NAVFAC 0525-LP-173-3050

MAINTENANCE MANAGEMENTOF SHORE FACILITIES

NAVFAC MO-321.1

DEPARTMENT OF THE NAVYNAVAL FACILITIES ENGINEERING COMMAND

NAVFAC 0525-LP-173-3050

MAINTENANCE MANAGEMENTOF SHORE FACILITIES

For Small Activities

NAVFAC MO-321.1NOVEMBER 1978

DEPARTMENT OF THE NAVYNAVAL FACILITIES ENGINEERING COMMAND

Distribution: (5 copies each)

SNDL: 1: 27G (SUPFOR Antarctica only), 49A (Bahrain only).

SNDL: 2: C4F6, C4F48 (Fall Brook only), E3A (Barrow only), E3C, FA7 (Panama Canal,Keflavik only), FA23 (except Bermuda, Wales, Keflavik), FB6 (Misawa only), FB7(Fallon, Cubi Point only), FB10 (Adak, Midway only), FB26, FB36 (Big Sur, CentervilleBeach, Pacific Beach, Charleston only), FB48, FC3 (London only), FC12, FE2, FE4(Winter Harbor, Chesapeake, Homestead, Skaggs Is., Adak, Sabana Seca, Edzell, Hanzaonly), FF6, FF19 (Brooklyn, New Orleans, Seattle only), FG2 (except Diego Garcia,Keflavik, Rota, San Diego, Yokosuka), FG3 (Cutler only), FG6 (Norfolk, Honoluluonlyj, FH8 (Cairo only), FH25 (Newport, Portsmouth, Camp Lejeune, New Orleans,Oakland, Okinawa only), FJ5, FKA6A3B, FKP1B (Fallbrook, Earle only), FKP14 (Vir-ginia Beach only), FKM8, FKM15 (Philadelphia only), FKN2 (except Port Hueneme),FKN5 (Oakland only), FKP1J (Louisville only), FKP14 (Virginia Beach only), FKR3H,FKR4B, FKR5, FR3 (except Dallas, South Weymouth), FT6 (Meridian, Chase Field,Kingsville only), FT55, V5 (Yuma only), V16 (Twentynine Palms, Smedley Butler only),V23.

Copies to: (2 copies unless otherwise specified)21A, A2A, A3, A4A, A5, FA5, FC1, FD1, FE1, FF1, FG1, FKN5, FR1, FS1, FT1, FT37(20 copies), FT78, FW1.

Additional copies may be obtained from:Naval Publications and Forms Center5801 Tabor Ave.Philadelphia, Pa. 19120

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One of the most important functions of the Naval Facilities Engineering Command is the opera-tion, maintenance, and repair of the Navy’s shore facilities. Our primary goal is the optimum use ofresources, a challenge which, broadly speaking, requires effective support and response to Com-mands and Fleets at the least cost. This publication presents a condensed and simplified version ofthe management principles outlined in NAVFAC MO-321, Maintenance Management of ShoreFacilities, NAVFAC MO-322, Inspection of Shore Facilities, and other related manuals, for use atsmall shore activities.

The described systems are basically the same systems promulgated in other facilities manage-ment manuals, but adapted to the small activity which does not have the specialized staff positions,automatic data processing equipment, or complex interrelationships that exist in medium and largesized Public Works Departments.

This Command intends to keep this data current and dynamic. As new and better managementand industrial engineering techniques are developed, the text will be revised accordingly. Recom-mendations or suggestions that will improve the publication or motivate its use are invited andshould be submitted through appropriate channels to-the Commander, Naval Facilities EngineeringCommand (Attn: Code 1001), Alexandria, VA 22332.

This publication supersedes and cancels NAVFAC MO-321.1 dated August 1972. It has beencertified as an official publication of this Command and has been reviewed and approved in accord-ance with SECNAVINST 5600.16.

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D. G. ISELINRear Admiral, CEC, US NavyCommanderNaval Facilities Engineering Command

Chapter

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Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Maintenance Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Organization and Staffing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Continuous Shore Facilities Inspection. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Work Classification and Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Work Input Control . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Job Order System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

8 Shop Scheduling . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Management Reporting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

ResourcesManagement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Facilities Projects. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Applied Biology Services. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Page

l-l2-13-14-l5-l6-l7-18-19-1

10-l11-112-1

Ref-1Index- 1

APPENDIX

A General Work Control Procedures for Work Exceeding 16 Manhours . . . . . . . . A-l

FIGURES

3-l4-l4-25-15-25-3

Organization Pattern Recommended for Small Activities . . . . . . . . . . . . . . . . . . .Inspection Schedule/Record Sheet . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Inspector’s Report (NAVFAC11014138) ........... . . . . . . . . . . . . . . . . . . . . . .Emergency/Service Work Authorization (NAVFAC 11014/21) . . . . . . . . . . . . . .Work Request (Maintenance Management) (NAVFAC9-11014/20) . . . . . . . . . .Work Authorization/Estimate (Maintenance Management)

(NAVFAC11014/22 and 11014/22A) . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Job Phase Calculation Sheet (NAVFAC11014/23) . . . . . . . . . . . . . . . . . . . . . . . .Material Requirements/Issue Document (Non-Mechanized)

(NAVFAC9-11014/8) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Job Requirements and Status Chart . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Manpower Availability Summary and Work Plan Summary. . . . . . . . . . . . . . . . .Shop Load Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

3-24-34-55-25-5

5-45-5

6-16-26-3

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6-1

5-65-7

5-86-26-36-4

TABLES

Organization Size and Suggested Staffing for Engineering, MaintenanceControl, and Shop Supervisory Functions . . .. . . . . . . . . . . . . . . . . . . . . . .

Priority Matrix. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ..............3-36-6

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CHAPTER 1. INTRODUCTION

1.1 PURPOSE. This manual will assist the Public Works Officer at a small activity, with a limitedstaff, to implement and maintain the basic Maintenance Management System developed by theNaval Facilities Engineering Command, and to integrate these principles into the day-to-day,decision-making process of the Public Works Department. For purposes of this manual a smallactivity is considered to be one with a Public Works Department with less than 75 personnel in theMaintenance and Utilities Branches, combined.

The manual is designed to provide Public Work Maintenance managers with a condensed andsimplified version of the management principles outlined in NAVFAC MO-321, Maintenance Man-agement of Shore Facilities, NAVFAC MO-322, Inspection of Shore Facilities, and other key inter-related functions such as organization, facilities projects, applied biology, and resources manage-ment. This manual is not intended to supersede these key manuals but rather to complement them.

Why bother with a management system when personnel and funding levels are small?

Unfortunately, facts and figures can sometimes be misleading. Individually, small activitiesrepresent a small share of total Navy resources. Collectively, small activities represent approximately25 percent of the total of all field activities with assigned Public Works personnel. Their plant valueis in excess of 5.2 billion dollars. This investment must be protected by a planned maintenanceprogram.

Often the answer to the lack of a planned maintenance program is, “Yes, I-realize the need fora program, but with all the crash programs and collateral duties, I just don’t have the time.” Thisstatement is certainly true, but what action have you taken to overcome the problem? Have you at-tempted to get the proper staff billets required to assist you? Have you utilized basic system tech-niques to assist with day-to-day management? It could be that the effort spent in generating neededinformation (on a crash basis) intermittently during the course of the year exceeds the time requiredto conduct an orderly program which would provide the required information immediately.

1.2 MAINTENANCE MANAGEMENT SYSTEM. The Maintenance Management System is notcomplex and does not embody principles that are unattainable. Frequently, day-to-day routine tasksappear to be overwhelming when, in fact, the principles involved are no different than those used bymost people in handling day-to-day personal business. You earn a certain salary, out of which thefixed expenses (such as rent and car payment) are set aside. Then you decide how to spend the re-maining money. Chances are that the things you want to do and buy require more money than isavailable, Decisions must be made concerning relative importance and cost. An estimated price isplaced against each desire and priorities are placed against each need. This in simple form isMaintenance Management-planning resources available for use against a listing of all PublicWorks maintenance and operations needs.

1.3 SYSTEM EVALUATION. The following list of questions can aid in evaluating the current con-dition of your Maintenance Management System. A “no” answer indicates a serious failing of theSystem.

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(1) Have all facilities been formally inspected in accordance with frequencies outlined inNAVFAC MO-322?

