The Federal Government spends $40 billion dollars a year maintaining its facility portfolio. As a result of the size of investment and current economic conditions, the government and other institutional owners are facing increased pressure to optimize their investment in their portfolios. Green design offers a way for owners to accomplish this. Part of the definition used by the General Services Administration (GSA) for sustainable or green design is minimizing the total life-cycle ownership cost of a facility. Many tools, such as BUILDER or IMPACT, are available to aid institutional owners in this task; however, most do not take into account non-rational behavior since they apply a strict rational logic. In order to develop tools that take non-rational behavior into account, a framework needs to be developed for identifying which actors are worth studying or modeling. This research seeks to fill this gap by developing a framework that can be applied to public sector institutional owners. The framework is based on prior work done in the fields of stakeholder theory and engineering management, and it uses research methodologies from the social sciences as its building blocks.