Lesson 24: Facilities Engineering

Introduction

Key Element of the DOD Acquisition Process

Facilities Engineering is a key element of the DOD acquisition process. This discipline
encompasses a variety of functions that focus on the life cycle design, construction, and
maintenance of military installations, facilities, civil works projects, airfields, roadways, and
ocean facilities.

Providing and Maintaining Critical Infrastructure

Facilities Engineering provides and maintains the critical infrastructure needed for both
domestic and worldwide operations.

This infrastructure includes system-specific facilities and the full range of other facilities needed
to develop, test, produce, deploy, operate, and support the nation's military capabilities.

Interface with DOD Systems Acquisition

As we learned in Lesson 3, Introduction to the Defense Acquisitions Management System,

DODI 5000.02 establishes a simplified process for managing all acquisition programs.

This process, referred to as the Defense Acquisition Management System, is a continuum

of activities that represents or describes defense acquisition programs.

A Multidisciplinary Acquisition Process

Facilities Engineering
is itself a
multidisciplinary
acquisition process
that involves all
facets of life cycle
management from
planning through
disposal.

Facilities Engineering
has always been
closely tied to the
"traditional" weapons
systems process and
has both direct and
indirect effects on
weapon system cost.

Accordingly, Facilities Engineering must be addressed from the start in both the force
deployment planning and weapon systems development processes.

Infrastructure Support

Every assigned mission or weapon system requires facilities infrastructure support either
directly or indirectly. This support must be timely and suitable if the military mission is to
maximize its effectiveness.

Facilities provide the necessary shelter and work spaces to support the assigned mission or
weapon system.

Meeting Schedule and Functional Mandates

Facilities development depends on the specifications of weapon system requirements in order

for the facility to meet schedule and functional mandates.

Key objectives in this effort are to ensure that:

● Support considerations are contemplated early in the acquisition process and seen as an
integral part of the design requirements of a weapon system.
● Infrastructure necessary for fielding and operational support of new weapon systems is
identified, developed, and acquired in a cost-effective and timely manner to support initial
operational capability for the new system.

Determining Installation Requirements

The specific installation requirements for each assigned mission or weapons systems will differ
depending on:

● Operational Needs;
● Maintenance Needs;
● Supply/Storage Needs; and
● Supporting activities.

When proposing changes to an installation's mission or weapon system, consideration must be

given to associated impacts on facility requirements. The weapon system must be compatible
with the facilities.

Infrastructure Support Element Duration

The process for a weapons system deployment may take from 5 to more than 20 years to
develop and field. The facilities infrastructure support element generally takes between 5 to 7
years.

Successful integration of the facilities infrastructure support element with the weapon system
requires interface and coordination throughout the process.

Career Field Functions

Facilities Engineering includes the following career field functions:

● Facilities Engineering Planning;

● Real Estate;
● Engineering and Construction;
● Environmental Engineering; and
● Base Operations Support.

Facilities Engineering Planning

Facilities Engineering Planning includes global/theater planning, regional planning, long-range

planning, special studies, and base or installation planning. This specialty requires expertise in:

● Environmental planning;
● Functional/Operational planning;
● Air installation compatible use zones (AICUZ) and air space planning;
● Encroachment planning;
● Facilities planning for weapon systems; and
● Traditional planning.
Traditional facilities planning includes, but is not limited to:

● Scenario planning;
● Land use planning;
● Requirements generation;
● Facilities planning (small area planning);
● Transportation planning;
● Demographic analysis;
● Constraints analysis; and
● Serving as political/community liaison.

Real Estate

Real Estate professionals plan, organize, monitor and manage real estate activities. They also
issue, execute, manage, renew, supplement, oversee, or revoke real estate documents. Real
Estate professionals are also "accountable" for real and personal property for their Services'
annual reports to Congress and the General Services Administration. Real Estate duties may
require identifying, establishing, organizing or implementing real estate objectives, policies, and
procedures.

Real Estate actions cover:

● Appraisals and cartography;

● Acquisition of facilities, lands or lesser interest in land;
● Use of land by non-DOD entities, management of title and unauthorized use; and
● Utilization of space, and disposal of Government-owned or controlled real property.

