construction during FY 25.
Contract awards during the Fiscal Year are reported here using the same availability – based goals used for the AMP 2020 payment results. These results reflect construction and design contracts that were signed during FY 25. These contracts require minority and women-owned subcontractor participation based on project-specific factors such as size, scope, and subcontracting opportunities along with availability of certain types of subcontractors based on industry studies.
Approximately $37 million in new awards were made to minority and women-owned construction and design firms in FY 25:
Construction
| Category | FY 25 Award Results | Availability-based Goals | FY 25 New Awards (millions) |
|---|---|---|---|
| MBE | 10.5% | 4.0% | $17.8 |
| WBE | 8.9% | 7.4% | $15.2 |
| Total | - | - | $33.0 |
Design
| Category | FY 25 Award Results | Availability-based Goals | FY 25 New Awards (millions) |
|---|---|---|---|
| MBE | 18.4% | 4.6% | $0.8 |
| WBE | 67.7% | 12.2% | $2.9 |
| Total | - | - | $3.7 |
Note that several large CM at Risk and 25A energy projects, which are awarded in phases, are not yet counted in these award results due to their “preconstruction” status during FY 25. They will be included in subsequent annual reports once they are further into construction award process. Table 2.1 below provides a detailed list of these projects.
3. Legacy Program Results – (payments only)
DCAMM exceeded all payment goals for construction and design for Legacy projects during FY 25.
For projects under the Legacy Program DCAMM measures performance against just one set of combined MBE and WBE program goals based on past industry studies. The combined goal for construction is 10.4%. The corresponding goal for design is 17.9%. Award data is not presented here since all projects during FY 25 were awarded under the new AMP 2020 program.
Approximately $11 million in payments were made to minority and women-owned construction and design firms in FY 25 on Legacy projects:
Construction
| Category | FY 25 Legacy Results | Legacy Combined Goals | FY 25 Payments (millions) |
|---|---|---|---|
| MBE | 6.7% | - | $2.8 |
| WBE | 7.2% | - | $3.1 |
| Total: | 13.9% | 10.4% | $5.9 |
Design
| Category | FY 25 Legacy Results | Legacy Combined Goals | FY 25 Payments (millions) |
|---|---|---|---|
| MBE | 6.4% | - | $1.0 |
| WBE | 25.0% | - | $4.0 |
| Total: | 31.4% | 17.9% | $5.0 |
4. Workforce Reporting
4.1 Construction Workforce Methodology
As part of our annual reporting, DCAMM tracks required (self-reported) payroll submissions by construction firms on our projects during the reporting FY.
ANF Administrative Bulletin #14 establishes the following workforce participation benchmarks on state construction contracts:
- % Share of Total Hours Worked by Minority Employees 15.3% Benchmark
- % Share of Total Hours Worked by Female Employees 6.9% Benchmark
The construction workforce benchmark calculations are presented in two ways in this report. We first calculate the share of minority and women workforce hours based on just those hours reported during FY 25. In addition, we calculate the total cumulative hours reported from the inception of those same projects. In this section of the report we focus on the hours reported during FY 25. Additional information, including cumulative project-to-date hours reported, and details of reported hours by specific minority groups, are provided below in Summary Tables 5.1, 5.2, 5.3 for construction. Project-level details, including zip codes where reporting workers reside, are provided in back up reports.
4.2 Construction Workforce Results
Minority hours in FY 25 continue to significantly exceed the 15.3% benchmark.
Nearly 32% of the 1,066,219 construction hours reported during FY 25 were worked by minorities.
- Hispanic workers comprised 64.8% of all minority construction hours reported in FY 25.
- African American workers comprised 23.7% of all minority construction hours reported in FY 25.
Women construction workforce hours are below benchmark but significantly increased over last year.
- Women construction workers comprised 6.0% of total hours reported in FY 25. While below the 6.9% benchmark, this continues a significant upward trend over the last 2 reporting cycles (up from 3.6% in FY 23, and 4.7% in FY 24).
