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NAVFAC P-31 8
ORGANIZATION AND FUNCTIONS FOR PUBLIC WORKS DEPARTMENTS
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APPRwEDFoRPuRlJcRElERsE
DEPARTMENT OF THE NAVY NAVAL FACILITIES ENGINEERING COMMAND ,
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NAVFAC 0525LP-024-0008 f
NAVFAC P-31 8
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ORGANIZATION AND FUNCTIONS FOR PUBLIC WORKS DEPARTMENTS
APPROVED FOR PUBLIC RELEASE
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DEPARTMENT OF THE NAVY NAVAL FACILITIES ENGINEERING COMMAND
SEPTEMBER 1985
DISTRIBUTION: Public Worka Departmenta, Center8 and Offices; Claimantr; and Shore Paciliticr Maintenance Support Activitiis
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AB5TRACT - ---
This manual describes a functionally structured public. works organization which can effectively carry-out public works functions employing the standard public works management systems described in NAVFAC MO-321 (Facilities Management), NAVFAC P-930 (Navy Family Housing Manual), NAVFAC P-300 (Management of Transportation Equipment), and NJYPAC P-307 Series (Transportation Management Manuals). Span of control, lines cf communication, organizational flexibility, and the wide range in size and type of naval shore activities are considered. Of necessity, the exact Public Works Department (PWD) organizational pattern at individual shore activities will be influenced by such factors as the size and scope of public works operations, the extent to which public works services are obtained from commercial sources, and the activity mission.
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FGREWGRD ----
This publicatior presents standards for organization and staffing of Public Works Departmcn?s that the v;.val Facilities Engfneering Command (NAVFACENGCOM) have found to be the most effective for management, operation, and maintenance of facilities and equipment. This publication supersedes NAVFAC P-318, dated hpril 1977.
Application of the principles, procedures, and techniques of the public works management systems is most effective when the assignment of authority and responsibility is made in accordance with the basic organization patterns described in this publication.
These standards are furnished to the Commands and Offices exercising management control, the Commanding Officer, the Public Works Officer, and other persons concerned with the administration and operation of Public Works Departments.
Two significant changes have been made to this revision of NAVFAC P-318.
a. The use of Facilities Support Contracts for public works services has significantly increased in the last few years. This has resulted from greater emphasis on the Commercial Activities (CA) Program, increased work requirements without additional personnel resources, and the need for specialized skills to operate and maintain more complex facilities and equipment. This shift in the way work is accomplished affects Public Works Department organization. Activities with a moderate percentage of work performed by contract should consider the formation of a Facilities Support Contracts Division. Those activities with all or nearly all work performed by contract should consider the alternate organization described in Chapter 4 of this manual.
b. The need for improved effectiveness and economy in facilities management has required changes to the Maintenance Control Division (MCD). The division has been renamed the Facilities .Management Engineering Division (FMED) and responsibilities have been redefined to put more emphasis on resource management vice work force management, and on long range planning, quality assurance, and productivity. Material management responsibilities, for material within the department, has been assigned to the FMED.
A final item worth noting is the Base Engineering Support, Technical (BEST) system which has been developed to automate the standard Public Works Management process. BEST minicomputer sub-systems have been developed to support Facilities Management Engineering, Utilities, Housing, and Transportation functions. Installation of the BEST systems will provide the means to improve performance, but does not require organizational changes.
Recommendations or comments concerning this publication are Invited and should be submitted to: Commander, Naval Facilities Engineering Command (Attn: Code lOOl>, 200 Stovall Street, Alexandria, VA 22332.
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This publication 1s cerf;.kled as i;n cjificial publication of the Command and has been revkwed and approved jn act rjrdanccr- with Secretary of the Navy Instruction 5600.16.
J. I'. JONES, JR. Rear Admiral, CEC, U. S. Navy Commander Naval Facilities Engineering Command
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CONTENTS
Chapter/ Para No. Subject Page
CHAPTERl: GENERAL
1.1 Purpose . . . . . . . . ..*........*.....*..*.............*...... l-l
1.2 Scope . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . l-l
1.3 Responsibility . . . . . . . . . . . . . . . . . . ..*..................... l-l
1.3.1 Chief of Naval Operations (CNO) ................. l-l 1.3.2 Major Claimants ................................. l-l 1.3.3 Activity Commanding Officers .................... l-l 1.3.4 Public Works Department ......................... l-l 1.3.5 Naval Facilities Engineering Command ............ l-2 1.3.6 The Naval Inspector General (I.G.) .............. l-2
1.4 Other Public Works Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . l-2
1.4.1 Engineering Field Divisions (EFDs) .............. l-2 1.4.2 Public Works Centers (PWCs) ..................... l-2 1.4.3 Public Works Lead Activities (PWLAs) ............ l-3 1.4.4 Adjacent Activities ............................. l-3 1.4.5 Contract ........................................ l-3 1.4.6 Self-Help Work .................................. l-3
1.5 Staff Civil Engineers (SCEs) . . . . . . . . . . . . . . . . . . . . . . . . . . . . l-3
1.6' Relationship With Customers . . . . . . . . . . ..*..*..*.*........ l-3
cHAPTER2: PRINCIPLES OF PUBLIC WORKS DEPARTMENT ORGANIZATION
2-l 2.1 Organization Pattern l . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
2.2 Organizational Components . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-l
2.3 Span of Control Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-l
2.4 Authority and Responsibility . . . . . . . . . . . . . . . ..*.......... 2-l .
2.5 Basic Organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-3
2.5.1 Organization Size ............................... 2-3 2.5.2 Administrative and Technical Divisions .......... 2-3 2.5.3 Production Divisions ............................ 2-3
2.6 Staffing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ...*.... 2-3
2.6.1 Military Billets ................................ 2-4 2.6.2 Civilian Positions .............................. 2-4
Vii
Chapter/ Para No. Subject
2.7 Most Efficient Organization (MEO).......................
Page
2-4
CHAPTER 3: FUNCTIONS AND RESPONSIBILITIES
3.1 Immediate Office of the Public Works Officer (PWO)...... 3-1
3.1.1 Assistant Public Works Officer (APWO) ........... 3-1
3.1.2 Activity civil Engineer (ACE) ................... 3-1
3.2 Administrative and Technical Divisions.................. 3-2
3.2.1 Administrative Division ......................... 3-2 3.2.2 Family Housing Division ......................... 3-4 3.2.3 Engineering Division ............................ 3-5 3.2.4 Facilities Management Engineering
Dlviaion (FMED) ................................. 3-8 3.2.5 Facilities Support Contract Division ............ 3-14
3.3 Production Divisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3-18
3.3.1 Division Directors .............................. 3-18
3.3.2 Maintenance Division ............................ 3-19 3.3.3 Utilities Division .............................. 3-21
3.3.4 Transportation Division ......................... 3-23
CHAPTER 4: ORGANIZATION FOR CONTRACTED PUBLIC WORKS DEPARTMENTS
4.1 General . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4-1
4.2 OIC/OICC Responsibilities ............................... 4-1
4.3 Basic Organization ...................................... 4-l
4.3.1 Administrative Division ......................... 4-1 4.3.2 Technical Management Division .................. 4-l 4.3.3 Family Housing Division ......................... 4-3 4.3.4 Facilities Support Contract Division ............ 4-3
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viii
(
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(
FIGURES
Figure Number Title Page
2-1
2-2
3-l
3-2
3-3
3-4
3-5
3-6
3-7
3-8
3-9
3-10
4-l
Standard Organization For Public Works Department With 100 or More Positions In Productlion Divisions
Standard Organization For public Works Department With Less Than 100 Positions In Production Division
Administrative Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Family Housing Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Engineering Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Facilities Management Engineering Division..............
Contract Authority For Facilities Support Contracts.....
Relationship Between Facilities Support Contract Division & NAVFAC Contracting Responsibilities
Facilities Support Contract Division....................
Maintenance Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Utilities Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Transportation Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
PWD With Significant Contract Support...................
2-2
2-2
3-2
3-5
3-6
3-9
3-15
3-17
3-18
3-20
3-22
3-24
4-2
.
ix
1.
2.
3.
4.
5.
6.
7.
8.
DODINST 4000.19R, Defense Regional Inter-service Support Regulation
SECNAVINST 531O.llD, Navy Position Management
SECNAVINST 11014.1lA, DOD Real Property Maintenance Activities Program
OPNAVINST 4100.5B, Energy Management
OPNAVINST 4860.6C, Naval Commercial Activities (CA) Program
OPNAVINST 5090.1, Environmental and Natural Resource Protection Manual
OPNAVINST 5310.15, Staff Civil Engineer/Activity Civil Engineer Functions and Assignments Policies
OPNAVINST 11000.16, Command Responsibility for Shore Activity Land and Facilities
9.