Engineering and Construction

The Engineering and Construction workforce plans, organizes, directs, monitors, manages,
oversees and performs activities related to life cycle facilities acquisition in the areas of:

● Analysis;
● Criteria development;
● Research;
● Engineering; and
● Construction management.

Engineering and Construction duties may require:

● Identifying, establishing, organizing, or implementing facility acquisition objectives and

policies;
 ● Developing specifications and criteria;
● Performing cost engineering;
● Establishing project and program budgets;
● Accomplishing design and engineering services;
● Managing programs/projects;
● Administering contracts; and
● Managing construction.
● Additional duties include acquisition strategy development and technical responsibilities
in the source selection process.

Environmental Engineering

There are two distinct aspects of Environmental Engineering that are relevant to the acquisition
process. The two aspects of Environmental Engineering are:

● Facilities Environmental Engineering and

● Weapon System Environmental Engineering

Both areas are critical and involve both legal requirements and the potential for personal
criminal liability.

Base Operations Support

Base Operations Support personnel manage the workforce, materials, equipment, and
contracts necessary to sustain installation real property. This specialty requires expertise in
planning, programming, design, scheduling, procuring; and executing:

● Real property maintenance;

● Repair;
● Minor construction of facilities; and
● Uninterrupted operation and distribution of utility systems.

Base Operations Support responsibilities may also include providing guidance, counsel and
direction to both Government forces and contract managers and technicians on a routine basis.
Personnel must also be knowledgeable in budget formulation and execution, costing and
performance metrics, material acquisition and management, and contract administration. In
addition, Base Operation Support includes support services.

Life Cycle of a Facility

The primary phases in the life cycle of a facility include:

 ● Planning;
● Design;
● Construction;
● Facilities Sustainment; and
● Disposal.

Planning Phase

The Planning phase includes:

● Master planning;
● Real estate acquisition;
● Project scoping;
● Establishment of program priority;
● Criteria and standards identification / development;
● Environmental assessment; and
● Development of the programming documentation package.

The transition activity in this phase or at the beginning of the next phase is the acquisition
planning decision that determines what strategy will be used to acquire the facility.

Design Phase

The Design phase of Facilities Engineering includes an integrated architectural and engineering
concept, which is sustainable and supports the functional requirements and detailed needs of
the user.

The two primary methods for facility (project) delivery are:

● Design-Bid-Build and
● Design-Build.

Design-Bid-Build (DBB)

Design-Bid-Build (DBB) is more traditional and employs a solicitation for construction bids (or
proposals) based upon fully designed plans and specifications. This process consists of three
basic phases.

The Design phase involves the production of contract documents in the form of plans (i.e.,
blueprints) and specifications. The plans and specifications can be prepared by in-house
engineers and architects, or by private architectural and engineering (A&E) firms. The Design
phase is completed with the production of the contract plans and specifications.
The Bid phase is where construction contractors compete for the construction of the facility by
submitting bids. The construction contractors base their bids on the contract plans and
specifications developed in the design phase. The Bid phase is completed with the award of a
construction contract.

The Build phase involves the actual construction of the facility.

Design-Build (DB)

Design-Build (DB) is gaining more use and utilizes a solicitation for the design and the
construction in one contract based upon requirements identified in the planning and
programming phase.

This process also involves the production of a contract document, but that contract document is
in the form of a Request for Proposal (RFP). The RFP can be developed by in-house engineers
and architects, or by a private architectural and engineering (A&E) firm.

Once the RFP is completed, design-build firms compete for the contract by submitting
proposals. The design-build contract is awarded to the firm whose proposal best meets the
requirements of the RFP, and offers the "best value" facility. An important consideration in
determining the best value proposal is the overall life-cycle cost of the facility after careful
evaluation of the proposed design.

Construction Phase

Facilities engineers throughout the DOD execute billions of dollars each year in new
construction, modernization/renovation, and repair projects. These projects are accomplished
primarily through the use of construction contractors, and regulated by the Federal Acquisition
Regulation (FAR).

The facilities engineer's role in construction falls primarily into either of the following two main
areas:

● Contract Administration or
● Quality Management.

Construction Contract Administration

Construction Contract Administration comprises the activities performed by the government to

monitor and enforce contract compliance. It includes such functions as:

● Conducting preconstruction, prework and safety conferences;

 ● Managing contract funds and processing pay estimates;
● Performing labor related activities;
● Preparing and processing contract modifications and resolving disputes;
● Enforcing safety and warranty requirements;
● Managing contract schedules; and
● Preparing contractor performance evaluations.