4.3 Designer Workforce Methodology
A similar approach is used for design work– comparing total designer hours reported by firms against those credited to minorities and women to determine percent shares. However, there are no benchmarks for design workforce and workforce reporting is limited to prime firms only (no subconsultants).
Further details on reported hours for design services are given in Tables 6.1, 6.2, 6.3 below. Project level details for design are provided in the collection ofback up reports.
4.4 Designer Workforce Results
There are no benchmarks for design hours under our AMP program.
- Women comprised nearly 64% of the ~47,350 total design hours reported in FY 25.
- Minorities comprised nearly 31% of all design hours, with Asians comprising the largest share.
5. Participation of Veteran-Owned Firms
5.1 VBE Participation – Background and Methodology
Massachusetts General Law Chapter 7, §61, Executive Order 599 and relevant A&F administrative bulletins include participation, tracking and reporting on Veteran-Owned Business Enterprises (VBEs) – which for purposes of this report includes both VBEs and Service – Disabled Veteran-Owned Business Enterprises (SDVOBEs). During FY 25, SDO established a 3% Veteran-Owned Business Enterprise (VBE) and Service-Disabled Veteran-Owned Business Enterprise (SDVOBE) participation goal for all state and state-assisted design and construction projects with an estimated cost exceeding $150,000.
The Commonwealth’s established goals for VBE participation:
- 3% of total design spending
- 3% for total construction spending.
Veteran participation is formally part of the Commonwealth’s Supplier Diversity Office’s (SDO) Supplier Diversity Program (SDP). While not part of DCAMM’s AMP Program, DCAMM includes reporting on payments to VBE prime contractors as part of this annual AMP report. Table 4 below and back up reports provide further details for VBEs in FY 25 for both construction and design.
5.2 VBE Results – Construction Payments
- In FY 25, DCAMM paid a total of $18.9 million to VBE prime and subcontract firms.
- This surpasses the 3% goal, representing 4.5% of total construction payments for FY 25.
- Payments to VBEs during FY 25 were driven by VBE primes and subcontractors working at the new Holyoke Veterans Home, and several other key projects.
5.3 VBE Results – Design Payments
- Design payments to VBEs in FY 25 totaled $112,905.
- These payments were below the 3% design goal for VBEs and were made solely to VBE subcontractors – no SDO certified prime design firms received payments in FY 25.
6. DCAMM Strategic Initiatives Supporting the AMP
In coordination with the Governor’s Office of Access and Opportunity, and in partnership with the Supplier Diversity Office (SDO), other state agencies, industry organizations, and external stakeholders, DCAMM continues to implement strategic initiatives that support the objectives of the Affirmative Marketing Program (AMP) by expanding access to public construction opportunities and increasing participation by minority, women, and veteran-owned businesses and workforce.
6.1 Expanding the Pool of MBE and WBE Contractors on Public Projects
DCAMM encourages SDO-certified Minority Business Enterprises (MBEs) and Women Business Enterprises (WBEs) to pursue DCAMM certification to increase participation in public construction projects throughout the Commonwealth. During FY 25, DCAMM undertook the following outreach and technical assistance activities in support of this objective:
- Participated in 18 in-person and six virtual Construction Opportunities Outreach events in collaboration with SDO. These sessions provided information on the public construction procurement process, DCAMM and SDO certification requirements, available supportive services, AMP program requirements, and upcoming DCAMM and other public construction and design opportunities. Outreach efforts continued into FY 26.
- Conducted targeted outreach to MBE, WBE, and VBE subcontractors to increase awareness of future DCAMM construction and design opportunities.
- Provided instruction for nine (9) Office of the Inspector General training modules, addressing AMP-related obligations for public awarding authorities and Owner’s Project Managers (OPMs), including minority and women workforce goals, MBE/WBE participation plan requirements prior to award, and post-award monitoring and reporting obligations for state agency and state-assisted municipal projects.
6.2 Executive Order 630: Public Construction Projects Advisory Council
On March 1, 2024, Governor Healey issued Executive Order 630, establishing the Public Construction Projects Advisory Council to examine barriers to participation by small, emerging, and diverse businesses in public construction and to recommend measures to reduce or eliminate those barriers.
