Introduction
I.Orgnizational and Project Manager Responsibiilities...... 2
II.MILCON Process...... 3
AFI 34-105, Programming for Nonappropriated Fund Facility Requirements
AFI 34-201, Use of Nonappropriated Funds
AFI 34-209, Nonappropriated Fund Financial Management and Accounting
AFI 32-1022, Planning and Programming Nonappropriated Fund Facility Projects
Title 10 U.S.C. 2807
Title 10 U.S.C. 2854
Introduction
The term Air Force Project Manager (AF PM) generally refers to the Major Command (MAJCOM) level manager for a Military Construction (MILCON) project. The MAJCOM or the Base serves as the AF PM for non-appropriated fund (NAF) program projects depending upon manpower availability and local policy. The Air Force Center for Environmental Excellence (AFCEE) serves as the AF PM for most continental United States (CONUS) military family housing (MFH) projects. This guide uses the term AF PM to describe the responsibilities associated with the duty of serving as the AF PM, regardless of which entity is filling the role.
The requiring command and the host command are the same MAJCOM for most MILCON projects. When the requiring command and the host command are different, the involved MAJCOMs generally allocate the planning, design, and construction responsibilities on a project-by-project basis. For this reason, this Guide will use the singular term, MAJCOM, to identify all MAJCOM responsibilities and leave it to the MAJCOMs to determine what works best for their organizations.
The AF PM for design and/or construction is ultimately responsible to the Air Force Office of The Civil Engineer (HQ USAF/ILE) for ensuring the Air Force achieves its goals and objectives (i.e. quality, maintainable facilities delivered on time and within budget). The AF PM must have a technically solid background, be capable of maintaining positive rapport with senior leaders, be available and accessible on a continuing basis, be able to keep all team members motivated and informed, be experienced in all levels of Air Force organization, and be able to occasionally accomplish the impossible.
An AF PM differs from a functional manager in that a functional manager is generally concerned only with a particular area of expertise. The AF PM must not only know functional area requirements but also know those of the User, Base Civil Engineer (BCE), MAJCOM, HQ USAF/ILE, Design Agent (DA), and Construction Agent (CA). The AF PM must ensure all of the requirements of any organization associated with the project are blended into a project acceptable to all concerned.
The AF PM coordinates planning, quality and maintainability of the project, schedule, and budget. In order to accomplish this in a timely manner, the AF PM should possess attributes of leadership, credibility, sensitivity, and organizational expertise.
The AF PM facilitates the resolution of conflicting demands from different organizations, and ensures everyone works together as a team to provide a complete, functional facility. The AF PM is responsible for keeping the Civil Engineer - Engineering Division (HQ USAF/ILEC), MAJCOM Civil Engineer (CE), BCE, and the User informed.
The AF PM influences the delivery of quality facilities that will increase the Air Force’s combat and training capabilities.
A schedule slip is sometimes unavoidable. A User change may need to be questioned or a cost problem resolved. The key is having the right attitude. Adjustments can often be made later to bring the project back to the original schedule.
Once a project has been identified by the Base, it must be approved, prioritized by fiscal years, and recommended by the MAJCOM to HQ USAF/ILEC. The project requirements are then validated by HQ USAF/ILEC and approved by the Air Force corporate structure. HQ USAF/ILEC notifies the MAJCOM of an approved project by issuing a Planning Instruction (PI). This PI is the formal notification that the MAJCOM may, barring any need for Title 10 U.S.C. 2807 actions, start design subject to any limitations stated in the PI.
HQ USAF/ILEC may restrict the level of design if the expected design fees will exceed $500,000 (requiring Title 10 U.S.C. 2807 notification to Congress) or because of unusual circumstances. Otherwise, the MAJCOM determines and authorizes the appropriate level of design based upon design funds availability and the level of confidence that the project will be approved in the budget process. The MAJCOM issues a Design Instruction (DI) and may authorize the Design Agent (DA) to initiate design activities. See Chapter 9 for unique nonappropriated fund (NAF) requirements.
It is important that AF PMs understand the basic element of the MILCON cycle, as depicted in Figure 1-1. This cycle consists of planning, programming, design and construction elements. This guide focuses on the design and construction elements.
The MILCON process shown in Figures 1-2 and 1-3 was developed to encourage better definition of project requirements, greater customer involvement, and use of parametric cost estimating tools. This process confirms the project scope, site location, and estimated construction costs in sufficient detail to ensure the MAJCOM has an executable project.
The advanced planning phase of a project is outlined by the Requirements and Management Plan (RAMP). The RAMP consists of two interrelated parts - the Requirements Document (RD) and the Project Management Plan (PMP). The RD consists of a detailed description of the project requirements, site conditions, and identification of special or atypical costs. A parametric cost estimate is developed based on these project requirements and serves as the basis for determining the DD Form 1391 programmed amount (PA). The PMP identifies the project management team and project strategic decisions, including who will design the project, when the project is needed, and the acquisition method.