Construction Quality Management (CQM)

Construction Quality Management (CQM) is defined as the quality control and assurance
activities instituted to achieve the quality levels established by the contract requirements. CQM
is comprised of two essential elements:

● Quality Control
● Quality Assurance

Quality Control (QC) is defined as the construction contractor's system for managing,
controlling and documenting the activities of the contractor, supplier, and subcontractor in order
to comply with the contract requirements.

Quality Assurance (QA) is defined as the Government's system in place to monitor the quality
control efforts of the construction contractor.

Facilities Sustainment Phase

In the total life of a facility, Sustainment is the longest phase. Some buildings function well even
though they are more than 100 years old. Often these facilities will have a different use than
originally intended.

The main focus of this phase is the operation and maintenance, restoration, and modernization
of the facility, including land, buildings, structures, pavements, and utilities. Decisions made
during planning, design, and construction can enhance or hinder the ability to sustain a facility.

The installation must:

● Document how the individual facilities mesh with regional priorities;

● Determine methodologies for provision of services;
● Provide public works and engineering services;
● Provide reliable and efficient utilities;
● Establish effective energy management programs; and
● Meet ESOH requirements such as solid and hazardous waste management and
disposal, ventilation systems, medical surveillance, industrial hygiene monitoring, or fire
 suppression systems.

Disposal Phase

Disposal occurs when a facility is no longer needed or fit for its intended purpose. The structure
may be reconfigured as a different facility, transferred to another entity (as in base realignment
or closure) or simply demolished. These decisions are normally made as part of the recurring
planning phase.

Facilities Engineering Considerations

The acquisition process is a complex and lengthy process of planning, programming,

budgeting, and execution. Facilities Engineering is itself a multidisciplinary acquisition process
that conducts and manages a global program of investment in facilities, goods, and services.

Accordingly, Facilities Engineering has some specific considerations in such areas as:

● Funding;
● Equipment Installation;
● Public-Private Ventures;
● Commercial Activities;
● Base Realignment and Closure; and
● Civil Works Projects.

Facilities Engineering Funding

The culmination of the acquisition budget process is the submission of an annual Military
Construction Program to the Congress for authorization and appropriation.

Military Construction (MILCON) is the acquisition (design/construction) of facilities, costing

greater than $750,000, in support of active and reserve military requirements. MILCON
includes operational, quality of life, and family housing facility requirements.

Under some circumstances, it is possible to use other sources of funds for facilities construction
and maintenance.

For example, Government-Owned, Contractor Operated (GOCO) industrial facilities do not use
MILCON, but may use other sources of funding for facilities construction and maintenance.

In special cases, it is even possible to use weapon system program funds to construct new
production facilities needed for the weapon system.
Equipment Installation

Equipment Installation is defined as the modification to real property (buildings and structures)
required solely for acquiring equipment.

The construction of a facility includes the installation of "built in" equipment that is not intended
to be moveable and is required for the operations of the facility. Loose, portable, and easily
moved equipment is not included in the construction costs.

"Green" Equipment Installation

Military service pollution prevention programs routinely procure and install "green" equipment.
Such green initiatives use procurement funds to improve industrial processes by reducing or
eliminating the generation of hazardous wastes and provide improved worker safety.

The organization that provides the funding for the equipment is also responsible for providing
equipment installation from the same procurement appropriation. The cost of equipment
procurement includes the cost of the equipment, transportation, unpacking, assembly, and
testing.

When dealing with processes and equipment that support weapon system operations and
maintenance, a pollution prevention program must ensure that it fully complies with all systems
technical documentation, and that the system Program Office has given prior approval for any
changes to system processes or equipment changes.

Where the Equipment Is Being Installed

If the equipment is being installed in new construction, the construction should be complete to
allow the facility to receive the equipment.

If the equipment is being installed in a facility that is not new, the equipment installation costs
include both the labor and material to install that equipment plus the items to support the
equipment.

Public-Private Ventures

The National Defense Authorization Act for Fiscal Year 1996, contains the Military Housing
Privatization Initiative (MHPI). The MHPI includes a series of authorities that allow the
Department of Defense (DOD) to work with the private sector to build and renovate military
housing.