(2) Is there a formal Control Inspection schedule? Could your relief determine the date of thelast Control Inspection or Preventive Maintenance Inspection (PMI)?

(3) Do you document work generated by Control Inspection in relation to manhours anddollars?

(4) Do you know if requirements generated by Control Inspection can be accomplished withfunds currently allocated?

(5) Is workload projected for a three-month period?

(6) Do you know what work is planned for accomplishment two weeks from today?(7) Do you know the status of your funds as of the first of each month?(8) Is your organization staffed to accomplish necessary management functions?

(9) Have you requested consulting assistance, or funding augmentation, to correct staffingproblems?

(10) Do you know what services are available from the geographic Engineering Field Division(EFD)?

(11) Is there a formalized PMI for critical, unattended equipment?

1.3.1 What is Required of Any Activity Regardless of Size?

(1) Every activity must have a Control Inspection System and inspect all facilities in accord-ance with frequencies outlined in NAVFAC MO-322.

(2) Every activity must plan accomplishment of inspection generated workload in relation toresources available.

(3) Every activity must maintain sufficient records and data to reflect actual and projectedfunds expenditures.

(4) Every activity must strive to accomplish work at the lowest total cost to the Navy.

1.4 REFERENCE MANUALS. This manual will assist the small activity Public Works Officer inestablishing a minimal Maintenance Management System. Source documents for the variousSystems and Programs mentioned, in addition to the technical manuals listed in NAVFAC Docu-mentation Index, NAVFAC P-349, should be obtained for a reference library.

1.5 ENGINEERING FIELD DIVISION SERVICES. The Naval Facilities Engineering Command’sEngineering Field Divisions (EFD’s) are responsible for providing Public Works Departments withtechnical advice and assistance. Small activities are encouraged to utilize these services to the maxi-mum extent feasible to balance the limited engineering and management expertise available locally.Among the many services provided by an EFD is assistance in all aspects of maintenance manage-ment and maintenance engineering. Other services provided include:

(1) visiting activities to consult with and assist the PWO and his staff,

(2) assisting activities in establishing systems modifications designed for specific situations,

(3) providing engineering services, and

(4) supporting activities programs by indoctrinating Commands on the value of themaintenance management system, providing manuals to clarify principles, and conducting seminarsand training sessions to indoctrinate personnel directly involved in the System.

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CHAPTER 2. MAINTENANCE MANAGEMENT

2.1 WHY MAINTENANCE MANAGEMENT SYSTEMS? The Maintenance Management Systemwas established by the Naval Facilities Engineering Command in the mid-1950’s to control spiralingmaintenance costs. Maintenance was a forgotten function for years in both industry and govern-ment. While production was being extensively analyzed and controlled, maintenance functions wereignored. As labor costs increased dramatically over the years, it was finally realized that indirectcosts were becoming appreciable. While production worker output was increasing by large incre-ments, maintenance craftsmen were providing only 30 to 40 percent productivity. This productivityfigure does not reflect the application and interest of the maintenance worker, but rather the archaicconditions under which he was forced to operate. NAVFACENGCOM established a MaintenanceManagement System to improve maintenance productivity, planning, and manpower utilization.The System also provided an orderly means of identifying facility deficiencies in their early stages ofdeterioration to allow for economic correction, and developing data for improved managementdecision-making.

2.2 SYSTEM OBJECTIVE. The Maintenance Management System’s basic objective is to optimizethe use of available resources: manpower, equipment, materials, and money. The system providesthe framework necessary to place decision-making at a level where all factors concerning PublicWorks operations can be analyzed. Each Public Works functional area has information affectingmaintenance accomplishment. For example, the shops may feel that a certain deficiency should becorrected, such as replacing a roof. However, as a result of fund limitations, it is possible that only atemporary repair may be authorized so that a more serious deficiency elsewhere may be corrected.

2.3 SYSTEM PURPOSES. The Maintenance Management System’s purposes for small activitiesare:

(1) to perform maintenance on a planned and scheduled basis rather than on an intermittent,breakdown basis,

(2) to assure that Shore Facilities meet their operational requirements,

(3) to provide more direct control over use of the maintenance work force (both civilian andmilitary),

(4) to guard against and eliminate over-maintenance and under-maintenance,

(5) to take corrective action before advanced deterioration necessitates major repairs,

(6) to correlate various components of work accomplishment with total work requirements,

(7) to obtain equitable distribution of shop forces,

(8) to provide facts and statistics that indicate trouble areas in need of corrective action,

(9) to reduce to a minimum the number of record-keeping procedures, and

(10) to provide factual back-up for budget and project submissions.

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2.4 SYSTEM ELEMENTS. There are five key elements of the Maintenance Management System.

(1) Continuous Inspection. This element is comprised of Operator Inspections, PreventiveMaintenance Inspections for dynamic equipment not under the control of an operator, and ControlInspections which appraise the condition of all facilities and equipment in accordance with frequen-cies outlined in NAVFAC MO-322.

(2) Work Input Control. This control provides basic planning and status information on workfrom inception to completion. It includes screening individual jobs for necessity, determining therelative urgency, programming them through the planning phase, authorizing the work, maintaininga balanced and adequate workload for each source of accomplishment, assuring proper completionof jobs, and keeping management informed on the status of jobs.

(3) Planning and Estimating. This element provides before-the-fact labor and material costestimates, and a task performance sequence to allow for proper management control and follow-up.

(4) Shop Scheduling. Shop scheduling provides the framework for maximum coordinationbetween various shop crafts and minimizes delays due to lack of materials, equipment, transporta-tion, assist trades, and job site availability.

(5) Management Reporting. This reporting provides Public Works managers with reliable,up-to-date information and data that can be utilized in planning, decision-making, and objectivesreview.

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CHAPTER 3. ORGANIZATION AND STAFFING

3.1 GENERAL CONCEPTS. The initial step in establishing an effective Maintenance Manage-ment System is evaluating the existing organization to determine whether engineering and manage-ment staffing and procedures are adequate to perform required maintenance management functions.

Any Public Works Department with more than 20 personnel in the Maintenance and UtilitiesBranches should have at least one individual whose sole responsibility is to perform control inspec-tions, planning and estimating, and long-range work planning functions. As a rule of thumb, oneindividual can plan and estimate job orders sufficiently to keep approximately 20 “available”craftsmen productive. The smaller the organization, the more versatile the billet must become, par-ticularly when only one position can be justified.

The smaller the organization, the more the Public Works Officer (PWO) must participate insystem details. Of course, many factors must be considered. For instance, at some activities mainte-nance work is performed by other station work groups, but the overall responsibility for the func-tion remains in Public Works. In this situation, the staffing tables must be adjusted to reflect theadditional responsibilities.

3.2 CONTROL. There are two levels of control: complete control and modified control. “Com-plete control” means that all methods and procedures outlined in NAVFAC MO-321 will be ob-served by activities. “Modified control,” on the other hand, implies deviation by activities from themethods and procedures prescribed in NAVFAC MO-321. Modified control should reflect varia-tions in the prescribed methods and procedures due to activity size and local conditions. Small activ-ities are most susceptible to modified control.

3.3 ORGANIZATIONAL PATTERN. An organizational pattern recommended for small activitiesis shown in Figure 3-1.

3.3.1 Public Works Officer. The PWO is a Civil Engineer Corps Officer, responsible to the Com-manding Officer for the organization, administration and supervision of the PWD, including shops,facilities, and personnel assigned to that Department. He has charge of the planning, design, main-tenance, and repair of shore facilities and is responsible for safety certifications and all environ-mental matters.

3.3.2 Administrative Division. The Administrative Division is responsible for all matters pertainingto organization, methods, procedures, work flow, work measurement (except shop work methodsand techniques), civilian personnel, office services, reproduction, reports and statistics, and budgetand finance.

3.3.3 Family Housing Division. Each installation having family housing management responsibili-ties will have a centralized Family Housing Office. Centralized responsibilities for family housingmanagement will be assumed by a Family Housing Division within the PWD. The Family HousingDivision is responsible for management of all aspects of family housing. Depending on workload,this may be an office staffed by the PWO.

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FIGURE 3-lOrganization Pattern Recommended for Small Activities

3.3.4 Engineering Division. The engineering division consists of two branches: the TechnicalBranch and the Maintenance Control Branch. Under normal conditions Public Works Departmentswith less than 75 personnel in the Maintenance and Utilities Divisions should combine the Mainte-nance Control and Engineering functions.