10.
OPNAVINST 11000.8F, Self Help Program for Personal Support Activities
OPNAVINST 11010.30, Formal Designation and Assignment of Responsibilities for Public Works Lead Activities (PWLAs); Procedures for
11.
12.
13.
14.
15.
16.
17.
18.
NAVFAC MO-303, Utilities Target Manual
NAVFAC MO-304, Utilities Systems Analysis
NAVFAC ~0-321, Facilities Management
NAVFAC MO-322, Volume 1, Inspection of Shore Facilities
NAVFAC MO-327, Service Contracts: Specifications and Surveillance
NAVFAC P-68, Contracting Manual
NAVFAC P-300, Management of Transportation Equipment
NAVFAC P-307, Management of Weight-Handling Equipment Maintenance and Certification
19. NAVFAC P-700 Series, Engineered Performance Standards Handbooks
20. NAVFAC P-930, Navy Family Housing Manual
21. NAVFACINST 4330.45, Facilities Support Contracts; Administration of
22. NAVFACINST 5450.21, PWC Organization and Functions
23. NAVFACINST 11010,64A, Major Claimant Support; responsibilities for
REFERENCES
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CHAPTER 1 GENERAL
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1.1 PURPOSE. This publication is a guide for the establishment and operation of uniform Public Works Department (PWD) organizations. This organizational guidance will help accomplish the management and operation of public works using government forces and contractors.
1.2 SCOPE. Organizational patterns and functions described in this publication apply to all Public Works Departments. Specific mission requirements and workload will govern selection of the organizational pattern best suited to a particular field activity. Experience has shown that the following public works organizational components consistently support effective public works management:
(1) Administration (2) Family Housing (when needed) (3) Engineering (4) Facilities Management (5) Production (Maintenance, Transportation, Utilities) (6) Contracts Administration
The sixth organizational component, Contracts Administration, has been added as a result of increased reliance on contracting for public works services. Contract support has become an essential element in the execution of public works functions.
1.3. RESPONSIBILITY.
1.3.1 Chief of Naval Operations (CNO). The CNO is responsible for programming and budgeting the resources needed to acquire, operate, maintain, and dispose of land and facilities under CNO command; and for establishing related general policies, responsibilities and procedures, and monitoring their execution.
1.3.2 Major Claimants. Major Claimants are responsible for managing land and facilities under their command and ensuring that adequate public works services and resources to support mission requirements are provided. (OPNAVINST 11000.16).
1.3.3 Activity Commanding Officers. Connnanding Officers are responsible for the overall physical condition of the activity. They assure that sufficient resources are available for maintenance and operation of facilities, utilities, and transportation.
1.3.4 Public Works Department (PWD). PWDs are service organizations which provide a broad range of technical support and professional services to fleet and shore commands. Functions which PWDs perform:
(1) Facilities planning and programming (2) Real Estate management (3) Facility design and construction (4) Facilities maintenance, repair, minor construction, alteration,
demolition, and equipment installation
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(5) Utilities system operation and maintenance (6) Facility disposal (7) Transportation fleet management, operations and maintenance (8) Weight Handling Equipment maintenance management and certification (9) Family Housing Administration
The colt purpose of a public work organization is to provide quality products and services in a cost efficient and responsive fashion to those commands supported. The ertcnt to which this is done provides a direct measure of the effectivanese of a PWD.
1.3.5 Naval Facilities Engineering Command (NAVFACENGCOM). The Command provides the Naval Shore Establishment with public works guidance, develops management systems, and provides contract support for facilities related - functions.
1.3.6 The Naval Inspector General (1.G.). The I.G. reviews the effectiveness and efficiency of public works organizations as part of field activity inspections. Recommendations by the I.G. as to organizational alignment and/or functional assignments should be based on guidance provided in this manual and tempered with documented mission peculiar requirements.
1.4 OTHER PUBLIC WORKS SUPPORT. It may be more economical to obtain all or some public works functions from qualified sources other that the PWD. To avoid duplication and to optimize levels of highly specialized skills and knowledge, public works services may be prcvided by other organizations.
1.4.1 Engineering Field Divisions (EFDs). There are six EFDs (Northern, Chesapeake, Atlantic, Southern, Western, and Pacific) supporting the Shore Establishment in specific geographic areas. They provide technic21 assistance, management system implementation and contract support in all facets of the planning, design, construction, operat-ton, maintenance, and repair of facilities, utilities, and pollution abatement. F.FDs also prov?de public works technical and management support to mejor claimants including conducting Facilities Evaluation and Assistance Team (FFAT) visits to evaluate public works performance on behalf of the Claimant (NAVFACINST 11010.64). Other areas of support provided by EFDs include:
1.4.1.1 Family Housing. Five of the six %FDs (Northern, Atlantic, Southern, Western, and Pacific) have Family Housing Divisions. These divisions provide specific support, guidance, and funding to activities having family housing. Housing support for activities in the Chesapeake Division geographic area is provided by Northern Division.
1.4.1.2 Transportation. Transportation Equipment Management Centers (TEMCs) are located in four EFDs (Chesapeake, Atlantic, Pacific, and Southern). TEMCs serve activities on a major claimant-basis, except that the Western Division provides the Weight Handling Equipment program support for all west coast activities.
1.4.1.3 Contract Support. Authority and responsibility for public works functions resides in activity Commanding Officers and the major claimant. Authority and responsibility for contract support, on the other hand, is held by NAVFA'XNGCOM. Contract authority is delegated to qualified persons in the EFDs and contract field offices. The head of these contract offices, commonly
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l-2
called the Officer in Charge of Construction/Officer in Charge (OICC/OIC> may, :n many cases, be the PWO who is responsible to the EFD Commanding Officer IJhen acting in this capacity.
1.4.2 Public Works Centers (PWCs>. PWCs are established in areas of naval activity concentration to provide public works services. They are separate Commands which operate under the Naval Industrial Fund (except PWC Yokosuka which is O&M,N funded) and charge for services provided. Those activities near, but not normally supported by a PWC, may find the Center to be a timely, competent, and economical source of support for selected or specialized work.
1.4.3 Public Works Lead Activities (PWLAs). PWLAs are CNO-designated PWDs at Naval shore activities which provide a full spectrum of public works services. The type and extent of services provided should be documented in Intra-Service Support Agreements (ISSAs) executed between the PWLA and supported activities. OPNAVINST 11010.30 establishes PWLA responsibilities.
1.4.4 Adjacent Activities. Other nearby activities should be considered as a possible source of public works support, particularly for smaller activities. A consolidation of functions between these activities should be considered to achieve the most economical method of operation.
1.4.5 Contract. Facilities Support Contracts (FSC) are often used to supplement in-house work forces to satisfy peak workloads or obtain specialized services. Commercial Activities cost studies required by OMB Circular A-76 will also result in FSCs when contract performance is more economical.
1.4.6 Self-Help Work. The self-help program is a method of performing maintenance, repair, and/or construction on personnel support facilities by non-PWD personnel. OPNAVINST 11000.8 sets the policies and responsibilities for the development and execution of a local self-help program.
1.5 STAFF CIVIL ENGINEERS (SCEs). SCEs are Civil Engineer Corps (CEC) Officers assigned to shore activities not having a Public Works Department and receive public works support from PWLAs or PWCs. These officers provide expertise in the planning, programming, and budgeting of resources for public works services and development of facility maintenance execution plans (see OPNAVINST 5310.15).
1.6 RELATIONSHIP WITH CUSTOMERS. The PWD is a full-spectrum service organization charged with providing public works support for military missions. The Public Works Officer (PWO) and staff must strive for a good working relationship between the PWD and its customers, the other activity departments, and supported commands. A pro-active role should be maintained, effectively supporting existing requirements and anticipating new requirements. The department should be continuously searching for and evaluating new ways to provide improved services.
l-3
CHAPTER 2 PRINCIPLES OF PUBLIC WORKS DEPARTMENT ORGANIZATION
2.1 ORGANIZATION PATTERN. The activity mission, civilian personnel ceiling, officer allowance, and position management policies influence the PWD organizational pattern. The objective is to establish the most efficient and effective organization with a minimum of intermediate components or layers of supervision.