When the RAMP is prepared, all environmental requirements must be identified, and National Environmental Policy Act (NEPA) documents such as the Environmental Impact Analysis Process (EIAP) must be initiated. These RAMP initiatives are identified as advanced planning activities and must be paid for with operations and maintenance (O&M) funds rather than planning and design (P&D) funds in accordance with Title 10 U.S.C. 2854.
The Base and the MAJCOM should initiate RAMP activities for all projects expected to be submitted to HQ USAF/ILEC per the annual MILCON call letter. Initiation of these RAMP activities does not require HQ USAF/ILEC approval or issuance of the initial PI; however, the RAMP must be completed by the time the project is submitted to HQ USAF/ILEC for the MILCON program.
The MAJCOM Field Design Instruction (DI) should be issued to the Design Manager (DM) (if a different person from the AF PM) not later than thirty days prior to completion of the RAMP. This will permit the DM to authorize the Design Agent (DA) to participate in the preparation of the PMP and allow initiation of all administrative actions leading up to start of design. The MAJCOM must issue a Field DI to the DA - most frequently the U.S. Army Corps of Engineers (COE) or Naval Facilities Engineering Command (NAVFAC) - before the Predefinition Conference. Also, the RD must be provided to the AF PM prior to the Predefinition Conference to allow adequate preparation time by the DA, and architect-engineering (A-E) firm or DA in-house staff.
In Chapter 3, A-E Services Acquisition, many issues are examined. If it is determined that in-house design resources are unavailable, the AF PM’s familiarity with the A-E selection process is critical. The A-E selection process may begin once the AF PM has received proper notification. Since the A-E selection is the most regulated phase in the design and construction process, the AF PM’s understanding of the fundamentals is a prerequisite. The selection process may range from a simple selection of a pre-qualified A-E, to a more involved requirement to advertise for submittal of A-E qualifications in the Commerce Business Daily (CBD).
The AF PM must work with the DA to establish the optimal delivery method for the project. While the design-bid-build (D-B-B) process has been accepted practice within the Government for years, design-build (D-B) is relatively new to the federal acquisition system. With the 1999 revisions to the Federal Acquisition Regulation (FAR), design-build contract award is a negotiated process rather than based on low bid. The AF PM must be aware that preparation of the preliminary design and request for proposal documents, the source selection process, and even management of the design-build contract requirements are different from the traditional design-bid-build process. See Chapter 8, Design-Build Facility Acquisition, for additional information.
As design starts, the AF PM will be responsible for building the appropriate team for the project. The AF PM should learn the roles of each of the players and the products necessary for a successful project. Actual design start-up begins with the Predefinition Conference. This meeting is the most critical for establishing a clear direction for the project and project team.
Following the Predefinition Conference and the Notice to Proceed (NTP) to the selected A-E firm or DA in-house staff, the design effort accelerates. Conceptually the design process is broken into two phases. In the first phase of Project Definition (PD), the project requirements are determined, conceptual plans are developed, and the parametric cost estimate is validated by the A-E. The second phase is Contract Document Development. Through continuing dialog and project reviews, the conceptual documents are developed into working drawings and specifications and finally into the contract documents used to solicit bids for construction.
Knowledge of the construction contract award process and of the construction process itself are the next steps in ensuring the success of the AF PM’s project. The AF PM’s role during construction is significantly diminished; however, understanding the process is critical to processing change orders and to accomplishing project close-out.
Chapter 9, Nonappropriated Fund (NAF) Projects, is not intended to be the definitive guide to NAF projects, but does attempt to relate NAF requirements to the MILCON process and to alert the AF PM to particular areas of concern.
The NAF process has unique requirements relating to funding, reporting, and oversight. The material in this Guide enhances the AF PM’s understanding of: AFI 32-1022, Planning and Programming Nonappropriated Fund Facility Projects; AFI 34-201, Use of Nonappropriated Funds; AFI 34-205, Programming for Nonappropriated Fund Facility Requirements; and AFI 34-209, Nonappropriated Fund Financial Management and Accounting. All of these AFIs relate to planning, programming, and cost control for NAF projects.
This Guide would be incomplete without a discussion of cost control. Cost control is of great importance throughout the entire process, especially since the AF PM is the focal point for most cost control measures for MILCON projects.
This Guide is a consolidation of a number of areas of the MILCON process. Numerous documents have been referenced throughout, as well as appendices, for those wishing greater detail on particular topics.
For an overview of the programming, design, and construction process for MILCON projects, see Figure 1-2, which illustrates the various activities, submittal dates, and approval processes associated with projects submitted in the biannual President’s Budget. The dates shown in Figure 1-2 represent projects submitted for the FY 2002 and FY 2003 MILCON programs. See the latest HQ USAF/ILEC Annual MILCON Call Letter for additional guidance and requirements.
Figure 1-3 shows the various milestones and activities associated with the planning, design, and construction of MILCON projects