(1) The Technical Branch is responsible for all engineering services.

(2) The Maintenance Control Branch is responsible. for Control Inspections, work receptionand classification planning and estimating, and scheduling.

3.3.5 Shops Division. The shops division is also divided into two branches: the Maintenance andUtilities Branch and the Transportation Branch.

(1) The Maintenance and Utilities Branch is responsible for Preventive Maintenance Inspec-tions, maintenance of all shore facilities, and operation of utility plants and distribution systems.

(2) The Transportation Branch is responsible for the maintenance and operation of all trans-portation equipment services.

3.4 STAFFING. A suggested staffing guide for Engineering, Maintenance Control, and Shopsupervisory functions is shown in Table 3-l.

3.4.1 Control Position Responsibilities. Activities that are not able to support more than one billetshould establish the following duties in the billet’s Position Description.

(1) Prepare manpower and material estimates for work generated by Continuous Inspectionand work requests.

(2) Overall job planning and scheduling.

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TABLE 3-lOrganization Size and Suggested Staffing for Engineering,

Maintenance Control, and Shop Supervisory Functions(This table is only a guide)

Number of Personnel

PositionMaintenance/Utilities Divisions Combined

20-29 30-39 40-49 50-59 60-75

Engineering/MaintenanceControl Division Director 1 1 1 1 1

Engineer 1Engineering Technician 1 1 1Planner and Estimator/

Inspector 1 2 1 2 2Work Reception Clerk 1 1 1 1 1Shop Supervision 2 3 4 5 6Shop Planner/Scheduler 1 1 1 1 1

TOTAL 6 7 9 11 13

(3) Approve job orders or provide assistance to the Public Works Officer in approving joborders.

(4) Provide maintenance engineering support.

(5) Maintain data on overall shop forces distribution, work backlog, and other informationrequired by the Public Works Officer for general control of shop forces.

(6) Review completed job orders to note abnormal deviation from labor and material esti-mates, and make appropriate corrective action recommendations to the Public Works Officer.

(7) Review activity maintenance engineering problems to detect abnormally repetitive mainte-nance work indicating the need for major corrective measures.

(8) Develop, maintain, and update inspection standards and practices.

(9) Perform assigned inspections according to established schedules.

(10) Prepare inspection reports describing sub-par physical conditions noted.

(11) Recommend necessary maintenance and repair work to correct deficiencies.

(12) Review methods of accomplishing work, both special and routine, to assure the adoptionof the most economical method.

(13) Coordinate with other sources of work accomplishment (if applicable).

3.4.2 Engineering. Engineering staffing requirements are influenced by many factors including thecomplexity of plant, whether utilities are procured or generated in-house, or support is given totenants. Activities unable to support an Engineer or Engineering Technician billet should look to thegeographic EFD for this support. Engineering responsibilities include:

(1) preliminary designs and estimates for special repair and improvement projects,

(2) engineering design,

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(3) field engineering,

(4) engineering studies and reports, and

(5) preparation and submission of basic data required to support MILCON planning.

3.4.3 Planner and Estimator/Inspector. At activities not large enough to support separate positionsfor the planning and estimating and inspection functions, but large enough to support more thanone billet, the description, Planner and Estimator/Inspector, should be utilized. Utilizing this com-bined billet allows personnel who identify requirements to write the corrective action job orders.There is significant value to this approach at all activities regardless of size.

The general classification of Planner and Estimator is titled Planner and Estimator (PublicWorks). This position is responsible for performing duties concerned with the electrical, mechanicaland structural work areas, and presumes a broad background knowledge of the various tradesinvolved. The rating of Planner and Estimator (Public Works) is therefore used principally bysmaller activities where facilities are of limited size and complexity and which cannot afford speciali-zation.

3.4.4 Clerical Support. Clerical support for small activities should be provided from a centralizedorganizational component such as the administrative staff. The staffing guide (Table 3-1) includesonly the Engineering, Maintenance Control and Shop Supervisory Functions, and therefore doesnot identify all the administrative clerical support required.

3.4.5 Shop Supervision. The role of the shop supervisor should be one of direct craftsmen super-vision, with a minimum of other assigned responsibilities, so he can attain quantity and qualitywork. Record-keeping and meetings should be held to a minimum level consistent with good man-agement principles. Required supervisory classification is dependent on the size of the workforceand complexity of the facilities maintained. The shop supervisor is responsible for accomplishingthe following duties:

(1) Assure that craftsmen accomplish work as indicated on job orders.

(2) Monitor actual manhours to determine if work will be accomplished within manhour esti-mates, and justify additional manhours, if required.

(3) Plan workforce coordination to minimize delays caused by awaiting other crafts and jobsite transportation availability.

(4) Inspect final work to determine quality of workmanship.

(5) Monitor material usage.

(6) Assign personnel to various craft areas as the workload dictates.

(7) Evaluate personnel to determine if additional training is required.

(8) Provide information required to maintain a balanced workload, and advise Public Worksmanagement on expected leave requirements.

(9) Provide information concerning actual manhours expended on work accomplished.

3.4.6 Shop Planning. The Shop Planner/Scheduler is responsible for preparing the MaterialRequirements/Issue Document (NAVFAC 9-11014/8) (Figure 5-5) based upon Planner and Esti-mator provided material information. The only exception is material requiring detailed specifica-tions. In this case, the Planner and Estimator performs the task. The Shop Planner requisitionsshop stores material, prepares stub requisitions for all direct procurement material, obtains deliverystatus, provides liaison between Public Works, Supply, and Fiscal, and assures that all material is

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located at the job site, when required. At small activities, the Shop Planner/Scheduler wilt alsoassist supervisors with weekly work center schedules. The Shop Planner/Scheduler must assure thatwork involving several crafts is coordinated so that the work is accomplished smoothly withoutdelay caused by one craft waiting for another.

3.5 ENGINEERING FIELD DIVISION SUPPORT. Your geographical EFD is available to ana-lyze an activity’s engineering and management requirements, on a general basis, during the courseof Management Assistance Visits. Detailed studies on particular problems should be requested by anEngineering Service Request (ESR). Without proper organization and adequate staffing levels, it isimpossible to maintain an effective Maintenance Management System. Although it is often difficultto recruit individuals with proper experience for those positions-particularly at remote or lessdesirable sites-the activity must plan for a desired organization. The Public Works Officer shouldnot hire indiscriminately in the hope that any selectee can perform the functions desired. Your geo-graphical EFD is available to help activities determine qualifications required for a particular billet.Additional Public Works organizational information is available in NAVFAC P-318. Appendix Aclarifies responsibilities and work flow discussed in this manual.

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CHAPTER 4. CONTINUOUS SHORE FACILITIES INSPECTION

4.1 GENERAL. The key to a successful Maintenance Management System is a functioning, system-atic Continuous Inspection System. The purpose of Continuous Inspection is to identify deficienciesin Shore Facilities and IO initiate corrective action that will bring these facilities, or parts of facilities,up to the desired maintenance standard. Inspections should: (a) detect maintenance deficiencies inthe early stages of development; (b) reduce the number of breakdowns and cost of repairs; (c) pro-vide a more constant flow of work to the shop; (d) improve planning for utilization of labor anddetermination of material requirements; and (e) reduce over-maintenance.

There are three major components to the Continuous Inspection System: Control Inspections,Preventive Maintenance Inspections, and Operator Inspections.

4.1.1 Control Inspections. These are scheduled examinations and/or tests of facilities conductedthroughout the year to determine physical condition with respect to the desired facilities categori-zation. Certain types of inspections require specialized experts or equipment. Coordination of con-trol inspection efforts should be made.

4.1.2 Preventive Maintenance Inspections (PMI). PMI is the systematic and periodic examination,lubrication, minor adjustment and minor repair (not exceeding 60 minutes) of dynamic equipmentand systems for which the Public Works Department is responsible, but to which a specific operatoris not assigned. It involves such duties as oiling, greasing, and tightening, which prevent accelerateddeterioration, and thus keeps the equipment in continuous service or ready for service in a wellmanaged plant. The cost of operation of properly serviced equipment is consistently lower in bothmanpower and materials than for poorly maintained equipment.

4.1.3 Operator Inspections. An Operator Inspection of constantly attended equipment is similar toa PMI but is performed by the operator assigned to the equipment as part of his day-to-day respon-sibilities.