2.2 ORGANIZATIONAL COMPONENTS. A department is the first organizational subdivision within a field activity. Departments are established to perform clearly defined major functions, or functions that are closely related. Management and operation of public works are functions performed by the PWD. Organizational components which may be established within a PWD are:
(1) Divisions (2) Branches (3) Work Centers (4) Sections (5) Units
2.3 SPAN OF CONTROL POLICY. Span of control refers to the number of subordinates and/or components that a single manager can effectively manage. Span of control should be broad enough to avoid organizational fragmentation, yet narrow enough to provide managers with full control over subordinates. First line supervisors should be responsible for the work of at least three professional personnel performing the basic work of the segment supervised. Ten or more can be supervised where personnel require little management attention, policies and procedures are well established, and the workload is stable. Supervisors above first line should manage at least two organizational components. Deviation from this policy should be critically reviewed when planning or reviewing PWD organizations. The Navy's Position Management Program, as directed by SECNAVINST 5310.11, provides further information on span of control policy.
2.4 AUTHORITY AND RESPONSIBILITY. Assignment of responsibility to organizational components and individuals must be accompanied by delegation of sufficient authority to respond to that responsibility. Authority should be delegated to the lowest component where information is available to make decisions. An effective technique for successful decentralized management is for organizational components to establish clearly defined objectives with each objective having attainable goals identified. Determination of objectives and related goals should be a joint effort between the component , and the next higher level. Goals for first line components should be quantitative. This allows for clear measurement of progress toward meeting goals and achieving the ultimate objective. Responsibilities common to all managerial levels include:
(1) Implementation of the policies and directives issued by the PWO and other appropriate authorities applicable to the conduct of PWD business;
(2) Assuring compliance with regulations governing the budgeting, accounting and expenditure of public money and material;
2-l
PUBLIC WORKS OFFICER
ASSIST PUBLIC WORKS OFFICER
1
I FACILITIES PLANNING OFFICER
I
r ADMINISTRATIVE ’ DIVISION
1 HOUSING ENGINEERING FAClLlTlES S”PPDRT FACILITIES MANAGEMENT DIVISION DIVISION CONTRACTS DIVISION ENGINEERING DIVISION
I
SHOPS ENGINEER
1
p-i&E-J [F&-j (, ‘IF PUBLIC WORKS LEAD ACTIVITY
“OPTIONAL-DEPENDENT ON SIZE OF WORKFORCE AND OFFICER STAFFING
FIGURE 2-l Standard Organization for Public Works Department
With 100 or More Positions in Production Divisions
t PUBLIC WORKS OFFICER
ASSIST. PUBLIC WORKS OFFICER L
I rADMINISTRATIVE
DIVISION
I I I
I
HOUSING FACILITIES PRODUCTION DIVISION DIVISION DIVISION
FACILITIES n MANAGEMENT
MAINT. & UTILITIES
ENGR BRANCH BRANCH
FACILITIES
( i=T t i-,4-,
FIGURE 2-2 Standard Organization for Public Works Department
With Less than 100 Positions in Production Division
2-2
(3) Assuring that the products and services provided fulfill PWD, customer, and mission requirements in terms of cost, response, and quality of work;
(4) Assuring that subordinates perform assigned duties and responsibilities in an efficient and effective manner; and
(5) Reviewing and evaluating work methods, work assignments, and staffing and initiating actions that will reduce costs or increase productivity.
2.5 BASIC ORGANIZATION. This publication provides organizational guidance that is to serve as a basis for developing site specific PWD organizations. Basic organizations are shown in figures 2-l and 2-2. The functional components of each of these organizations consist of the Administrative, Technical, and Production Divisions. These organizations are applicable to PWDs which perform a significant portion of production workload with in-house government work force. Chapter 4 discusses requirements and presents a basic organization for PWDs which are substantially or totally supported by contract.
2.5.1 Organization Size. Traditionally PWDs have been categorized as large, medium, and small based on the size of the work force. As contract support increases this categorization becomes less meaningful, although the size of the work force does influence the organization.
2.5.2 Administrative and Technical Divisions. Administrative and technical components are:
(1) Administrative (2) Family Housing (3) Engineering (4) Facilities Management Engineering (5) Facilities Support Contracts
2.5.3 Production Divisions. Production components are:
(1) Maintenance (2) Utilities (3) Transportation
2.6 STAFFING. Staffing standards for PWDs are established by CNO through the Navy Manpower Engineering Center. Staffing requirements will vary among PWDs due to several factors. These factors include:
(1) Age of plant (2) Dispersion of activity (3) Tempo of activity operations (4) Complexity of activity operations (5) Geographical location (6) Amount of PW funding (7) Current plant replacement value (8) Contract support (9) Manufacture or purchase of utilities
2-3
2.6.1 Military Billets. The number and rank of military billets at a PWD are derived from consideration of the above factors as well as the following:
(1) Additional PWO duty orders (2) Contract authority (3) Rank structure of station (4) Enlisted staffing
2.6.1.1 Public Works Officer (PWO)/Assistant Public Works Officer (APWO). The PWO and APWO are Civil Engineer Corps (CEC) officers designated by Naval Military Personnel Command orders. The PWO should have experience in public works and contracting. Public works experience is also important for the APWO.
2.6.1.2 Facilities Planning Officer. The Facilities Planning Officer billet should be established at larger PWDs. This billet:
(1)
(2)
Gives the activity an increased ability to do future planning by providing an added skilled resource (planning has frequently been an under supported, low priority function) and
Provides CEC officers with a billet in which they can utilize their engineering education and experience and learn the Navy's Shore Facilities Planning System (SFPS).
2.6.1.3 Activity Civil Engineer (ACE). The ACE, a CEC officer or civilian on the PWLA staff, serves as the principal liaison between the PWLA and other activities which receive public works support and who do not have a PWO or SCE. OPNAVINST 5310.15 provides additional detail.
2.6.1.4 Other Billets. Other military billets may be established at PWDs where circumstances require and to provide developmental experience for CEC officers in public works management. Such billets should have specific functions and responsibilities and not be "special assistant" type positions. Public Works Commercial Activities/Facilities Support Contracting Officers, Shops Engineers, and Utilities Plant Engineers are examples of billets which may be established.
2.6.2 Civilian Positions. Civilian ceiling authorizations are provided through the command chain. Position classification is done by the local Naval Civilian Personnel Office.
2.7 MOST EFFICIENT ORGANIZATION (MEO). Activities are responsible for development and implementation of MEOs that provide the most economical means of achieving assigned mission. Commercial Activities (CA) and Defense Retail Inter-service Support (DRIS) are programs that critically review selected functions for performance efficiency. These reviews have the potential to result in conversion of work to contract or the consolidation of functions with other DON/WD Activities. These programs are implemented by OPNAVINST 4860.6 and OPNAVINST 4000.19'respectively. The nature of most public works and public utilities functions are such that these programs are applicable. Guidance provided in this and other referenced publications will assist activities in developing a public works ME0 that is both cost and performance competitive with any other activity or commercial sources.
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cHAPTER3. FUNCTIONS AND RESPONSIBILITIES
3.1 IMMEDIATE OFFICE OF THE PUBLIC WORKS OFFICER (PWO). The PWO 18 a CEC officer responsible to the Commanding Officer for PWD organization, operations, administration, and supervision. This includes planning, design, construction, maintenance, and repair of shore facilities; safety certifications; and environmental matters. The PWO is responsible for the operations of public works and public utilities and normally serves as the Energy Conservation Program Coordinator for all Activity Department8 unless this is otherwise assigned by the Commanding Officer. The PWO is usually designated by the Commanding Officer as the certifying officer for all Weight Handling Equipment (WHE) for which the activity has custody or maintenance responsibility. Depending on size of the PWD, contract workload, and other local factors, the PWO may be designated as head of the NAVFAC Field Contract Office by the Commanding Officer of the geographic EFD. Duties are performed in accordance with the technical standards promulgated by NAVFAC, the EFDs, the Claimants, and the Activity. The PWO will have such officer assistants as may be assigned by the Naval Military Personnel Command or by the Commanding Officer.
3.1.1 Assistant Public Works Officer (APWO). The APWO assists the PWO in the accomplishment of the departments assigned mission and is .normally responsible to the PWO for the day-to-day operation and coordination of the organizational components of the PWD and acts in the absence of the PWO. The APWO is a CEC officer.
