The planning and Programming Process - Directrouter.com

The Planning&Programming ProcessMajor Pat Miller, USAF, PE1

LESSON OBJECTIVEOBJECTIVE: Comprehend Basic Planning andProgramming Fundamentals for Application in aContingency EnvironmentTOPICS:Key TermsPlanningProgrammingProject DevelopmentAFIT Graphic2

REFERENCES– AFI 32-1032, Plan/Program APF Projects– AFI 32-1021, Plan/Program MILCON Projects– AFI 65-601 V1, Budget and Guidance Procedures– HQ USCENTCOM Regulation 425-1: Construction andBase Camp Development in the USCENTCOM AOR, “TheSand Book”- 15 April 2009– AR 420-1, Facilities Programming– DA PAM 420-11– DOD Financial Mgt Regs– USFOR-A Pub 1-06, MAAWS-A– AFCENT & ARCENT Programming Guidance3

SETTING THE STAGEIMPORTANT TO REMEMBER: In a contingencyenvironment: All “normal” programming rules apply– Tax payer dollars still used to fund requirementsWhat Differs, then?– Time and Resource balance is very different– Some unique funding avenues– Some different construction standards/practices– Some different Policies4

KEY TERMS“Programming is the process of acquiringboth the authority and the resourcesnecessary to accomplish planned work.---AFI 32-10325

THE PROCESSPLANNINGPROGRAMMINGPROJECTDEVELOPMENTIdentifyRqmtsValidateDevelopScopeDevelopCostCLASSIFYWORKMaintRepairConstDETERMINEFUNDSOURCEAPFNAFSELECTPROGRAMAVENUEO&MMILCONP-341NAFProject RecordCoordinationFacilities BoardDocumentationApprovalE.A.MFH7

NEED TO UNDERSTANDPLANNING TOOLSTheater Posture Plan (J5 document ):• Articulates basing strategy and posture ( “Dots on the Map” )• Approved by Commander; adjusted during implementation• Under pins all other productsMaster Plan (J4 document ICW with J5):• Summarizes basing presence (personnel, equipment,mission…aka “Blocks on the Dots” ) and the associatedinfrastructure requirements to support presence• Primary document for driving implementation of overall TPPrequirements9

NEED TO UNDERSTANDResponsible PartyBase Operating Support Integrator (BOS-I)– Manage Base Master planning efforts for all Services/forces– Provide contingency construction project requirements onDD1391– Responsible for programming and funding projectsSenior Airfield Authority (SAA)– Prepare Airfield Master Plans– Coordinate with appropriate BOS-I– Responsible for programming and funding projectsNOTE: Lead Component BOS-I Matrix can befound on CCJ4-P’s website10

NEED TO UNDERSTANDCONSTRUCTION STANDARDSConstruction at contingency locations is typically limited to“expeditionary” or “temporary” standards– “The Sand Book “(CENTCOM Reg 415-1) defines constructionstandards; use in conjunction w/ AT/FP OPORDs, UFCs and FRAGOsConstruction at GDP locations can be “expeditionary,”“temporary,” or “permanent”– Surge rqmnts typically met w/ expeditionary or temporary standards– Steady state rqmnts are met w/ permanent construction standardsExpeditionary Temporary Permanent11

PROJECT PLANNING― ID Requirements― Verify Necessity― Is there already a project planned?― Can it be added to an existing project?― Does this already exist?― Check for Compatibility w/ Base Master Plan― Check Against Other Criteria― CENTCOM Reg 415-1, “The Sand Book”― Space criteria― AT/FP― CENTAFI 32-1056 (airfield standards)12

PROJECT PLANNING― Cost Estimating Tools― Historical costs/contractor bids― Previous 1391s― MAAWS-A cost estimating template― DOD Pricing Guide (UFC 3-701-09)― Consider― Influencing factors (security, transportation,location, etc.)― Contingency― SIOH13

THE PROCESS: PROGRAMMINGPLANNINGPROGRAMMINGPROJECTDEVELOPMENTIdentifyRqmtsValidateDevelopScopeDevelopCostCLASSIFYWORKMaintRepairConstDETERMINEFUNDSOURCEAPFNAFSELECTPROGRAMAVENUEO&MMILCONP-341NAFProject RecordCoordinationFacilities BoardDocumentationApprovalE.A.MFH14

IMPACT OF WORK CLASS:APPROVAL LEVELS$7.5 M$5 MCongressSAF/IEIInstall/CCMAJCOMCongress$750KConstMAJCOMMaintRpr15Construction