4.2 FREQUENCIES. All facilities shall be inspected in accordance with frequencies outlined inNAVFAC MO-322. It is imperative to integrate Continuous Inspection completely into the Mainte-nance Management System so the major workload issued to the shops is generated by ContinuousInspection rather than by a one-time, end-of-the-year Comprehensive Inspection, or by breakdownreports.

Control Inspection and PM1 schedules should be established to accomplish economicalmaintenance consistent with requirements for maintaining equipment availability. Inadequate in-spection and maintenance may result in costly breakdowns or rapid equipment deterioration. Overinspection and maintenance will cause unnecessary expenditure of funds for labor and material. Thebasic principle of an effective PM1 Program is the inspection scheduling and rigid adherence to theestablished schedule. Inspection frequencies should be reviewed periodically to evaluate programeffectiveness. For example, if numerous breakdowns occur on a certain type of equipment, and if

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these breakdowns can be traced to such things as vibration and insufficient lubrication, then the fre-quency should be increased. However, be sure that inspections are not made too frequently becausethis incurs unnecessary expense and sometimes causes carelessness on the part of the inspectors.

4.3 STEPS REQUIRED FOR CONTROL INSPECTION. The following steps should be followedfor Control Inspections:

(1) Identify each unit or facility by identification number and area designation using NAVFACP-164 for verification.

(2) Prepare inspection schedule including item, type of inspection, frequency, estimated timefor inspection (MO-322, Vol. 1, Appendices A & B) and description. (See Figure 4-l.)

(3) On date of inspection, inspect facility using Inspection Checkpoints outlined in Volume 2of MO-322, and the Maintenance and Operation (MO series) manuals, to ensure that all checkpoints are inspected.

(4) Indicate condition of each element of facility inspected.(5) Enter complete details of that work required to correct any deficiency on the Inspection

Report Form. Insofar as possible this information should be so complete that it will not be necessaryto revisit the site when preparing the job cost estimate.

(6) When the Control Inspector’s report indicates that facility deficiencies requiring prompt at-tention can be accomplished within two mandays or less, Emergency/Service Work Authorizationsshould be initiated.

(7) When the Control Inspector’s report indicates that facility deficiencies will require morethan two mandays for correction, a preliminary estimate should be prepared to cover work perform-ance by either shop forces or contract.

4.4 PROCEDURES FOR ESTABLISHING A PMI PROGRAM. The following procedures shouldbe followed when establishing a PMI Program:

(1) Inventory all dynamic equipment that is the Public Works Department’s responsibility.(2) Review manufacturers’ brochures and determine the required routine maintenance.

(3) Note equipment which is the responsibility of an operator.

(4) Establish a formal inspection schedule, detailing the work to be accomplished and fre-quency of inspection.

(5) Periodically review inspection schedules to assure that work is accomplished as planned andthat the scheduled frequency is reasonable.

(6) Charge expenditures to appropriate PMI expenditure account.

In implementing the PMI program, specific information may be obtained from the manufac-turers’ operation and maintenance instructions. A copy of these instructions should be on file foreach piece of equipment on hand. If it is impossible to obtain the information, a schedule can bedeveloped from schedules concerning similar equipment based on judgment and experience. Infor-mation concerning inspection frequencies is available in NAVFAC MO-322, Volume 1. The Engi-neering Field Divisions can provide assistance in this area.

4.4.1 Exceptions. It is not usually economical or necessary that all dynamic equipment items begiven PMI’s. The annual operation and maintenance costs for these items should be an importantconsideration. In addition, an analysis of the various specific services required at periodic intervalsshould be made. It is possible that some or all of these services could be performed under Specific

Job Orders issued at predetermined intervals, thus eliminating the need for PMI’s. In addition, cer-tain types of equipment such as fractional horsepower motors, oscillating fans, and water coolersmay be replaced at the time of breakdown more economically than being maintained under PMI’s.

4.5 IDENTIFICATION OF WORK ON INSPECTION REPORTS. To classify and documentdeficiencies at the time of inspection, use Inspector’s Report NAVFAC 11014/38 (see Figure 4-2).The Inspection Report should include a summary of the inspector’s report for the MaintenancePlan. Emergency/Service and Minor Work information should also be recorded on the InspectionReport. The Maintenance Control Division Director should review the Inspection Summaries;accept, correct, or reject; and forward for posting on Work Input Control Charts and for WorkAuthorization.

FIGURE 4-2 (1 of 2)Inspector’s Report (NAVFAC 11014/38)

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FIGURE 4-2 (2 of 2)Inspector’s Report (NAVFAC 11014/38)

(only 2 of 7 sheets shown)

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CHAPTER 5. WORK CLASSIFICATION AND PLANNING

5.1 GENERAL. Work classifications a type of control that channels and prescribes the handlingand management of each type of work from inception to completion and review. The factors whichdetermine this control are:

(1) funds involved,

(2) duration of job,

(3) urgency,(4) repetitive nature,

(5) purpose of work, and(6) customer.

Three basic documents for controlling work are:

(1) Emergency/Service Work Authorizations,

(2) Specific Job Orders, and

(3) Standing Job Orders.

5.2 EMERGENCY/SERVICE (E/S). Work is authorized in relation to the degree of control re-quired. Small work items of a one-time nature, such as changing light bulbs, minor repairs to facili-ties, plumbing repairs, or electrical wiring and fixtures require little detailed management control.This work should be authorized on an Emergency/Service Work Authorization (NAVFAC 11014/21) (Figure 5-l) issued directly to the shops for accomplishment. E/S work authorizations areused for small work items that take up to 16 manhours. To minimize the paperwork involved inplanning and estimating and cost accounting, NAVCOMPT has established cost account numbersto accumulate charges for Emergency/Service work. There is no requirement to charge this typework against the end-use account for the facility on which the work is accomplished. The exceptionto this principle is that Emergency/Service work accomplished on family housing should be chargedto the appropriate type of housing.

The only detailed management control exercised on Emergency/Service work is to requirecraftsmen to note start and stop times on work authorization forms to determine total manhoursinvolved. Periodic reviews of emergency or service calls may often identify potential large problemareas that should be corrected by a major overhaul, replacement, or a change of equipment used.

5.3 SPECIFIC AND STANDING JOB ORDERS. Effective shop work planning depends on wellplanned and properly estimated job orders. It is important that the shops know exactly what work isto be accomplished on a particular job order. It is often argued that the shops know the best way tocorrect a problem, so why bother with detailed instructions? Unfortunately, the work which isauthorized by management is not necessarily the work which should be performed for a completerepair because limited resources sometimes force patchwork instead of correcting the entire prob-lem. The decision can be made only by individuals thoroughly familiar with all aspects of Public

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FIGURE 5-lEmergency/Service Work Authorization (NAVFAC 11014/21)

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Works requirements. Shop personnel regardless of their technical skills are not in a position toevaluate funds and priorities and their impact on other resource requirements.

Job order estimates must define the exact work location and describe in detail the work requiredto correct or partly alleviate the problem. Each phase of the job must be estimated separately.

Job Order Estimates generally take two forms: Specific Job Orders for one-time requirementsand Standing Job Orders for recurring requirements. Both Specific and Standing Job Orders requiredetailed planning. Because the majority of the Public Works maintenance resources should be con-trolled by these documents, detailed management and planning are necessary. The planning andestimating function is the key to this control.

5.3.1 Specific Job Orders. Specific Job Orders are written to cover work for which individual jobcosts are desired for financial and performance evaluation. They are also the vehicle to provide in-formation for overall Public Works planning and to transmit information to the shops. All workperformed on Specific Job Orders will be charged against the appropriate expenditure accountaccording to the actual hours charged by the shops. No additional work should be accomplished bythe shop on Specific Job Orders without prior approval. If additional work is required, an estimateshould be provided based on the new requirements. The following factors should be included in allSpecific Job Order estimates:

(1) travel time,

(2) site preparation time,(3) work performance time,

(4) delay time,(5) direct and indirect material requirements,

(6) rental of equipment,

(7) site cleanup,(8) contingency surcharges and acceleration, and

(9) proper accounting data.

5.3.2 Standing Job Orders. Standing Job Orders include all work that is highly repetitive and onwhich accumulated costs are desired. These job orders should include:

(1) complete specification of work by job phase, (A job phase is a smaller unit of work withinthe larger job; for example, sweeping floors is part of the overall janitorial requirements.)