3.1.2 Activity Civil Engineer (ACE). A PWLA will designate one of its CEC officers or civilians as ACE to provide facilities management staff support to activities which do not have a PWOs or SCEs. OPNAVINST 5310.15 provides information on the functions and assignments of SCE and ACE. For activities supported, the ACE:
(1) Provides technical assistance in public works matters, including facility planning requirements, p ublic works budget preparation, and expenditure plan development
(2) Assists in the formulation and preparation of Basic Facilities Requirement8 (BFRs), Backlog of Maintenance and Repair (BMAR), Military Construction (MCON) projects, and special projects
(3) Provides interface between customers and PWD components, and coordinates public works services provided
(4) Reviews public works-billings to.activities served and periodically reviews fund status
(5) Assists customers in definition of work scope and preparation of work requests and inspects services for satisfaction of customer requirements
(6) Assists activities in Utilities Conservation Program
(7) Prepares customer activity correspondence regarding public works matters
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(8) Provides customer orientation and training in PWD management and operations
(9) Assists in developing IntrcrSarvicc Support Agreements (ISSAs) and Facilities Support Cantracts
3.2 ADMINISTRATIVE AND TECHNICAL DIVISIONS.
3.2.1 Administrative Division. The Administrative Division (Figure 3-l) provides administrative, personnel, financial, and managerial support to the department. Branches listed below should be established in large PWDs. Consolidation into fewer branches should be considered for medium and small PWDS.
I ADMlNlSTfWIVE DIVISION I
I I PERSONNEL BRANCH
I OFFICE SERVICES BAANCH
4
I I
FINANCIAL BRANCH I MANAGEMENT ANALYSIS BRANCH
Figure 3-l Administrative Division
3.2.1.1 Personnel Branch. The Personnel Branch relies upon the Civilian Personnel Office for technical personnel services and the Branch should not duplicate any services which that office provides. The Personnel Branch Is responsible for:
(1) Maintaining liaison with the field activity Civilian Personnel Office for all personnel actions and other offices (i.e. Safety, Base Security, etc.) that provide personnel eupport functions
(2) Managing the departments Position Management Program including the administration of assigned civilian ceiling and maintaining the PWD manpaaer list,
(3) Maintaining civilian timekeeping records
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3.2.1.2 Office Services Branch. The Office Services Branch is responsible for:
(1) Procurement and distribution of office supplies, furniture, and office equipment
(2) Management of PWD bulld!_ng space
(3) Stenographic, reproduction, and typing pool services
(4) Correspondence, forms, reports, and directives control
(5) Control of classified material and maintenance of Central files
(6 > Messenger service
(7) Technical library
(8) Other internal office services
3.2.1.3 Financial Branch. This Branch maintains accounting controls on PWD Expense Operating Budgets and provides financial control of job orders written against such budgets. Functions performed should not duplicate functions of the activity fiscal office. Large PWDs may find it necessary to establish sep- arate budget and finance components. The Financial Branch is responsible for:
(1) Developing, coordinating, and presenting budgets
(2) Fiscal auditing and accounting
(3) Technical accuracy of job order accounting data and assuring the work described Is properly chargeable to the accounting data cited and that funds are available
(4) Recording and periodic inventory of personal property in the custody of PWD
(5) Providing accounting data for all job orders
3.2.1.4 Management Analysis Branch. The Management Analysis Branch provides management support to all components in the PWD. This branch is responsible for:
(1) Conducting internal management analysis studies
(2) Serving as the PWD focal point for Commercial Activities cost comparison studies
(3) Coordinating the PWD productivity improvement program
(4) Maintenance of reports and records and preparation of statistical reports, charts, and graphs, as required
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(5) Advise the PWO on areas that require follow-up and corrective action
(6) Providing technical support for PWD automation and word processing systems
(7) Assist in department implementation of policies, directives and programs as directed by the PWO and other appropriate authorities
3.2.2 Family Housing Division. Each field activity having family housing management responsibilities will have a central Family Housing Office. The Family Housing Division (Figure 3-2) is responsible for management of all aspects of family housing. Subdivision into branches, as shown in Figure 3.2, is justified when the staff is eight or more. The Family Housing organization is headed by a Family Housing Manager. At small activities it may be a staff office to the PWO. The Family Housing Division is responsible for:
(1) Conducting housing requirements surveys
(2) Rogramming housing acquisitions
(3) Planning for operation, maintenance, repairs, alterations, and improvements and translating those plans into budgetary requirement6
(4) Identifying deficiencies through the Maintenance and Repair Inspection Program (MARIP)
(5) Controlling, issuing, and repairing household furniture and equipment
(6) Monitoring assignment and utilization of housing units, managing rentals, leasing of housing units, and administering housing referral services
(7) Conducting occupancy and habitability inspections
(8) Implementing and monitoring occupant maintenance and self-help programs
(9) Mediating occupant complaints
(10) Preparing and/or reviewing housing reports such as inventory and utilization, housing referral, and financial
(11) Promoting resource conservation
(12) Maintaining liaison with local authorities, real estate organizations, and community groups
(13) Advising the PWO on family housing related matters
(14) Serving as the functional manager for the BEST Family Housing Subeys tern
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c I FAMILY HOUSING DIVISION
I 1 I I
PERSONNELSUPPORTBRANCH FACILITIES MANAGEMENT BRANCH
Figure 3-2 Family Housing Division
3.2.2.1 Personnel Support Branch. The Personnel Support Branch performs functions of an administrative nature dealing primarily with the assignment of personnel to Navy housing or the location of suitable housing in the civilian community. This Branch is responsible for performing the following functions:
(1) Housing referral service (2) Housing and Urban Development (HUD) Program (3) Assignment and termination (4) Requirements survey (5) Leasing acquisition/certification (6) Inventory and utilization (7) Collections
3.2.2.2 Facilities Management Branch. The Facilities Managenent Branch performs functions related to the physical condition of Navy housing and equipment and meeting occupant needs related to the housing unit. This Branch is responsible for performing the following functions:
(1) Financial management (2) Maintenance management (3) Special Projects (4) Occupancy inspections (5) Resources conservation (6) Community support facilities (7) Furnishings (8) Occupant relations
3.2.3 Engineering Division. The Engineering Division (Figure 3-3) provides public works engineering services including facilities planning, production support, and engineering studies. For large or specialized requirements, the
.geographic NAVFACENGCOM EFD will support or perform design and preparation of related specifications, engineering investigations, and technical review of proposed plans or specifications. The Engineering Division is responsible for:
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(1) Engineering studiee and reports with respect to public works, public utilities, and environmental protection
(2) Preliminary engineering studies and estimates for Special Projects
(3) Engineering design, including development of plans and specifications
(4) Field engineering, including hydrographic and subsurface surveys
(5) Maintenance of technical plan files and records
(6) Participation in selection and negotiation of architect and engineer (A&E) firma and review of completed work
(7) Engineer in Charge (EIC) support for A&E contracts
(8) Preparation of Shore Facilities Planning reports and for the submission of basic data required by the geographic EFDs for preliminary engineering studies, including envirornnental impact analysis and project economic analysis
I ENGINEERING DIVISION
I
I I 1
FACILITIES PLANNING BRANCH PRODUCTION ENGINEERING BRANCH 1
'Staff position may be justified at larger activities, or those with complex industrial operations.
Figure 3-3 Engineering Division
3.2.3.1 Organizational Elements. The Engineering Division may be organized into two branches, Facilities Planning and Production Engineering, whenever justified or required by the workload, workload priority assignments, and/or Production Division support, Further organizational breakdown by traditional engineering disciplines or functions may be required due to technical
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complexity. Engineer-in-Charge or Team Leader approaches can be effective and avoid further orgad8ational and supervisory layers. PWDe with limited workload and staffing should combine the Engineering and Facilities Management Engineering component8 in a single Facilitie8 Division (See Figure 2-2 and Paragraph 3.2.4.4).