SPECIAL CASE:MINOR CONSTRUCTION$3M$2M$750K$0K(UMC)P-341LHSMILCONP-341O&MMC-LHSO&M Minor ConstConstructionO&M FUNDS (3400)MILCON FUNDS (3300)• National DefenseAuthorization act for FY 96:– For work solely to correctdeficiencies that threatenlife, health, safety:• O&M MC thresholdincreased to $1.5 M$1.5M• P-341 (UnspecifiedMinor Construction,$750K UMC) thresholdincreased to $3 M– Authorization: SAF/IEI16

Maintenance….?Repair……?Construction…..?Minor Construction…..?Work Classificationdescribes the nature ofthe work that is to beaccomplished on afacility.SOURCES:• 10 USC• AF: AFI 32-1032• Army: AR PAM 420-11& AR 420-1

WORK CLASSIFICATIONMaintenance:Work required to preserve real propertysystems or components and preventpremature failure or wearing out of the same.Includes work to prevent and arrestcomponent deterioration, as well aslandscaping or planting work which is notcapitalized.18

WORK CLASSIFICATION:MAINTENANCE EXAMPLES― Protective Coatings― Painting― Cathodic Protection― Sealants― Roofs― Roads― Pothole repair19

WORK CLASSIFICATIONRepair:Work to restore real property systems orcomponents to such condition that theymay effectively be used for theirdesignated functional purposes.…Need not have failed to permit a repairproject.20

WORK CLASSIFICATION:REPAIR EXAMPLES― Repair by replacement― Remedy Code Deficiencies (NEC a big issue)― All Interior Rearrangements (including load-bearingmembers)― Utility Modifications for Current Usage― Installation of Mezzanines (

WORK CLASSIFICATIONConstruction:To build, develop, or extend realproperty systems or components22

WORK CLASSIFICATION:CONSTRUCTION EXAMPLES― Creating new or enlarging (volume or footprint)― Facility Replacement/Relocation―Upgrading Surface of Unpaved Transportation Systems(gravel placement on dirt)―All Work Associated with New Construction/FacilityReplacement―Site work/Landscaping―Demolishing facilities in way of construction―Environmental remediation23

FUNDING AUTHORITIES― Host Nation― OCO MILCON― Regular MILCON― Contingency Construction Authority― Unspecified Minor Military Construction (P-341)― Troop Labor― O&M/OMA24

O&M DELEGATED APPROVAL LEVELS:EXAMPLE OF DELEGATION FOR USFOR-ADocument Approval AuthorityOrganizationARCENT/CongressHQ USFOR-A DCDR-SHQ USFOR-A CoSCSTC-A/CCRegional or USFOR-A Detachment CCTF Rushmore/CCThresholdAll construction over $750K (Exceptionfor Life Health Safety)Construction < $750K; LHS > $750Kand < $1.5M; Repair < $5M; Total

O&M DELEGATED APPROVAL LEVELS:EXAMPLE OF DELEGATION FOR USAFBase Support (APF 3400)MinorConstructionRepairMaintenanceUSAFCENT/A7 $700K $4,000K $4,000KUSAFCENT/A7-2 $700K $4,000K $4,000K332 AEW/CC (Balad) $300K $500K $500K376 AEW/CC (Manas) $300K $500K $500K379 AEW/CC (Al Udeid) $300K $500K $500K380 AEW/CC (Al Dhafra) $300K $500K $500K386 AEW/CC (Ali Al Salem) $300K $500K $500K407 AEG/CC (Ali) $300K $500K $500K447 AEG/CC (Baghdad IAP) $300K $500K $500K451 AEW/CC (Kandahar) $300K $500K $500K455 AEW/CC (Bagram) $300K $500K $500K506 AEG/CC (Kirkuk) $300K $500K $500K26

MAJOR PROGRAMMING RULES― 75% Rule for Repair Projects (50% for Army)― Complete and Useable Facility―12-month rule for New Construction―Current Repair Rule (24-month Repair Rule)― Re-Programming: exceeding threshold, exceedingPA or scope by 10% (25% for Army)― Don’t Mix O&M MC with:― P-341 MC― MILCON27

PLANNINGTHE PROCESS:PROJECT DEVELOPMENTPROGRAMMINGPROJECTDEVELOPMENTIdentifyRqmtsValidateDevelopScopeDevelopCostCLASSIFYWORKMaintRepairConstDETERMINEFUNDSOURCEAPFNAFSELECTPROGRAMAVENUEO&MMILCONP-341NAFProject RecordCoordinationFacilities BoardDocumentationApprovalE.A.MFH28

JOINT FACILITIES UTILIZATION BOARD(JFUB)― Evaluates and Reconciles Component Rqmnts― Reviews All Facility Rqmnts― Authorizes/Prioritizes (but does not fund) Projects― Members― Voting: J3, J4, J6, and J8― Non-voting: SJA, Force Protection, Contracting, andothers as required29