(2) frequency of the work listed,

(3) exact location of work area,(4) type of equipment considered in the estimate,

(5) estimate of labor hours by job phase,

(6) time interval covered (such as month and quarter),(7) any pertinent information describing how the work was planned and estimated, and

(8) proper accounting data, including add-on costs such as acceleration and contingency.

There are two types of Standing Job Orders: estimated and unestimated.

(1) Estimated. Examples of this type of work include janitorial service, trash and garbage dis-posal, power plant watch standing, and preventive maintenance inspection. Estimated Standing JobOrders should include an exact work description, a clearly specified frequency cycle, and precisetime and cost estimates. It is cost advantageous to develop realistic labor and material estimates for

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these highly repetitive functions, preferably based on job-site analysis. Estimated Standing JobOrders are usually issued on a quarterly basis.

(2) Unestimated. Unestimated Standing Job Orders are usually issued on an annual basis andinclude emergency work, service work, minor work, and repetitive work that cannot be described.They are issued primarily as fiscal documents for accumulating total annual charges.

Work should not be authorized for a Standing Job Order that is basically service work innature. For instance, Standing Job Orders should not be written for replacing window glass, replac-ing light bulbs, emergency repairs, or eliminating plumbing leaks.

All Standing Job Orders should be reviewed periodically by Public Works Management todetermine:

(1) necessity of the work authorized,

(2) completeness of specification of work involved,

(3) Facilities Categorization Code specified on job order (is frequency too high or too low?),(4) reasons for manhour variation from the estimate, and

(5) total maintenance force manhour requirements.

5.4 JOB ORDER ESTIMATING. Job order estimating can take three forms.

(1) Preliminary Estimate. Simple computation made on an overall basis to provide labor andmaterial cost information for management action; for example, to decide whether it is feasible toaccomplish a job.

(2) Rough Estimate. An approximation of labor and material costs required by each workcenter to provide general planning information.

(3) Final Estimate. Detailed labor and material cost estimate for all job plan work operationsand elements.

The final estimate is the basis for issuing jobs to the shops. Final estimates can be of two gen-eral types: engineering estimates based on use of Engineered Performance Standards (EPS) or con-ventional estimates based on historical data, statistical data, or judgment and experience. It is desir-able for all Planners and Estimators to be trained in EPS usage. NAVFACENCCOM EngineeringDivisions periodically sponsor training courses in EPS application. EPS use is not recommendedwithout EFD applicator training. Contact your geographical EFD for additional information.

Examples of a work request form, work authorization/estimate form, job phase calculationsheets, and material requirements/issue document are provided as Figures 5-2, 5-3, 5-4, 5-5.

These examples are based on EPS and therefore are the most sophisticated techniques avail-able. In your particular situation a less formal system can be utilized; however, the same general for-mat would be used. It is suggested that handwritten job orders be used in lieu of typewritten ones tominimize clerical effort. EPS should be used to the maximum extent possible.

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FIGURE 5-2Work Request (Maintenance Management) (NAVFAC 9-11014/20)

FIGURE 5-3 (1 of 2)Work Authorization/Estimate (Maintenance Management)

(NAVFAC 11014/22)

FIGURE 5-3 (2 of 2)Work Authorization/Estimate (Maintenance Management)

Continuation Sheet (NAVFAC 11014/22A)(only 1 of 2 sheets shown here)

FIGURE 54Job Phase Calculation Sheet (NAVFAC 11014/23)

Examples in Completing a Craft Phase-Planning and Estimating(Only 2 of 12 sheets shown here)

FIGURE 5-5Material Requirements/Issue Document (Non-Mechanized) (NAVFAC 9-11014/8)

CHAPTER 6. WORK INPUT CONTROL

6.1 GENERAL. Work Input Control procedures require the use of several forms to assist in theorderly flow and planning of work. The purpose of the forms is to provide clear, established flowpatterns and procedures. Detailed information on these Work Control procedures is available inNAVFAC MO-321, Chapter 6.

6.2 JOB REQUIREMENTS AND STATUS CHART. The Job Requirements and Status Chart(Figure 6-l) provides a ready reference for programming all jobs over 16 manhours that have beenestablished as known requirements. All information concerning status of requirements should bemaintained on this chart. However, a different Job Requirements and Status Chart can be main-tained for each major type of work such as alterations and minor construction, customer work, andmaintenance and repair.

6.3 MANPOWER AVAILABILITY AND WORK PLAN SUMMARY. Use of the ManpowerAvailability and Work Plan Summary (Figure 6-2) provides an orderly approach to determiningmanpower utilization and permits a realistic estimate of the manpower available to work on one-time jobs. This technique can be used by an activity of any size.

6.3.1 Procedures for Determining Manpower Availability. The following procedures should beused in determining manpower availability:

(1) Determine current on-board count for each work center. Identify any potential change suchas an increase or decrease in personnel. Any personnel loaned from other departments, or availablefrom other departments, should be considered. From these facts determine the average on-boardcount during the month considered.

(2) Estimate expected overhead charges for the month in supervision, shop indirect and allowedtime, general office and clerical, and leave. If there are any past actual charges on which to base theestimate, these should be used; if not, an educated guess can be used until past history is established.

(3) Total the overhead manhours.

(4) Determing past labor charges for Emergency/Service work based on an analysis of com-pleted Emergency/Service Work Authorizations.

(5) Determine manhours required for PMI for the month.

(6) Determine estimated Standing Job Order requirements.(7) Determine total of overhead estimates and the amount estimated for E/S, PMI, and Stand-

ing Job Orders. Subtract this sum from the total available manhours to determine the manhoursavailable for Specific Job Order work.

6.4 SHOP LOAD PLAN. The Short-Range Shop Load Plan (Figure 6-3) covers a three monthplanning period. It should be prepared each month subsequent to the preparation of the ManpowerAvailability Summary and Work Plan Summary. The Long-Range Shop Load Plan (similar toFigure 6-3) covers the balance of the year.

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*FCC-Facilities Categorization CodeFAC-Functional Activity CodeMAC-Method of Accomplishment CodeUFD-Unfunded Facilities Deficiency

FIGURE 6-lJob Requirements and Status Chart

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FIGURE 6-2Manpower Availability Summary and Work Plan Summary

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6.4.1 Procedure for Compiling Shop Load Plans. The following procedures should be followed forcompiling Shop Load Plans:

(1) Consider all jobs that carry over from the present month’s Shop Load Plan to the comingmonth’s Shop Load Plan. This information will be supplied by the shop planner or appropriateshop supervisor.

(2) The remaining work assignments will be obtained from the tentative Shop Load Plan forthe month considered.

(3) Work center assignments for the month should be consistent with manpower availability asdetermined on the Manpower Availability and Work Plan Summary.

(4) Work planned for the coming month must be consistent with financial limitations andgoals.

6.5 PRIORITY OF JOBS. Priority assignments of jobs is essential in determining the importanceof each job in relation to other identified requirements. Manpower and funding limitations may notpermit the accomplishment of all necessary and desired work immediately upon its identification.The use of a priority classification system will assist in optimum resource utilization. The assignmentof a priority designator in accordance with a system similar to the procedures listed below will pro-vide a sufficient definition of the relative importance of each job.

The importance of various functions and types of work may be expressed by the assignment ofpriorities in a priority matrix (Table 6-l). After initial use of the priority matrix, the results shouldbe reviewed periodically and revised as necessary.

In general, jobs with highest priority (lowest number) will precede others of lower priority onthe schedule. The priority matrix that allows classification of all work into one of four types basedon the major work content and justification is listed below:

(1) Safety. Work identified primarily for safety reasons.

(2) Function. Work primarily identified with the activity’s mission.

(3) Preventive. Work primarily required to prevent significant deterioration of plant or equip-ment owing to continued use or from natural forces.

(4) Appearance. Work primarily for preserving or upgrading the appearance of a facility.

Each of these work classifications will have three levels of importance. The importance level ofan individual job is based on its impact in relation to other jobs in the same classification.

(1) High. The high level indicates that the urgency of work accomplishment is significantlygreater than routine.

(2) Routine. The routine level designates the normal degree of urgency for the contemplatedwork to be accomplished. Most work necessarily will fall into this category.

(3) Low. The low level indicates that the degree of urgency in the accomplishment of the re-quested work is lower than normal.