3.2.3.2 Facilities Planning Branch. Facilitie8 Planning Branch is reeponeible for:
(1) MCON planning
(2) Station planning program8
(3) Special Project preparation
(4) Other engineering programs and evaluation8
3.2.3.3 Production Engineering Branch. Production Engineering Branch is responsible for:
(1) Engineering consultation, investigation and design directly supporting maintenance, repair, and alteration work accomplished with in-house forces or by contract
(2) Preparation of Performance Work Statement8 requiring engineering support
3.2.3.4 Energy Resource8 Management. Each shore activity has been directed to establish a focal point for energy matters throughout the Command. Depending upon the size and mission of the activity, this function may or may not be contained within the PWD. In either case, the activity energy coordinator will require strong support from the PWD. At large activities using significant quantities of energy, establishment of an energy conservation engineer position is justified and encouraged. This po8ition may be assigned to the Engineering Divi8ion as a staff office due to its close association with facilitie8 design and project preparation and availability of technical support. This position may be given special emphasis through formal designation as principal advisor for energy matters to the PWO, the activity energy coordinator, o r the energy committee. Close coordination with other divisions of the PWD and with other departments will be required. For further information refer to OPNAVINST 4100.5. Major duties are:
(1) Technical assistance to all activity component8
(2) Contingency planning
(3) Assistance in planning and programming all resources for improvement8 related to energy conservation and improved reliability of energy source8
(4) Identification and support of maintenance and repair work for energy conservation
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(5) Monitoring energy consumption trends, targets, and reporting procedures
(6) Technical support to the overall activity conservation program including user awareness, publicity, procedures, and directives
3.2.3.5 Environmental Program Management. Each shore activity has been directed to establish a focal point to coordinate environmental matters and hazardous material management programs for the Command. This function is ordinarily assigned to the PWD which has other reSpOnSibilitie8 for most environmental operating systems. At small activities, without complex industrial operations, this function should be assigned to the Engineering Department as the principle or collateral duty of a qualified chemist or engineer. At large activities with significant industrial operations and extensive hazardous materials management requirements, this function should be established as a staff office in the Engineering Department. Close coordination with other diViSiOn8 of the PWD and with other departments and tenant organizations will be required. For further information refer to OPNAVINST 5090.1. Major reSpOnSibilftfe8 are:
(1) Coordinate and cooperate with federal, state, and local pollution control agencies with respect to control and abatement of pollution, obtain environmental operating permite, and coordinate environmental matters with the EFD
(2) Develop plan8 and program8 for environmental quality management and monitor execution
(3) Uentify and maintain current information concerning operations iffecting environmental quality
(4) Provide for identification of environmental deficiencies and initiate preparation of documentation, including Pollution Control Report (PCR) exhibits, for corrective action
(5) Implement a hazardous material and wastes management plan, monitor disposal prOCedUre8, submit reports, and train personnel involved in hazardous waste operation8
(6) Aesure that handling, storing, mixing, and inspection of Polychlorinated Biphenyl (PCB) item8 is accomplished in accordance with directives, maintain an inventory of PCB items, and coordinate PCB disposal
(7) Maintain spill contingency plans, monitor compliance action and assure that required reporting of incident8 is accomplished
(8) Provide technical assistance to all activity components on environmental matter8
3.2.4 Facilities Management Engineering DiViSiOn (FMED). The FMED (Figure 3-4) controls, coordinatee, and evaluates all PWD real property maintenance actions. The-FMED is based on the concept that this control, coordination, and evaluation is better administered when assigned to a staff division rather
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WHE INSPECTION AND TEST STAFF
I I
WORK GENERATION BRANCH WORK MANAGEMENT BRANCH
\
INSPECTION BUDGET 8 I 1
SECTION RESOURCE PLANNING SEC. .
PLANNING 8 WORK RECEPTION I , ESTIMATING 1
SECTION ’ 8 CONTROL SECTION
Figure 3-4 Facilities Management Engineering Division
than to a production division. Execution of the Facilities Management System as described in NAVFAC MO-321, "Facilities Management", is the basic responsibility of the FMED. Specific responsibilities include:
(1) Establish and execute a Shore Facilitie8 Inspection (SF11 Program as described in NAVFAC MO-322, Vol. I, to identify maintenance and repair requirements and to prepare the Type "A" Annual Inspection Summary
(2) Develop annual and long range maintenance plan based on known work requirement8
(3) Determine requirements for maintenance and minor construction budgets and make recommendation8 to the PWO for funding of special maintenance, alteration, and repair projects when indicated by recurring or costly maintenance experience8
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(4) Receive, screen, and classify all work requests including inspection reports and emergency/service calls and approve maintenance work within liaita specified by the PWO
(5) Prepare scoping estimates for jobs that require customer approval and to aid budgeting and maintenance plan development
(6) Prepare job plans for in-house accomplishment of work including manpower estimates based on Engineered Performance Standards (EPS)
(7) Prepare Shop Load Plans and issue work authorization8 in accordance with those plans
(8) Identify work for contract performance, coordinate accomplishment with the Contracts Division and monitor progress
(9) Develop contract performance work statements not requiring Engineering Division support
(10) Provide customer liaison on facilities maintenance support and advise customers of status
(11) Develop and execute a quality assurance (QA) program to monitor in-house work performance for compliance with work order requirements, quality of work, and adherence to established work schedules
(12) Evaluate in-house work performance including analysis of completed work not conforming with plans and/or cost estimates
(13) Identify and manage productivity improvement initiatives for facility maintenance and advise the PWO of potential for shop productivity improvement8
(14) Serve as the functional manager for the BEST Maintenance Sub-system
(15) Record and report real property inventory data
(16) Serve as overall facilities maintenance advisor to PWO
(17) Manage a weight handling equipment maintenance program and provide technical support to the cerifying official
3.2.4.1 Components. The FMED is normally subdivided into Work Generation and Work Management Branches. Branches should not be established unless there is a requirement for five or more employees in each.
3.2.4.2 Work Generation Branch. The Work Generation Branch has respon8ibility for inspection, planning and estimating, and material identificatioh and requieition.~ These-functions may be performed by the same personnel organized by trade or specialty, or the functions can be organizationally separated.
(1) Inspection. This function provides administration of the SF1 system a8 described in NAVFAC M0-322 “Inspection of Shore Facilities” and include8 :
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(a>
(b)
Develop Control Inspection and Preventive Maintenance Inspection (I'MI) schedules based on mission importance, recommended inspection frequencies, and resource availability
Establish a Control Inspection Program, perform control inspections in accordance with established standards and schedules, and prepare inspection reports reflecting the physical condition of facilities and equipment
cc> Assist Work Management Branch in preparing the Type "A" Annual Inspection Summary
Cd) Establish and maintain technical control of PMI performed by the Production Divisions
(e) Manage a program for trackage, elevator, boiler, and other special emphasis inspections and perform such inspections with assistance from Production Divisions as needed
(f) Record and report real property inventory data
(2) Planning and Estimating. The Planning and Estimating function consists of the preparation of job plans and estimates for work generated by the SF1 system or by work requests which are to be accomplished by the production divisions. Specific duties include:
(a>
(b)
cc>
Cd)
(e>
(f)
Prepare job plans including manpower and material cost estimates (manpower estimates are based on EPS provided in NAVFAC P-700 manuals)
Identify material required for all planned work
Prepare scoping estimates
Compile local cost data and other job estimating information to improve estimates for labor and material costs
Prepare performance work statements for Facilities Support Contracts when Engineering Division technical support is not required
Prepare cost estimates for contracts as required by the Facilities Support Contracts Division
(3)
3.2.4.3
Material Identification and Requisitioning. At large departments, or where there is an exceptionally large volume of ordered material, the establishment of a separate material control component should be considered for the preparation of requisition and issue documents.
Work Management Branch. The Work Management Branch is re8pOnSible _ - _-_. for evaluating facilities maintenance requirements, preparing execution plans,
and determining resource requirements. Specific reSpOnSibilitie8 by major functional categories are:
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(1) Budget and Resource Planning. This function provides work and resource planning to include:
(a> Prepare budget and POM requirements for facility maintenance and minor construction
(b) Develop and administer a standard work priority system
(c> Develop annual and long range maintenance plans
(d) Prepare type "A" Annual Inspection Summary
(e) Prepare Shop Load Plans
(f) Coordinate and participate in work force planning for facilities maintenance with Production Divisions
(2) Work Reception and Control. This function provide8 controls for the step-by-step processing of work requests, inspection reports, job orders, and emergency/service work authorizations. Specific responsibilities include:
(a) Provide customer liaison
(b) Receive, screen, classify, and record all inspection reports and work requests including emergency/service
Cc) Forward inspection reports and work requests to the Engineering Division and/or Planning and Estimating, as appropriate, for required action
Cd) ISSUeS job orders for execution by Production Division in accordance with Shop Load Plans
(e) Maintain statue information for all inspection report8 and work requests from receipt to completion/cancellation for both internal and customer use whether accomplished by in-house work force or contract
(3) Analyses and Productivity. This function involve8 the appraisal of shop performance and identification of productivity improvements. Specific duties include:
(a) Develop indicator8 to monitor in-house work performance and specify target performance levels
(b) Conduct evaluations of in-house work performance including variances from job estimates or schedules, analyze trends, investigate identified problems, review work practices and shop procedures, and conduct productivity studies
cc> Develop a quality assurance (QA) program to monitor in-house performance, conduct QA, analyze collected data, and report results to the Director, FMED
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(d) Manage productivity improvement initiatives directed at facilities maintenance
3.2.4.4 Weight Handling Equipment (WEE) Inspection and Test Section. Activities having WEE should establish an organizational component, separate from the Transportation Division re8pOnSible for maintenance management of all WHE for which the activity has custody or maintenance re8pOnSibility. This component provide8 technical support to the certifying official for the certification of WEE. This component may be a staff element of, or if warranted by the number and/or type of WHE, a branch within the FMED. Activities with a limited number of conventional types of equipment may consider assigning this function to the Inspection Section, Work Generation Branch. NAVFAC P-307, Volume 1 (which supersedes WEE guidance provided by the P-3001, establishes requirement8 for WHE maintenance management and certification. Functional responsibilities include:
(1) Schedule, direct, and conduct periodic maintenance inspections, condition inspections, and load testing in accordance with prescribed procedure8 and frequencies. This include8 post inspection, test, ard acceptance of all authorized repairs performed.