DOD's goals are to obtain private capital to:

 ● Leverage government dollars;
● Make efficient use of limited resources; and
● Use a variety of private sector approaches to build and renovate military housing faster
and at lower cost.

Military Housing Privatization Initiative (MHPI)

The MHPI helps to promote a mutually beneficial relationship between DOD and the private
sector, resulting in the construction of more housing built to market standards, for less money
than through the military construction process. Commercial construction is not only faster and
less costly than military construction, but private sector funds significantly stretch and leverage
DOD's limited housing funds.

There are also significant venture capital opportunities in DOD housing for developers and
financiers in the private sector. Privatization opens the military construction market to a greater
number of development firms. It stimulates the economy through increased building activity.
And, DOD housing projects can provide a continuous inflow of capital to an investor over a long
period of time.

Utilities Privatization

The Department of Defense owns approximately 1600 utilities systems worldwide with a value
of $50 billion.

Service Secretaries are authorized to convey a utility system to a non-federal government

entity, as the Secretary considers appropriate.

Solicitations seeking to privatize these systems will vary in size. The Secretary may use funds
identified for a military construction project to facilitate the conveyance of the utility system.

Commercial Activities Program

The purpose of DOD's Competitive Sourcing Program, sometimes referred to as the

Commercial Activities Program, is to implement Office of Management and Budget (OMB)
Circular A-76 to create cost savings for DOD.

OMB Circular A-76 mandates that the government obtain commercially available goods and
services from the private sector when it makes economic sense to do so.

Competitive Sourcing Program

The DOD's Competitive Sourcing Program requires a standardized, structured process for
determining the most efficient and cost effective method for performance of commercial
activities.

This cost comparison process lets the Government, the private sector, or non-DOD federal
agencies bid on work. In conjunction with a managed competition process, the Competitive
Sourcing Program gives Commanders and Directors improved performance at reduced cost
regardless of "who" performs the work.

Base Realignment and Closure

The goal of the Base Realignment and Closure Program (BRAC) is to dispose of excess
property of the Department of Defense and its components.

Disposal involves facility preservation and security, planning, environmental evaluation and
remediation, and real estate transfer actions.

DOD Component Responsibilities

The DOD components are responsible for protecting the facilities and equipment from the
elements, from theft and vandalism and from inappropriate use until disposal.

DOD components are also responsible for an environmental evaluation of the property and, if
required, remediation before or after disposal. This frequently requires working closely with
federal and state regulators.

Working with Others

Properties may be offered to other federal or state agencies, or to local communities in order to
return these properties to productive reuse as soon as is practical. Properties may also be
offered to businesses or citizens through public sales.

Planning may require working very closely with local communities to assist in the development
of the reuse plan and by providing detailed information about the facilities and related personal
property to be disposed of.

Civil Works Projects

Civil Works projects are located throughout the United States and are managed by the various
geographic divisions and their district offices. The Directorate of Civil Works at the U.S. Army
Corps of Engineers provides program oversight.
The Army's civil works missions fall into four broad areas:

● Water infrastructure;
● Environmental management and restoration;
● Response to natural and man-made disasters; and
● Engineering and technical services to the Army, DOD, and other Federal agencies.

Contingency Facilities Engineering

Contingency Engineering is defined as engineering capability applied to emergencies caused

by natural disasters, terrorists, subversives or military operations.

Contingency engineering acquires and directly constructs, utilizes, or supports facilities critical
to the overall military mission anywhere in the world.

Maintaining a Strong Contingency Engineering Capability

Contingency engineering requires planning, rapid response, and special procedures to ensure
the safety and readiness of personnel, installations, and equipment.

All services maintain a strong contingency engineering capability to provide facilities support to
deployed operational forces, sometimes in a combat environment.

Navy

The Naval Facilities Engineering Command headquarters and field activities, with Civil
Engineer Corps Officers, Civil Service Employees, Contractors and Navy Seabees, conduct a
variety of support for the Navy, Marine Corps and Joint and Unified Commanders in a variety of
support known collectively as Contingency Engineering.