Priority 1 is reserved for use with specific approval of the Public Works Officer or AssistantPublic Works Officer. This priority is an overriding emergency, or urgent priority, that will insertfinal estimated work into the schedule in any week by date specified-even as soon as the next week.

TABLE 6-lPriority Matrix

6-6

7.1 GENERAL. Job order systems for small activities should be as simple as possible, consistentwith requirements to account for all basic expenditures. The basic building blocks of the systemshould be cost account numbers, with the system flexible enough to reflect elements of expense andinternal control requirements. No attempt will be made to establish one set system for all activitiesbecause many factors influence the final format. For instance, those activities having another activ-ity account for their funds must conform to the numbering system used by that activity.

A review of land, structures, and equipment on station will establish the basic account numbersrequired for the system. Flexibility should be allowed within the numbering system to permit seriali-zation of Specific Job Orders. The job order system should accurately represent the responsibilitiesof the activity and accumulate information in such a manner that funds expenditure can be identi-fied to a specific facility, or operational function. That portion of the Job Order utilized for cost‘accounting purposes is the responsibility of the activity Comptroller. The serialization required toprovide individual job order information is the responsibility of the Public Works Department.

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CHAPTER 8. SHOP SCHEDULING

8.1 GENERAL. Procedures of the Maintenance Management System are directed toward assuringthat work is completed on a scheduled basis. Poor planning disrupts the shops. Personnel lose timeby changing assignments in midstream, or by returning to the shop to obtain additional informationor equipment. Manpower is a valuable resource-unfortunately it is often misused. A manhour alsomeans money; the fact that the worker is not paid at the conclusion of a job does not mean that histime is free. Each manhour is paid for out of Public Works funds. Ineffective use of manpowerresources severely affects the activity’s level of maintenance. Basic shop responsibilities are planningthe accomplishment of work assigned and performing that work in the most economical manner.

Shop scheduling is a carefully prepared advance plan of action that optimizes the utilization ofavailable manpower. Effective shop scheduling provides a means of achieving orderly and econom-ical job accomplishment.

8.2 SCHEDULING. Shop scheduling is a formalized plan of attack to accomplish the work that isto be done. To be effective, schedules must be flexible enough to allow for contingencies. The Main-tenance Management System allows for flexibility by adopting a combination of two schedulingsystems: master scheduling and work center scheduling. These scheduling procedures arc describedin NAVFAC MO-321, Chapter 9.

8.2.1 Master Scheduling. Master Scheduling is the establishment of a time-frame for completingeach job subject to Master Scheduling, and the assignment of those jobs on a weekly basis withinshop force capabilities.

8.2.2 Work Center Scheduling. This type of scheduling covers craftsmen’s daily work assignmentsfor the following week.

8.3 PROCEDURES. The Shop Planner/Scheduler, using the coming month’s Shop Load Plan,consults with the cognizant shop supervisor and schedules the work to be accomplished in the com-ing weeks. The manhours scheduled should be consistent with the available manhours identified forSpecific Job Order work on the Manpower Availability and Work Plan Summary.

On a weekly basis, the master schedule should be compared with the work center actual man-hour expenditures to determine if jobs are following the pattern established by the master schedule.If a job is off schedule, adjustments can be made in the following week’s work center schedule with-out making major changes to the master schedule.

The shop supervisor reviews the master schedule and prepares the work center schedule eachweek. He reviews it on a daily basis to assure maximum utilization of shop resources. The shopsupervisor will coordinate with other shops when more than one craft is required for the job.

Crafts can be involved at various stages of the work and must be scheduled in accordance withthe proper sequence. For-example, the carpenter would open up an area to permit the electricians tomake a repair. The carpenters would then close the area after the repair with the painters arriving

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later for the final touches. To properly schedule the job it is necessary to divide the carpenters timeamong two distinct work phases assuring that all electrical repairs are accomplished before the car-penters return to the workplace. Obviously, the painters would not be scheduled until all other craftshave concluded their assignments.

At very small activities, the Shop Planner/Scheduler would plan both the master and workcenter schedule.

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CHAPTER 9. MANAGEMENT REPORTING

9.1 GENERAL. Management reporting, in some form, is required for any management system.Generally, management reports are compiled from data currently available within the system to pro-vide a periodic status review for determining if special management action is required. Maintenancemanagement reports provide performance and manpower distribution information. Historicaltrends can be identified to assist in future workforce planning.

9.2 REPORTING REQUIREMENTS. Minimum reporting requirement should include:

(1) actual manhours expended on individual Specific Job Orders,

(2) full accountability of how the shop workday was utilized, and(3) identification of factors causing disruptions to work assignments.

Any activity that has the accounting potential to prepare the reports identified in Chapter 10 ofNAVFAC MO-321 is encouraged to utilize these procedures, particularly if Engineered Perform-ance Standards are utilized. These reports are:

(1) Tabulated Report “A’‘-Feeder for the Labor Control Report,

(2) Tabulated Report “B”- Completed Job Orders, and(3) Maintenance/Utilities Labor Control Report.

Activities with less than 75 personnel in the Maintenance and Utilities Branches, combined,that do not have full accounting potential, are encouraged to utilize the following procedures:

(1) Completed job orders are to be returned from the shops with actual craft manhours clearlyidentified on the document. Craft variations in excess of 10 percent, or four manhours, whichever islarger, should include a brief explanation by the craft supervisor identifying the condition causingthe variance.

(2) A combination labor distribution/time card should be utilized to account for the completeworkday of each craftsman. This information should be coordinated with fiscal requirements.

(3) The following Labor Class Codes can be utilized to account for the workday:

01-Emergency/Service Work (jobs less than 16 manhours),03-Preventive Maintenance Inspection,04-Standing Job Orders-Not Estimated,05-Standing Job Orders-Estimated,07-Specific Job Orders (jobs over 16 manhours),41-Supervision, General Office and Clerical,45-Leave, and46-Miscellaneous Overhead.

The overhead codes are defined as follows:

• Code 41-Charges to this code include all supervision, clerical, shop planning, andscheduling functions.

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l Code 45-This code identifies all leave for sick, annual, military, holiday, terminal, juryduty, and all other leave for which pay is received.

l Code 46-This code includes non-productive time for official business such as training,safety meetings, blood donations, time lost waiting for work assignments, or changes towork assignments.

(4) The job order numbering system should be developed in cooperation with the stationComptroller. The only Public Works requirement for the system would be serialization ability toobtain individual Specific Job Order charges.

(5) A monthly summary tabulation by Labor Class Codes should be developed.

9.3 USE OF REPORTS. The completed job order report, together with comments included on thecompleted job order document returned by the shops, should enable management to determinewhether major problems are present. Common problems in this regard are poor estimating, low pro-ductivity, and poor supervision. If variations are consistently large, management action should bedirected toward correcting the factors identified as causing the problems. Future reports and obser-vations will identify whether the corrective action has been successful.

The Maintenance/Utilities Labor Control Report provides a summary of manhours expendedon each Labor Class Code permitting management to realistically project manpower requirementsfor the various work categorizations. The report facilitates preparation of the Manpower Avail-ability and Work Plan Summary and enables management to determine if the trend to issue fullycontrolled work is increasing or decreasing. The goal is maximum use of planned and estimated,scheduled, and cost accounted work. An increasing use of unestimated Standing Job Orders andEmergency/Service Work could indicate a reduction in the effectiveness of the Maintenance Man-agement System.

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CHAPTER 10. RESOURCES MANAGEMENT

10.1 GENERAL. The Resources Management System (RMS) is established and operational. Therewere few significant changes caused by RMS in Public Works Department financial management.Recent emphasis in developing a management oriented budget has prepared financial personnel fordetailed budget presentations required under RMS. One key concept in this regard is the applicationof unit costs. Units of measure are identified on the budget form for most accounts. Quantity figuresmust be provided by the activity. Emphasis on quantitative considerations forces awareness of thefull scope of any maintenance function, increases in area maintained, and the cost per unit ofmeasure for maintenance work.

10.2 BUDGET PREPARATION AT A SMALL ACTIVITY. There is often the mistaken impres-sion that budget preparation at a small activity is simple because the facilities are not extensive andthe number of personnel is not great. Analysis shows that small activities may have as many func-tional areas to consider as large activities. The difference is one of quantity of units maintained, notvariety or meeting maintenance standards. A budget line item representing 25 percent of an activity’sMaintenance of Real Property (Ml) money is important whether the budget is $4,000, $40,000 or$400,000. These amounts warrant close planning, evaluation, and expenditure control to ensure themost effective funds utilization. Accepting this premise, how is a budget prepared?