(2) Specify, initiate, and authorize the accomplishment of all repair actions on the load bearing and load controlling components.
(3) Initiate requests to the Engineering Division fortechnical support for modification8 or alteration to WEE.
(4) Document all inspection and test actions and maintain appropriate equipment history record files.
(5) Conduct periodic audits of operators' daily checklists and observations of performance of daily operator checks.
(6) Train inspectors to ensure that technically competent personnel to perform inspections and test on WEE.
(7) Provide inspection and test data required to certify WEE to the certifying official.
(8) Maintain status of maintenance inspection8 and certifications on all WHE and advise the certifying official of any unusual conditions.
(9) Participate in the investigation of all WEE accidents, and, as appropriate, recommending changes to procedure8 and methods for improving operation and maintenance of WEE.
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3.2.4.5 Alternative Organization. PWDs having less than 100 total personnel or the combined equivalent with contract support in the Maintenance and Utilities Branches should consider placing the Facilities Management Engineering and Engineering Division8 into one Facilities Division (See Figure 2-Z). Experience has shown that the workload is not of sufficient scope and quantity to justify establishment of two director positions at a grade level which will attract well qualified personnel. By combining the division8 the field activity will be in a better position to secure a qualified engineer to supervise the facilities management and engineering functions. ActiVitieS having over 100 total personnel in the Maintenance and Utilities Divisions including equivalent personnel obtained by Facilities Support Contracts, should not combine the Engineering and Facilities Management Engineering Divisions. The scope and quantity of work in each area requires a full-time director and should be sufficient to obtain the grade level necessary to attract qualified directors for both divisiona.
3.2.5 Facilities Support Contract Division. This Division provide8 the day-to-day administration of Facilities Support Contracts. These are maintenance service, indefinite delivery maintenance construction, and combination maintenance service/maintenance construction contracts awarded by a NAVFACEWGCOM Contracting Officer. Frequently the PWO will have additional duty as the Bead of the local Contracting Office (OIC/OICC). It is NAVFACENGCOM policy that, when practical and subject to the concurrence of EFD Commander8 and activity Commanding Officers, field acquisition authority and organization be consolidated under the appropriate Public Works Officer. While the OIC/OICC has overall re8pon8ibility for contract administration, some specific reSpOnSibilitie8 as identified in 3.2.5.2 are assigned to the activity (NAVFACINST 4330.45). Figure 3-5 shows the contract authority chain in relation to operational command lines. When activity re8ponsibilities require five or more pereonnel'a Contract Division should be established. When contract support is limited these reeponsibilities may be aSSigned as staff to the PWO in lieu of establishing a division. Regardless of the organizational placement of the Facilities Support Contract8 component, care must be exercised to ensure the integrity of the contractual process.
3.2.5.1 OIC/OICC Re8pon8ibilitie8. The OIC/OICC is r88pOnSible for ensuring that procurement and contract admini8tration are carried out in accordance with the Federal Acquisition Regulation (FAR), NAVFAC'e Contracting Manual (NAVFAC P-681, and other pertinent regulations. Definition8 which assist understanding the role of a shore activity in FSC administration are:
(1) Procurement. The process of selecting a contractor, awarding a contract, making payments, issuing modifications, and contract close out are Contracting Officer functions carried out for the OIC/OICC by procurement profe88ionals. Procurement include8 the maintenance of bidders lists; conduct of pre-bid conference8 and site visits; receipt, opening, and evaluation of bids; conduct of pre-award surveys; issuance of contract modifications; issuance of Contractual document8 obligating funds; certification of contract payment vouchers; maintenance of the official contract file; issuance of final releases; and resolution of contractor claims.
?
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OPERATIONAL CHAIN CONTRACT AUTHORITY CHAIN
? v .
SECNAV SECNAV
,
CNO ONAS*
MAJOR CLAIMANT NAVFAC
,
SUB- CLAIMANT
EFD
I
ACTIVITY
PWD
CONTRACTlNG
*OFFICE FOR NAVAL ACQUlSlflON SUPPORT (ONAS)
Figure 3-5 Contract Authority for Facilities Support Contracts
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(2) Contract Administration. The process of assuring that a contractor provides that which is required under a contract and includes monitoring contractor progress, performing quality assurance, providing or obtaining technical reviews and approvals, and advising the OIC/OICC, the Contracting Officer, and others on matters related to contractor performance. Contract administration for Facilities Support Contracts is performed by activity personnel under authority delegated by the OIC/OICC.
3.2.5.2 Division Responsibilities. The day-to-day Facilities Support Contract administration and interface with contractors is performed by this Division. Specific responsibilities include:
(1) Assist in development of performance work statements
(2) Develop Quality Assurance (QA) plans in conjunction with contract performance work statement development
(3) A88iSt in development of the government estimate and in requesting wage determination8
(4) A88iSt at the pre-bid conference and with the pre-award survey
(5) Make' recommendations on certification of payments, deduction8 from payments, and issuance of contract discrepancy reports (CM0
(6) Prepare and process work authorizations on indefinite delivery contracts for requirement8 identified by functional sponsors
(7) Perform quality assurance inspection, notify contractor of poor or non-performance, and advise OIC/OICC, Contracting Officer, and others on overall contractor performance
(8) Prepare cost estimates for and assist in negotiation of change order8 and options
(9) Approve contractor submittals which do not require approval by the Contracting Officer
(10) Monitor contract labor requirements
(11) Maintain contract working files
(12) Provide liaison between contractors and recipients of contract services
(I.31 Provide any requests for change, deviation, or waiver (whether generated by government or contractor personnel) to OIC/OICC and furnish all supporting paper work in connection with such request
3.2.5.3 Facilitiee Support Contract Division Staffing. The Division is directed by a Facilities Support Contract Manager (FSCM) who is delegated responsibility and authority in writing by the OIC/OICC for specific contract
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PWO OIC/’ APWO
I
I
OICC
I
I-
‘I
-------- --------
OTHER ADMIN, FACILITIES* TECH & SUPPORT PRODUCTION CONTRACT DIVISIONS DIVISIONS
Ji&q+,
1. OIC/OICC functions may be assigned to the PWO or other CEC officers on PWD staff by geographical EPD.
2. The FSC Division is a part of the activity PWD organization., However, it performs contract administration duties assigned by the head of the contract office (the OIC/OICC).
Figure 3-6 Relationship Between Faci~itiee Support Contract
Divi8ion & NavFac Contracting ReSpOnSibilitieS
admini8tration actions. The FSCM may be either civilian or military. Figure 3-6 contrasts the organizational position of this Division within the PWTI with the functional, or day-to-day, relationship to the contract organization. When span of control and other supervisory COnSideratiOnS are justified, separate branches for support and quality assurance should be formed as depicted in Figure 3-7.
3.2.5.4 Administrative Support Branch. This Branch provides support to the FSC administration process and may include assistants to the FSCM for specific contract8 as well as clerical personnel. Profe88ional procurement support is provided by the NAVFACENGCOM Contract Office staff and should not be 'duplicated in this Branch.
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I FACILITIES SUPPORT CONTRACT DIVISION I
L
Figure 3-7 Facilities Support Contract Division
3.2.5.5 Quality Assurance (QA) Branch. Quality Assurance Evaluators (QAE) perform surveillance of contractor performance under written delegation of authority from the OIC/OICC. The Branch is led by a supervisory QAE. Contract surveillance is critical to effective contract administration and should be performed by qualified personnel assigned to full time position8 in this DiviSiOn. QAEs must be trained in QA techniques, and have knowledge of the work being inspected. Training should include the QAE course conducted by PPD8. In those instances where personnel from other organization8 may perform QA function8 on a part-time baSi.8 to provide a specialized technical knowledge they work under the FSCM's direction. NAVFAC MQ-327, Service Contracts: Specifications and Surveillance, provide8 guidance.