The 27-member Council, comprised of representatives from industry, labor, and awarding authorities, convened over ten meetings and issued its final report on September 30, 2024. The report identified four primary barrier categories:
- Bonding and insurance
- Working capital and payment
- SDO and DCAMM certification processes
- Public construction bidding practices
The Council recommended a series of policy and procedural reforms. DCAMM is implementing recommendations that fall within its statutory and operational authority, including the following:
- To address costly barriers that prevented small, emerging, and diverse businesses participating in public construction, DCAMM improved the Small Prime Certification program by increasing the single project limit from $500,000 to $2,000,000 and the aggregate work limit from $1,000,000 to $4,000,000 beginning July 1, 2025.
- DCAMM launched an online dashboard that is updated daily of all payments DCAMM has made to prime contractors and prime designers in the past five years. This change increases transparency in the DCAMM payment process and provides valuable information for subcontractors as they seek payment from prime contractors.
- To reduce barriers that subcontractors face around various public construction requirements DCAMM made the following improvements:
- DCAMM now requires prime contractors to certify that they have paid their subcontractors in full when submitting new monthly requisitions.
- DCAMM has converted 89% of the certification contractor aid documents into webpages from PDFs to improve accessibility and allow for translation. The remaining documents will be converted by the end of the year.
- DCAMM’s Certification team has increased its technical assistance offerings and now holds an hour of virtual availability every month for contractors to come and ask any questions regarding certification. The team has responded to 166 technical support requests and 801 certification support requests since February 2025.
- DCAMM’s Certification team processed 258 new contractors for DCAMM certification in 2025, including 44 who are certified SDO businesses.
- DCAMM joined 26 other design community stakeholders in a Design Community Working Group aimed at identifying barriers for diverse design businesses who want to participate in public projects.
- DCAMM is exploring ways to improve its website to create easy pathways for interested applicants to apply for both DCAMM and SDO certifications if eligible.
6.3 Access and Opportunity Committee (AOC)
In February 2025, DCAMM established the Access and Opportunity Committee (AOC) to promote collaboration among DCAMM staff, prime contractors, and industry stakeholders and to support increased minority and women workforce participation and MBE/WBE business utilization on large-scale projects. Projects with an Estimated Construction Cost (ECC) greater than $35 million were selected for participation. The following projects have participated in the AOC:
- JP Campus Tower Building Renovation
- Lemuel Shattuck Hospital Renovation
- Middleton Jail House of Correction
- Massachusetts Maritime Academy Science, Technology, and Engineering Building
- Bridgewater State University Burnell Hall
The AOC facilitated the sharing of best practices and increased contractor awareness of workforce and business participation requirements. As an example, women workforce participation on the JP Campus Tower Building Renovation increased from 3.65% in spring 2025 to 4.04% by December 2025, despite the project being more than 65% complete at the time of reporting.
6.4 Veteran-Owned Businesses
During FY 25, SDO implemented a 3% Veteran-Owned Business Enterprise (VBE) and Service-Disabled Veteran-Owned Business Enterprise (SDVOBE) participation goal for all state and state-assisted design and construction projects with an estimated cost exceeding $150,000. DCAMM supported this initiative by conducting outreach to contractors listed in the DCAMM Directory to encourage eligible firms to self-identify with SDO, thereby expanding the pool of certified veteran-owned businesses.
Additional efforts to support veteran participation included contractor onboarding meetings focused on workforce diversity strategies, coordination with veteran organizations, and implementation of a hard-hat sticker program to encourage voluntary identification of veteran workers on the Holyoke Veterans Home project.
The Holyoke Veterans Home project demonstrates the Commonwealth’s commitment to veteran participation. The $406 million construction contract is being delivered through a 50/50 joint venture between VBE-certified Commodore Builders and Walsh Construction (C|W).
6.5 Minority and Women Business/Workforce Program
DCAMM continues to exceed established workforce participation goals for minorities in the construction industry. Women workforce participation showed strong gains again for the third year in a row, reaching 6.0% of total hours, up from 4.7% in FY 24 and 3.6% in FY 23.