Major claimants will issue specific planning data and budgetary guidelines to their activities forsubmission of operating budgets. Commanding Officers will prepare operating budgets based uponthis guidance. The degree of Public Works Department participation in budget development varieswidely from activity-to-activity. It is considered important to have Public Works managers heavilyinvolved in the budgetary process. The authoritative source for detailed budget guidance in theentire spectrum of budget preparation is found in NAVSO P-3006, Financial Management ofResources.

Never assume that the presence of a budget line item year after year automatically establishes itsnecessity; or that the amount indicated is necessarily justified by current requirements. Look forquantity changes since the last budget submission, such as increases or decreases, deleted items,eliminated functions, or new functions. All items must be evaluated every year and justified in termsof current relative importance. An area that was a “must” last year may no longer be necessarybecause of a mission change.

Preparation of the budget is a continual action. Workload requirements and changes in thequantities of plant maintained should be noted during the entire year. The management system pro-vides the information and evaluation measures necessary for the budget process. A last minute rushto complete the budget will result in errors and forgotten justifications. Although budget instruc-tions vary from year-to-year, and among major claimants, the basic building blocks remain thesame, and nothing is better than total familiarity with your local requirements.

10.3 lDENTIFICATlON OF REQUIREMENTS. In general terms, requirements can be broadlyclassified in three categories: variable, repetitive, and planned. Variable requirements include suchthings as breakdowns and Emergency/Service Work. They are items that occur every year, but in

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different forms and can be predicted only by historical trends. Repetitive items can be identifiedwith a reasonable degree of accuracy. This includes items such as grass cutting, janitorial services,PMI’s, etc. Planned items are requirements that should be accomplished but can be deferred if thefunding situation is limited. Items in this category include improvements, innovations, alterations,one time maintenance, etc. Degrees of priority can be identified within all these categories. If thePublic Works manager is familiar with all of these considerations, then it is possible to identifybudgetary requirements in any manner that the major claimant requires.

10.4 BUDGET JUSTIFICATION. Funding levels have dropped in recent years and maintenancecosts have increased dramatically. Little relief can be provided by the major claimant to alleviatethis situation. Each activity must be prepared to carefully review all work performed on the basis ofneed, and tighten spending policies. It is important that each activity receive its fair share of avail-able resources. Budget submittals should be prepared as realistically as possible. It is important toclearly identify and fully quantify increased resource requirements caused by expanded mission ornew facilities maintenance. If funding levels have decreased to the point where emergency conditionsare prevalent at the station, clearly identify the effect if funding increases are not provided.

10.5 BUDGET EXECUTION. The most difficult part of the budget cycle is transforming availablefiscal year funds into an effective operating plan. The maximum use of information availablethrough the Maintenance Management system is necessary to develop a practical plan. The Con-tinuous Inspection System is a valuable means of identifying hard core maintenance requirements.

To determine the most important requirements, it is necessary to identify the minimum numberof work items by budget function that must be funded to keep the station operational and able toperform its basic mission. Most exterior and interior painting would be excluded. Interior paintingof a mess hall or hospital unit for sanitary reasons would be considered essential if directed by anInspector General, medical inspection, or noted as critical during Continuous Inspection. Repairand maintenance of an operational area would qualify, while upgrading facilities would not. ReaI-istic, fixed, requirements determination for activity survival is the budget preparation starting point.After this “hard-line” approval, the next step is to analyze your maintenance and repair work anddetermine which will bring the greatest long-range economic advantage. It may be reroofing ratherthan roof patching on some buildings; completely resurfacing a stretch of road rather than patching;or painting at the best time of the year.

Evaluate established frequencies of occurrence for selected types of repetitive work. Janitorialand grounds work tend to be accepted items repeated year after year without question. All repetitiveitems should be evaluated periodically and justified in terms of their current relative importance.Another approach is to consider the consequences if a function is or is not performed, or if it is par-tially rather than fully accomplished. Workload items such as minor construction, alterations andimprovements must also be considered since these items are often mission related. It is importantthat the plan include a balanced mixture of work. Often it is difficult for the Public Works Officerto determine priorities for this type work. It is suggested that each activity establish a Station Plan-ning Board to determine priorities for larger items of non-maintenance work. Be sure to balance allcategories and type of funds to assure the orderly expending of all funds available.

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CHAPTER 11. FACILITIES PROJECTS

11.1 GENERAL. Facilities Projects pertain to the construction, alteration, repair, and maintenanceof Class I and II real property and the installation of equipment. The current Facilities ProjectsManual, OPNAVINST 11010.20 details the policies, reporting procedures, and mechanics of sub-mitting facilities projects. This manual delineates the fiscal requirements and approval authority forthe various categories of facilities projects. The major categories of projects are:

(1) construction/alteration projects to be included in the military construction program(MCP),

(2) minor construction/alteration projects not included in the MCP,

(3) maintenance and repair projects, and

(4) equipment installation projects.

OPNAVINST 11010.20 should be consulted for all questions regarding facilities projects whenthey are prepared. The following items are some of the important points to be stressed and commonpitfalls to be avoided when submitting projects:

(1) NAVFAC 9-l1014/64, Special Projects Request should be concise and yet contain all perti-nent information.

(2) Work Authorization/Estimate (NAVFAC 11014/22 and 11014/22A) should be detailedenough for reviewing commands to verify costs and to help determine the category of work in-volved-avoid “lump sum” estimates.

(3) Always include applicable drawings or sketches even if the draftmanship is not of profes-sional quality.

(4) Provide relevant photographs that illustrate the problem-avoid bulky project packagesthat contain extraneous, repetitive or meaningless photos.

(5) Work, classified as construction, on facilities with the same 3-digit category code must beincluded in a single project. Every project should result in a complete and usable facility.

(6) Projects for repair and/or maintenance of facilities with the same 3-digit category codeshould not be combined. Individual projects for each separate facility should be prepared andsubmitted.

(7) Equipment installation projects are those which involve the installation of personal prop-erty. (See Chapter 6 of the Projects Manual.)

(8) Project numbers are assigned sequentially and denote the fiscal year in which they wereoriginally submitted. The number remains unchanged for the life of the project and in no way re-flects the station’s priority.

(9) When the “Special Project Request Form” is used to request budget augmentations,reclamas, or funds for station maintenance and repair projects of less than the amount specified inOPNAVINST 11010.20, the Facilities Project identification system should not be used as it causesconfusion and extraneous paper work.

Appendix C of the Facilities Projects Manual gives the approval levels and fund sources forfacilities projects for regular shore activities, production facilities at Navy Industrial Fund, andModified Industrial Activities, and reserve activities.

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CHAPTER 12. APPLIED BIOLOGY SERVICES

12.1 GENERAL. The Naval Facilities Engineering Command Applied Biology Program providesguidance and supervision for the prevention and control of biologically related pest problems at

shore activities. The program implements the Department of Defense and Secretary of the Navy’sstandards on the use of pesticides, pest control operations, and environmental protection. Adminis-tered by EFD Special Assistants for Applied Biology, the program covers a wide range of problems

and services for the activity Commanding Officer. The program is coordinated with the other serv-ices through the Armed Forces Pest Control Board.

12.2 PEST PROBLEM AREAS. Pest problem areas under the technical responsibility of theApplied Biologists include:

(1) Insects and related pests.

(a) Disease vectors such as mosquitoes and flies which are a potential hazard to the healthand welfare of station personnel. In this area the program shares responsibilities with the Bureau ofMedicine and Surgery.

(b) Household and nuisance pests which occur in administrative buildings, barracks, hous-ing units and industrial offices and shops.

(c) Structural pest control including construction and maintenance considerations to pre-vent access by structural pests.

(d) Vegetation pests of turf, ornamental plantings and trees.

(e) Rodents and other host animals which support and spread pest species and diseases.(f) Stored Products pests which infest subsistence, furniture, fabrics, leather and wood

products.(2) Weeds and Undesirable Plants. Selection and use of herbicides will be coordinated with the

EFD Staff Conservationist. The Applied Biologist is responsible for training in selection factors,application, safe handling and storage of herbicides.