3.3 PRODUCTION DIVISIONS. The Maintenance, Utilities, and Transportation Division8 are directly re8pOnSible for the performance of work by government personnel. They provide technical advice in developing contract requirements and serve as functional technical representative for contract support (See 4.3.2.2). In large PWDs a Shop8 Engineer, either a militaxy officer or civilian, may direct and coordinate the production diViSiOn8. Otherwiee, these DiViSiOn8 should report to the APWO. A combined Maintenance/Utilities Division may be an appropriate alternative in medium or small PWDa when either maintenance or utilities workload is small relative to the other. hidl PWD8 may combine all Shop8 into a Production Division with Maintenance, Utilitie8 and Transportation Branches.
\
3.3.1 Division Directors. Production Division Director8 have supervisory responsibilities for the largest number of personnel in a PWD. The following specific reSpOn8ibilitieS of these positions are particularly significant.
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(1) Production control - Develop detailed shop execution schedules, a88ure that actual direct labor hours approximate estimated hours or etandard times, that material and equipment are effectively used, and that all associated labor hours used and costs incurred are accurately reported against the proper job order number
(2) Overhead control - ASSure that division overhead and productive effort are kept within proper proportion
(3)
(4)
Quality of workmanehip - Inepect work for quality and completeness
PerSOnnel ASSigI'IDent - Assure personnel are effectively assigned to perform work schedules
(5) Personnel Training - Insure proper training for various trade groups to maintain and upgrade skills in conformance with civilian personnel objective8 and organization needs
(6) Labor Relations - Assure supervisory personnel are trained in labor relations and becaue thoroughly familiar with current labor relations agreements and their meaning in terms of directing operations
(7) Position Management - Assure that positions are current and job or position descriptions are up-to-date
(8) Internal Control - Assure that control8 are in place to protect against fraud and waste
(9) Material Control - Insure that material is delivered to work sites as scheduled, provide control to insure proper material usage, and insure that pre-expended bin material is restocked as needed
(10) Tool Room - insure proper operation of tool room to include inspecting, receiving, and repairing tools; providing proper storage and care of tools while in inventory; and issuing tools
(11) Contract Support - serve as the functional sponsor and evaluates performance of shop support contracts (e.g., core drilling, equipment leases, convenience facilitie8, etc.)
3.3.2 Maintenance Division. The Maintenance Division (Figure 3-8) performs preventive maintenance inspections (PMI), emergency and service (E/S) work, and other facility maintenance. This includes, when authorized, repair, alteration, and minor construction incident to maintenance. The Divi8ion normally accomplishee all maintenance work on utilities plant8 and systems except as noted in paragraph 3.3.3, and provide8 caretaking services, laborers for solid waete collection, and pest control service. The staff of the Director of the Maintenance,Division will include personnel for clerical assistance and to perform detailed job scheduling for the Maintenance Division a8 described in MO-321.
3.3.2.1 Division Components. Maintenance Division organizational Components will vary in types and sizes due to craft workload requirements. The following branch and craft groupings should be aligned to achieve supervisory efficiency.
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1 MAINTENANCE DIVISION 1
I 7 I . , , EMERGENCY/SERVICE ELECTRICAL GENERAL SERVICES BRANCH BRANCH BRANCH
1
I ‘PREVENTIVE MAINTENANCE INSPECTION BRANCH I
‘TO BE USED WHEN THE WORKLOAD JUSTIFIES A SEPARATE BRANCH
Figure 3-8 Maintenance DiViSiOn
3.3.2.2 Building Trades Branch. This Branch performs carpentry, paint, wharf building, masonry, and similar work.
3.3.2.3 Metal Trades Branch. This Branch performs plumbing, pipe fitting, boiler, sheet metal, machinist, and similar work.
3.3.2.4 Electrical Trades Branch. This Branch perform8 electrical, refrigeration and air conditioning, communications and fire alarm system work.
3.3.2.5 General Service Branch. 'Phi8 Branch is suggested at PWDs with significant janitorial, refuse collection and disposal, grounds structures (railroad trackage, roads, paving, etc.), pest control, and laborer work.
3.3.2.6 Preventive Maintenance and Inspection Branch. This Branch is Suggested for use at PWDe with considerable preventive maintenance and inspection work. A separate branch provide8 more effective PMI through improved control and consistent performance.
3.3.2.7 Emergency/Service Branch. The Emergency/Service Branch is established to accomplish all emergency/service work, except specialized services, thus allowing other shops to devote their time to scheduled maintenance work.
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This component should be established only when the volume of E/S work is sufficient to justify a staffing of five or more.
3.3.3 Utilities Division. The Utilities Division (Figure 3-9) is respon- sible for operating utilities plants and distribution systems, monitoring the maintenance of plants and systems, and performing operator conducted preventive maintenance inspections for utilities. Routine maintenance work within the plant will normally be performed by utility operators. Other maintenance work on utility plants and systems shall be recommended by the Director, Utilities Division, and processed through the Facilities Management Engineering Division (FMED) for accomplishment by contract or station forces in accordance with NAVFAC MO-321 procedures. When maintenance or overhaul work is accomplished by station forces, the Utilities Division will provide technical assistance and support as necessary and available. Functions performed include:
(1) Operate and manage the Utilities System within applicable NAVFACENGCOM performance criteria to satisfy missing requirements.
(2) Plan, manage, and operate Navy owned utility systems.
(3) Develop casualty correction plans and plant and system standard operating procedures (SOPS).
(4) Coordinate with local utility companies to provide effective, reliable, and efficient utility services.
(5) Provide feeder data for the Utilities Management System.
(6) Promote utilities conservation methods and procedures.
(7) Schedule shut-down time for equipment and systems maintenance and overhaul as approved by the PWO.
(8) Provide assistance, as requested, for control inspections in specialized areas.
(9) Monitor and control plant and distribution system efficiencies.
(10) Assure that boilers and unfired pressure vessels are certified for operation in accordance with NAVFAC MO-324, Inspection and Certification of Boiler and Unfired Pressure Vessels, and that boiler plants meet minimum attendance requirements.
(11) Provide assistance to the Administrative Division in reviewing utility rates for services furnished to reimbursable customers.
(12) Provide assistance to the Administrative Division In developing budget data.
(13) Provide input relative to production equipment modernization programs; e.g., capital investment, fast payback, and shop equipment program.
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(14) Operate and manage the adsinlstrative telephone system in accordance with applicable NAVTELCOM criteria.
(15) Serves as the BEST functiona manager for the Utilities Module.
I I
I I I MANAGEMENTAND ADMINISTFIATIVE
ELECTRICAL WATER AND WASTE
STEAM AND TELEPHONE
BRANCH BRANCH
BRANCH AIR BRANCH BRANCH
I I Figure 3-9
Utilities Division
3.3.3.1 Division Components. The need for Division components will vary with the type and capacity of utility systems at the activity. Both technical and supervisory considerations will influence organizational alignment. The following components are suggested for activities with a broad range of utility systems.
3.3.3.2 Management and Administration Branch. This Branch includes technical staff, production control function, cost accounting and budget support, and clerical support. Responsibilities include:
(1) Provide technical staff support.
(2) Identify utilities systems maintenance, repair, construction and alteration requirements, establish programs and initiate requests to satisfy these requirements.
(3) Forecast customer utility demand requirements and develop and monitor the utilities budget.
(4) Monitor the efficiency of utility plants and equipment; update utility line diagrams and allocation data; allocate utilities consumption data for billing purposes.
(5) Develop and execute the energy conservation and utilization program, manage energy monitoring and control system applications, and initiate requests for engineering investigations and studies.
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(6) Provide administrative assistance in the preparation and routing of administrative correspondence, and maintain administrative files.
(7) Operate the Utilities Department tool room.
(8) Review and control telephone service and equipment requirements.
(9) Review and control contractor operated and maintained telephone system.
3.3.3.3 Electrical Branch. This Branch is responsible for the operation of electrical generation, transmission, and distribution systems. Responsibili- t lee include :
(1)
(2)
(3)
3.3.3.4
Operate all electrical transmission and distribution systems, plants, and equipment .
Inspect electrical transmission and distribution systems, plants, and equipment (operator and preventive maintenance).
Coordinate and control all scheduled utility outages.
Water and Waste Branch. This Branch is responsible for potable water, sewage treatment, industrial waste water treatment, and hazardous waste collection and disposal. Responsibilities include:
(1)
(2)
(3)
3.3.3.5 Steam and Air Branch. This Branch is responsible for steam and air 3 JJ-. -JC _. generation ana aisrrioution sysceme.
Operate all water and waste distribution systems, plants, and equipment.
Inspect distribution systems, plants, and equipment (operator and preventive maintenance).
Coordinate and control all scheduled utility outages.