Naval Facilities (NAVFAC) Contingency Engineering falls into three primary categories:

● Contracting, construction, design, environmental, real estate and consulting operations in

support of contingencies or military operations, plans or exercises;
● Research and development of equipment and technology for a variety of clients in the
areas of expeditionary logistics and amphibious warfare.
● Logistics readiness and development, outfitting and equipping; and mobilization and
training for the Naval Construction Force (SEABEES) and, in various combinations, for
units of the Naval Beach Group and Naval Support Element.

Army
The Army Engineer combat heavy engineer battalion is normally assigned to an engineer
brigade within a corps or theater army. The combat heavy engineer battalion has equipment
and personnel skilled in construction (vertical & horizontal) and earthmoving.

The battalion primarily works in rear areas on sustainment engineering tasks. However, its
earthmoving capabilities may be effectively used to provide combat support in forward areas
when not under direct fire (i.e. tank ditches, etc.). Combat heavy battalions also engage in
disaster relief, as well as humanitarian assistance operations worldwide. Missions include the
construction of roads, bridges, airfields, base camps, schools, and other structures and utilities
for the Army, Air Force, and other nations.

Air Force

The Air Force Combat Engineer's role is to ensure the facilities engineering aspects of air base
operations are responsive and effective. Air Force combat engineers are organized into two
basic types of units with complementary missions:

● Prime Base Engineer Emergency Force (Prime BEEF)

● Rapid Engineer Deployable Heavy Operational Repair Squadron Engineer (RED
HORSE)

Wartime missions of both types of Air Force Civil Engineers include:

● Emergency repair of war damage (includes runways, taxiways, aircraft parking ramps,
road repairs, facilities and utility system repairs);
● Force "bed down" (preparation for initial deployment of air force units and weapon
systems);
● Force protection;
● Operations and maintenance of air force facilities and installations;
● Crash rescue and fire suppression;
● Construction management;
● Supplying material and equipment to perform its engineering mission;
● Environmental stewardship; and
● Explosive ordnance disposal (EOD).

Special Considerations

One factor that could influence the timeliness and suitability of facilities infrastructure support is
provided is Special Considerations. Special Considerations are a factor in all phases of the life
cycle of a facility.

Special Considerations describes issues that affect the scope and funding for a project and
includes such areas as:
 ● Regional Planning;
● Utilities;
● Antiterrorism and Force Protection;
● Environmental Laws;
● Safety and Occupational Health Laws;
● Natural and Cultural Resources; and
● Housing.

Regional Planning

With the arrival of the 21st century the DOD leadership is focused on creating a leaner, more
efficient and effective infrastructure that is in proper balance with force structure.

In order to maintain this balance between force structure and supporting facilities, DOD must
respond by changing its focus to a broader regional perspective and more comprehensive
regional planning approach.

Optimizing Resources and Opportunities

A regional planning process helps to optimize resources and opportunities by resolving facility
development issues across a region. Regional planning looks for broader methods of satisfying
infrastructure requirements including, outsourcing, privatization and leasing of facilities.

The regional planning process means identifying potential partnerships for joint or shared
facility use by all DOD Services, federal agencies, state and local governments, and the private
sector to meet future infrastructure requirements. MILCON is the development method of last
resort.

Utilities

Utilities, water and power are essential infrastructure systems that support all missions and
weapon systems. The infrastructure systems need to provide the required utility services with
acceptable levels of quality, quantity and reliability.

The utility source may be a government-owned plant or a utility company. Distribution systems,
such as pipelines and power lines, bring the service from the source to individual buildings.

Where the Government does not own the plant, the installation will purchase utility services via
service contracts negotiated with utility companies.

Utilities Requirements
A utility service contract typically has two main components: The commodity itself (e.g. water,
gas) and a distribution/delivery fee (for transportation, pipelines, wires, etc).

When proposing changes to an installation's mission or weapon system, consideration must be

given to impacts on utility requirements. Increased requirements for capacity, quality or
reliability may require an upgrade or extension of the utility system or additional back-up
systems.

Utilities System Upgrades or Back-Ups

Military Construction (MILCON) projects may be required to upgrade government-owned

systems or provide back-up systems. If a utility company owns the system, negotiations with
the utility company may be required to obtain the necessary service improvements and reflect
the improvements in the service contract.