(3) Wood Protection. The Applied Biologist is responsible for selection of preservatives, meth-ods of preservation and identification of decay organisms in wooden structures, protection ofwooden structures, utility pole plants and marine piles and railroad crossties.

12.3 TECHNICAL SERVICES. Technical services provided by the Program for activities are asfollows:

(a) Annual visits to review the activity’s pest control program, its operation, safety andenvironmental impact.

(b) Provide on-the-job training for station pest control personnel and building inspectors.

(c) Sponsorship of area training and DOD certification courses for pest control personnelto maintain up-to-date information on pesticides, technology, safety and environmental protection.Planner-Estimators, supervisors and building inspectors who have influence over pest control func-tions are trained at these courses.

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(d) Review and approval, required by DOD, for pesticide procurements; and guidance inselecting appropriate pest control equipment for the activity.

(e) Direction of control measures in support of Federal or area quarantines to preventtransmission of pests to uninfested areas.

(f) Assistance in establishment of cooperative control programs for control of pest prob-lems of joint interest to military activities and civilian communities.

12.4 PUBLICATIONS. The Military Entomology Operational Handbook (MO-310) published bythe Board covers most pest problems. For weed problems, the Herbicide Manual (MO-314) is avail-able. For wood protection, the Navy Wood Preservation Manual (MO-312) carries extensive infor-mation on wood pests, methods and preservatives.

12.5 SAVINGS. In the areas where the Applied Biology Program is well established, such as pre-ventive pest control, soil treatment during construction, and wood preservation, sizable savings canbe realized through increased service life and reduced maintenance efforts.

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References(To be found in this publication)

PublicationsNAVFAC MO-310NAVFAC MO-312NAVFAC MO-314NAVFAC MO-321NAVFAC MO-322NAVFAC P-164NAVFAC P-318NAVFAC P-349NAVSO P-3006

InstructionsOPNAVINST 11010.20

FormsNAVFAC 9-11014/8NAVFAC 9-l1014/20NAVFAC 11014/21NAVFAC 11014/22NAVFAC 11014/23NAVFAC 11014/38

Military Entomology Operational HandbookNavy Wood Preservation ManualHerbicide ManualMaintenance Management of Shore FacilitiesInspection of Shore Facilities (Volumes 1 and 2)Detailed Inventory of Naval Shore FacilitiesOrganization and Functions for Public Works Departments (PWDs)NAVFAC Documentation IndexFinancial Management of Resources

Facilities Projects Manual

Material Requirements/Issue Document (Non-Mechanized)Work Request (Maintenance Management)Emergency/Service Work AuthorizationWork Authorization/Estimate (Maintenance Management)Job Phase Calculation SheetInspector’s Report

Reference-l

APPENDIX A

GENERAL WORK CONTROL PROCEDURESFOR WORK EXCEEDING 16 MANHOURS

Work Generation

Customer Work RequestsCommand InspectionsContinuous Inspection Feedback

PUBLIC WORKS WORK CONTROL FUNCTION

Work Reception Work Planning

1. Screen for adequacy ofinformation.

2. Assign control number.

3. Post to job requirementsand status chart

4. Forward to Engineering/Maintenance Control

9. Post information to jobrequirements and statuschart

10. Forward to work planning

19. Close out Job Order andforward to work planning.

Shop Planning/SchedulingSupervision

11. Prepare job order andassign accounting data

12. Prepare shop load plans

13. Prepare material requisitionsand forward to supply

14. Schedule accomplishment ofwork

15. Keep status of material, andmove material to work site atproper time.

16. Accomplish work

17. Keep records of manhourexpenditures for each joborder.

18. Return completed job ordercopy to Work Reception assoon as work is completewith actual manhours posted

20. Review completed work ex-penditures and send devia-tions to Engineer/MD

Engineering/Maintenance Control

5. Review for need

6. Decide method of accomplishment7. Decide priority of work accom-

plishment

8. Forward to work reception

21. Review deviations in the manage-ment system

INDEX

Subject Paragraph Subject Paragraph

Administrative Division . . . . . . . . . . . . . . . . 3 . 3 . 2 Operator Inspection. . . . . . . . . . . . . . . . . . . 4.1.3Organization.. . . . . . . . . . . . . . . . . . . . . . . . 3.3

Biology Services. . . . . . . . . . . . . . . . . . . . . 12.3Pest Problem Areas. . . . . . . . . . . . . . . . . 12.2Publications.. . . . . . . . . . . . . . . . . . 12.4Technical Services . . . . . . . . . . . . . . . . . . . 12.3

Budget . . . . . . . . . . . . . . . . . . . . . . . . . . . 10.1Execution . . . . . . . . . . . . . . . . . . . . . . . 10.5Justification.. . . . . . . . . . . . . . . . . . . . . 10.4Preparation . . . . . . . . . . . . . . . . . . . . . . 10.2Requirements. . . . . . . . . . . . . . . . . . . . . 10.3

Planning and Estimator/Inspector.. . . . . . . . . 3.4.3Planning and Estimating . . . . . . . . . . . . . . . . . 2 . 4Preventive Maintenance Inspection. . . . . .4.1.2,4.4

Reference Manuals.. . . . . . . . . . . . . . . . . . . . 1.4Resources Management.. . . . . . . . . . . . . . . . 10.1

Classification of Work . . . . . . . . . . . . . . . . . . 5 . 1Clerical Support . . . . . . . . . . . . . . . . . . . . . 3.4.4Continuous Support. . . . . . . . . . . . . . . . . 2.4,4.2Control Inspections . . . . . . . . . . . . . . . . 4.1.1,4.3

Emergency/Service. . . . . . . . . . . . . . . . . . . . 5 . 2Engineering. . . . . . . . . . . . . . . . . . . . . . . . 3.4.2Engineering Division . . . . . . . . . . . . . . . . . . 3.3.4Engineering Field Division. . . . . . . . . . . . . 1.5,3.5Exceptions to PMI. . . . . . . . . . . . . . . . . . . . 4.4.1

Scheduling. . . . . . . . . . . . . . . . . . . . . . . . . . 6.2Scheduling Procedures. . . . . . . . . . . . . . . . . . 6.3Shopload Plan.. . . . . . . . . . . . . . . . . . . . . . . 6 . 4Shop Planning. . . . . . . . . . . . . . . . . . . . . . . 3.4.6Shop Scheduling. . . . . . . . . . . . . . . . . . . . . . 2.4Shops Division . . . . . . . . . . . . . . . . . . . . . . 3.3.5Shop Supervision.. . . . . . . . . . . . . . . . . . . . 3.4.5Specific Job Orders . . . . . . . . . . . . . . . . . . . 5.3.1Staffing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 . 4Standing Job Orders. . . . . . . . . . . . . . . . . . . 5.3.2Status Chart. . . . . . . . . . . . . . . . . . . . . . . 3.4

Use of Reports . . . . . . . . . . . . . . . . . . . . . . . 9.3Facilities Projects . . . . . . . . . . . . . . . . . . . . 11.1Family Housing Division. . . . . . . . . . . . . . . . 3.3.2Frequencies of Inspections . . . . . . . . . . . . . . . 4.2

Inspection Reports . . . . . . . . . . . . . . . . . . . . 4 . 5

Work Classification. . . . . . . . . . . . . . . . . . . . 5.1Work Input Control. . . . . . . . . . . . . . . . . . . . 2.4Work Plan Summary. . . . . . . . . . . . . . . . . . . 6.3

Job Orders.. . . . . . . . . . . . . . . . . . . . . . 5.3,7.1Job Requirements Chart.. . . . . . . . . . . . . . . . 6.2Job Priority . . . . . . . . . . . . . . . . . . . . . . . . . 6.5

Maintenance Management System. . . . . . . . . . . 1.2Elements.. . . . . . . . . . . . . . . . . . . . . . . . 2 . 4Evaluation.. . . . . . . . . . . . . . . . . . . . . . . 1 . 3Objectives . . . . . . . . . . . . . . . . . . . . . . . . 2 . 2Purpose . . . . . . . . . . . . . . . . . . . . . . . 1.1,2.3

Management Reporting.. . . . . . . . . . . . . . 2.4,9.2Manpower Availability. . . . . . . . . . . . . . . . . . 6.3

Index-1

U.S. GOVERNMENT PRINTING OFFICE: 1995-604-028/20035