(1)
(2)
(3)
3.3.3.6
Operate all steam and air distribution systems, plants, and equipment.
Inspect distribution systems, plants, and equipment (operator and preventive maintenance).
Coordinate and control all scheduled utility outages.
Telephone Branch. For government owned telephone systems provide _ . - - - ~. - . a . operation, maintenance, and inspection or the telepnone plant ana system.
3.3.4 Transportation Division. The Transportation Division (Figure 3-10) provides transportation and equipment services to all components of the activity. Responsibilities include:
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(1) Operating vehicle and equipment pools
(2) Operating scheduled and unscheduled passenger and freight transport systems
(3) Maintaining automotive, construction, railroad, mobile fire fighting, and weight handling (materials-handling) equipment, where applicable
(4) Providing crane and rigger service
(5) Testing and licensing of operators
(6) Serving as the BEST functional manager for the Transportation module
I TRANSPORTATION DIVISION I
Figure 3-10 Transportation Division
3.3.4.1 Division Components. Normally the organization will consist of an Operations Branch and a Equipment Maintenance Branch under a Transportation Division Director. This Division is responsible for planning, organizing, and developing equipment, manpower and funding requirements, as well as directing, supervising, controlling, and coordinating work of the two branches. The Director shall be responsible for achieving the objectives of the Division by providing responsive transportation services to the activity with safe and reliable vehicles and equipment In a cost effective manner. A clerical and administrative staff may be required to support the planning and analysis responsibilities of the Director. NAVFAC P-300, *'Management of Transportation Equipment" provides a detailed description of functions performed. Branch responsibilities are:
3.3.4.2 Operations Branch. This Branch provides the operation of transportation systems, providing vehicles and equipment for short and long term assignment and providing equipment operators where required. A Motor
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Vehicle Section and a Heavy Equipment Section may be eetablished when the workload requires five or more personnel per section. Specific function8 include:
(1) Operate bus and taxi systems for movement of personnel
(2) Operate trucking system for intra-station movement of material and equipment
(3) Operate solid waste collection system
(4) Provide equipment with operators to perform facilitiee maintenance functions including rigger and equipment for heavy lifts and movements
(5) Assign vehicles for long term use to authorized organization or personnel (Type "B" assignments)
(6) Operate station motor pool and assign vehicles on daily or trip basis (Type "C" assignments)
(7) Analyze vehicle and equipment usage to achieve maximum economical use
(8) Train, test, and license vehicle and equipment operators
(9) Administer the vehicle and equipment safety and accident prevention program
(10) Conduct and document vehicle and equipment Allowance and Requirements Reviews
(11) Develop budget estimates for operation8 funding requirements
3.3.4.3 Maintenance Branch. This Branch provides maintenance support for all vehicles and equipment. Production Control, Motor Vehicle Maintenance, and Heavy Equipment Maintenance sections may be established when the workload require8 five or more personnel per section. Specific functions include:
(1) Schedule and perform safety and PMI for all vehicles and equipment
(2) Inspect, test, and diagnose vehicles and equipment for needed repairs and air pollution emissions
(3) Perform repair, overhaul, and modification to vehicle8 and equipment
(4) Conduct quality control inspections of all equipment which ha8 been maintained or repaired
(5) Review and analyze maintenance records of vehicles and equipment
(6) Recommend personnel staffing, proposed allowances for tools and test equipment, and repair parts stockage
(7) Develop budget estimates for transportation maintenance requirements
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(8) Mumae and comdiaete treneportation material requirements
(9) Rovide 8ewnl ud routine winteueuce for WHE , notifying the WHE Inrpecticm and Tert rtaff (see pera 3.2.4.4) of any actions that may require inrpectlon and/or certification
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CHAPTER4 ORGANIZATION FOR CWTRACTED PUBLIC WORKS DEPARTMENTS
4.1 General. Increased emphseie on the government policy of reliance on the private sector for the performance of commercial activities has led to some PWDs with all, or major portions of, production workload performed by contract. This trend is expected to continue. The entire organization of the PWD is affected when this occurs. Functions, workload, staffing requirements, and organizational relations change when major production workload converts to contract. Certain functions however are governmental in nature and must be performed by government employees. Within a PWD these functions may be broadly categorized as:
(1) Assessment of condition and determination of requirements (2) Development of plans and programs (3) ReSOUrCe priority control (3) Work order control (4) Contract administration
4.2 OIC/OICC Responsibilities. OIC/OICC reSpOnSibilitie6 are discussed in paragraph 3.2.5.1.
4.3 Basic Organization. A basic organization for the PWD in which all, or nearly all, production work is performed by contract is shown in Figure 4-1. This organizational alignment reflects the consolidation of the residual functions into Administration, Technical Management, Family Housing, and Contract Divisions. When the conversion from predominately government work force to contract is incremental over time, it will be necessary to provide a transition from the standard organization (Figures 2-1 and 2-2). When a small residual government work force remains in one or more production functions, a Production Division may be warranted. The Family Housing DiViSiOn is not needed if assignment and termination of government quarters and private referral service are contracted. If the residual government work force is relatively large, the standard organization should be retained and paragraph 3.2.5 used for guidance.
4.3.1 Administrative Division. The Administrative Division perform8 those functions described in paragraph 3.2.1 except those described for the Management AnalySiS Branch. The size of the Division will be smaller since there are fewer government employees and government performed functions to support, In larger PWDs formation of a Financial Branch and a Services Branch, incorporating Personnel and Office Services functions, may be warranted.
4.3.2 Technical Management Division. The Technical Management Division performs those governmental functions related to determining requirements, resources management, planning and programming, technical policy development, engineering support, and overall evaluation of contract public works support. Technical Representatives should be designated for all function81 areas included in Facility Support Contracts which may include non-public works functions (e.g. guard services, fire protection, etc.). These non-public works Technical Representatives remain a part of the appropriate functional organization at the activity.
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PWOI APWO
I
I
I I I , ADMINISTRATIVE FAMILY HOUSING TECHNICAL FAClLlTlES SUPPORT DIVISION DIVISION MANAGEMENT DIVISION CONTRACT DIVISION
1 I
A
I
Note: Map also include a Production Division if in-house production capability exirts and a Housing Division if function ir not contracted.
Figure 4-l PWD With Significant Contract Support
4.3.2.1 Organization. Organization of this division will vary depending upon the number and type of functions retained aud on the size of the PWD. Branches as identified in Figure 4-l should be considered. When warranted by workload, combining the Facilities Management Engineering Branch and the Engineering Branch as described in paragraph 3.2.4.5 is rem-ended.
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4.3.2.2 Facilities Management Englneerlng Branch. This branch per?orms those functions identified for the Facllltles Management Engineering Division (FMED) (paragraph 3.2.4) which are required to support production functions retained by the government and to serve as the technical representative for contracted facllltie8 functions. Functions performed by the Facilities Management Engineering Branch are similar to those functions performed by Staff Civil Engineers at activities who receive support from PWDs and PWCs. This branch determines activity real property maintenance requirements, ensures these requirement8 are identified in contracts, and evdluates support received to insure that activity requirements are satisfied.
4.3.2.3 Technical Representative Branch. This branch performs those technical management functions for transportation and utilities (also family housing when assignment8 and referral services are contracted) identified in paragraph8 3.3.3 and 3.3.4 which are governmental in nature or which have not been contracted. The branch identifies requirements for inclusion in contracts and evaluates support received to insure that activity transportation and utility requirements are satisfied.
4.3.2.4 Engineering Branch. The Engineering Branch performs those function8 listed ic paragraph 3.2.3 which are governmental in nature or which support retained government work forces. Theee function8 iuclude engineering studies, review of engineering work performed by others, preparation of contract plans and specifications (including performance work statements as required), shore facility planning, environmental protection, and energy conservation.
4.3.3 Family Housing Division. This division is responsible for determining housing requirements and programming for housing acquisitions; maintaining liaison with local authorities, real estate organizations, and community groups; mediating occupant complaints; and other functions identified in paragraph 3.2.2 which have not been contracted. This division identifies housing requirements for inclusion in contract8 and evaluates contract support received to insure that family housing requirements are satisfied.
4.3.4 Facilities Support Contract Division. Responslbllltles of this Division are described in paragraph 3.2.5. This Division is directed by a Facilities Support Contract Manager (FSCM) who is delegated responsibility and authority in writing by the OIC/OICC for specific contract administration functions. Normally activities with significant contract support will require separate branches for administrative support and quality assurance. Specific guidance is provided in paragraph 3.2.5.3.
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ItUS. GOVERNMENT PRINllNC OFFICE: 19117 - 704-0ZO-644lR