These infrastructure systems have close ties to the environmental requirements. There are
normally air, water, and solid waste emissions from these systems, which means that there is a
tremendous opportunity to reduce or magnify these emissions when missions and the required
infrastructure changes.

Airfields

Airfields are a vital link to our nation's quick strike capabilities around the world. Airfields and
must maintain their current and future mission capabilities. Encroachment around airfields is a
threat to air operations that takes constant land use planning and monitoring.

There is significant community interest in the air emissions and noise from air operations that
must be considered throughout the life cycle of an air base.

Ranges

Military ranges are invaluable assets of the DOD. Ranges have served in preparing US forces
for confrontation with any military force they might reasonably be expected to oppose.

Ranges provide appropriate locations where the US Armed Forces can achieve and maintain
their state of readiness to defend the U.S. against potential threats by:

● Obtaining operational training before deployment;

● Maintaining combat readiness;
● Conducting RDT&E activities for new or improved weapons systems; and
● Undertaking instructional activities for new trainees.
Port Operations

Port Operations, which include piers and waterfront maintenance facilities, must be maintained
and upgraded as necessary to accommodate the newest class of combatant, supply, or
auxiliary ship.

Pier side and channel dredge depths must be maintained periodically for free and clear
passage of ships. Pier size and weight handling capabilities as well as shore power upgrades
will require routine and ready maintenance to fully service the older ships, and ships new to the
inventory.

Community Support Facilities

Community Support Facilities is a broad category of facilities includes those that are not
generally considered to be direct mission support. They are considered to be the "taking care of
people" side of facilities infrastructure.

Execution of military missions has a direct impact upon the extent and nature of these support
facilities and consideration for new, renovated or disposal options must be made as part of the
installation master planning efforts.

Antiterrorism and Force Protection

Antiterrorism and force protection are closely associated with Facilities Engineering because
security measures frequently must be incorporated into facility design and operation.

These features can have a significant impact on facility design and cost (both construction and
subsequent operation and maintenance). In addition, there may be facility requirements for the
on-site security forces.

Environmental Law Considerations

The body of law relevant to the environmental area is complex and growing, and the
corresponding regulations are gradually becoming more stringent.

A few of the more significant laws include the following:

● Clean Air Act;

● Clean Water Act;
● Resource Conservation and Recovery Act;
● Solid Waste Disposal Act;
● Comprehensive Environmental Response, Compensation, and Liability Act (also known
 as the Superfund);
● Emergency Planning and Community Right-to-Know Act, SARA Title III (EPCRA) ;
● Safe Drinking Water Act;
● Pollution Prevention Act;
● Occupational Safety and Health Act; and
● National Environmental Policy Act.

Government Employees and Military Personnel

In nearly all areas, Government employees and military personnel are protected from
prosecution for actions they have taken in the course of their official duties.

The environmental area is different in that the Government has waived sovereign immunity and
thereby opened itself, and its personnel, to prosecution. Not only are Government agencies
subject to penalties for failing to comply with the numerous applicable laws and regulations, so
are the individuals involved.

Government personnel, both military and civilian, can be held personally and criminally liable
both for improper actions they have taken and for failing to take actions required by law.
Personnel also can be subject to civil penalties.

Natural and Cultural Resources

Few, if any, DOD facilities and installations occupy land entirely devoid of historical interest or
natural resources. Because historic sites can have significant cultural or economic implications,
all facilities must comply with a wide range of laws and regulations in this area.

Responsibility for such compliance, which can strongly affect facility and program schedules
and costs, falls into the Facilities Engineering realm.

Areas Governed Applicable Laws and Regulations

The areas governed by the numerous applicable laws and regulations include the following:

● Archaeological artifacts (prehistoric and historic);

● Historic buildings and structures;
● Native American sites;
● Natural landmarks;
● Natural resources; and
● Endangered species.

Housing
Housing includes both Family Housing and Bachelor Housing. Housing management extends
beyond the operation and maintenance of government controlled houses or apartments for
families, and barracks or dormitory facilities for bachelors, to ensuring all Military members are
suitably housed whether in government facilities or in the private sector.

As a quality of life issue in support of the DOD mission, the purpose of the housing program is
to provide an environment that allows Military members to concentrate on performing their
mission without undue concern regarding their living conditions, or the living conditions of their
dependents.

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