DCAMM remains committed to sustaining and improving these outcomes through continued contractor engagement, oversight, and initiatives such as the Access and Opportunity Committee.
7. Tables Summarizing FY 2025 AMP Results
Table 1.1 - FY 2025 Construction Payments AMP 2020 Projects (Procurement Commenced on or after July 1, 2020)
(*) AMP 2020 availability - based goals established on the basis of industry studies.
Table 1.1 - FY 2025 Design Payments - AMP 2020 Projects (Procurement Commenced on or after July 1, 2020) Actual Performance
(*) AMP 2020 availability - based goals established on the basis of industry studies.
- Table 1.1 Highlights - AMP 2020 Program Payment Results for FY 25
- All MBE and WBE program goals were exceeded in FY 25 for AMP 2020 projects
- WBE construction firms received a total of $56.2 million in payments
- MBE and WBE design firms received $10.5 million in payments
Table 1.2 - FY 2025 Construction Payments - Legacy Projects (Procurement Commenced before July 1, 2020) Actual Performance
(*) Legacy Program combined goals established on the basis of industry studies.
Table 1.2 - FY 2025 Design Payments - Legacy Projects (Procurement Commenced before July 1, 2020) Actual Performance
(*) Legacy Program combined goals established on the basis of industry studies.
- Table 1.2 Highlights - AMP Legacy Program Payment Results for FY 25
- All MBE and WBE program goals were exceeded in FY 25 for Legacy projects
- For Legacy projects, construction payments to MBE and WBE firms reached $5.9 million in total
- MBE and WBE design firms received nearly $5.1 million under Legacy projects
Table 2 - FY 2025 Construction Awards - AMP 2020 Projects (Procurement Commenced on or after July 1, 2020) Actual Performance
(*) AMP 2020 availability - based goals established on the basis of industry studies.
Table 2 - FY 2025 Design Awards - AMP 2020 Projects (Procurement Commenced on or after July 1, 2020) Actual Performance
(*) AMP 2020 availability - based goals established on the basis of industry studies.
Table 2 Highlights - AMP 2020 Program Award Results for FY 25
- All MBE and WBE program goals were exceeded in FY 25
- MBE and WBE construction firms received a total of $32.9 million in new awards
- MBE and WBE design firms were awarded $3.7 million
Table 2.1 - CM at Risk and 25A Projects - Awards Reporting Postposed for FY 25 due to Preconstruction Status
This is a list of projects included in DCAMM's portfolio during FY 25, but are still too early in the process to include in the AMP 2025 award results. These are CM at Risk or Ch 25 Section 11 energy projects that are awarded in phases. These projects are still in preconstruction phases. AMP goals have been established in the contract awarded to the primes, but MBE and WBE subcontracting is still a work in progress. These will likely be included in the FY 26 AMP awards report when subcontracting is more complete.
Table 3 - Construction - No. of MBE/WBE/VBE Firms Receiving Payments - FY 2024 and FY 2025
Table 3 - Design - No. of MBE/WBE/VBE Firms Receiving Payments - FY 2024 and FY 2025
Table 3 - No. of MBE/WBE/VBE Firms Receiving Payments - FY 2024 and FY 2025 - Subtotals by Sub/Prime
Overall Totals by FY
FY 2024: 191
FY 2025: 230
Table 4 - FY 25 Payments to Veteran-Owned Construction Firms
(1) The $406M construction contract to replace the Holyoke Veterans’ Home has been awarded to a joint venture with the VBE-certified Commodore Builders holding a 50% ownership stake. $145.7 M was paid in total to this joint venture during FY 25. Under the provisions of the contract, credit for VBE payments to Commodore is limited to the scope of work actually performed by the firm and are included in the sub payments total. $3,735,406 of the $4,809,897 total VBE construction sub payments (over 75%) reflect payments to Commodore for these self performed services.
Table 4 - FY 25 Payments to Veteran-Owned Design Firms
(2) There were no payments reported to VBE prime design firms in FY 25.