PURPOSE OF JFUB PACKAGE― Project Documents Must Be Sufficient to Allow anIndependent Reviewer to Understand The:― Requirement― Benefit― Classification of Work― Total Cost (Funded and Unfunded)― Impact If Not Provided― Timing of Project Requirements― Captured in a JFUB package30

JFUB PACKAGE ELEMENTS― Operational Needs Statement/Letter of Justification― Independent Gov’t Cost Estimate―Site Map/Location Map―JFUB Quad Chart― Legal Opinion― Statement from Master Planner― LOGCAP Checklist31

1391 PACKAGETypical items in 1391 Package for higher approval:DD Form 13911391c with Location & Site Plan– Include standoff from US Controlled perimeterE-mail transmittal– List of projects completed with that Cat Code inthe last 12 months32

SUMMARYOBJECTIVE: Comprehend Basic Planning andProgramming Fundamentals for Application in aContingency EnvironmentTOPICS:Key TermsPlanningProgrammingProject Development33

PARTING COMMENTS― Programming Rules Apply No Matter What― Fighting a War w/ CONUS Fiscal Restraints― Environment Adds Constraints (Time, Mission, etc.)― Your Job is to Keep the Boss Out of Trouble― Balance the Rules with the Mission― Understand the Rules for the Service Employing You34

QUESTIONS35

BACK-UPSLIDES36

COSTESTIMATING37

FUNDED VS. UNFUNDED VS.EXCLUDED COSTSFunded Costs– Costs charged to thefacility projects– Count towardsstatutory approvallimits - $750KUnfunded Costs– Cost charged toother appropriationsor fund sources– Capitalized, but donot count againstapproval limitsExcluded Costs– Does not count againstapproval limits– Not capitalized38

FUNDED COSTSMaterials, Contract Labor, Non-US LaborRPIE – equipment that is integral to the facilitySite work– Utility connections– Site clearing– LandscapingTransportation and travel costs (even for RED HORSE)Supervision, Inspection, & Overhead (SIOH)Air Force Real Property Government FurnishedEquipment (GFE)SOURCE: AFI 32-1021 – Attachment 1, AFI 65-601 V1

UNFUNDED COSTS (NO-CLASS WORK)Design (except design-build)U.S. Military labor, including RED HORSEReal Property GFE from other DOD or governmentagencies– If the AF gives GFE to itself, it’s a funded costWar Reserve Materials (Tents, ECUs, generators, etc)Modular Force Protection (T-walls, barriers)Relocateable facilities (trailers, pods, CHUs, etc)SOURCE: AFI 32-1021 – Attachment 1 & AFI 65-601 V1 -9.14.340

EXCLUDED COSTS (NO-CLASS WORK)Furniture including pre-wired work stationsComputers, electronics, etcEnd User type of equipmentUser should pay for these from their own funds!!!!41

SPECIAL CASE:BUILDING DEMOLITIONIncident (In way of construction project)– APF Project: ConstructionIsolated: No Class42

EQUIPMENT CLASSIFICATIONA piece of equipment (i.e. not RPIE) can be purchasedwith O&M funds if $250K or less– Considered an unfunded cost– If >$250K must use Appn 3080 – long process– Relocateable Buildings (RLB)Tension Fabric Structures (TFSs) with a rigid frame– Cannot be purchased as “equipment” using perspecific Congressional instruction, purchase asconstruction– The TSF, foundations, utilities, and site prep areall considered Construction and included asfunded items on 1391s43

COMMUNICATIONS REQUIREMENTSIf project is new construction: everything is included asfunded costs except:– Actual comm equipment• Computers• Servers• UPS44

FUNDINGSOURCES45

HOST NATIONType of work: Construction &SustainmentScope of work: Large ScaleFacilities & RepairsTiming/Process: Unknown/VariesLocation Issues: Country Specific– Countries “Can Pay - ShouldPay” (CP-SP) principleTypical Uses: Infrastructure &Large FacilitiesHow to get started: Talk w/ HHQ onrequirement and strategy46

OCO MILCONType of work: ConstructionScope of work: Large ScaleTiming/Process: 1 year/CongressionalAppropriationLocation Issues: Locations driven byOSD and CongressTypical Uses: New Facilities andInfrastructureHow to get started: Submit 1391– CENTCOM validates, prioritizesand advocates requirements47

REGULAR MILCONType of work: ConstructionScope of work: Large ScaleTiming/Process: > 2 years/CongressionalAppropriation and AuthorizationLocation Issues: GDP LocationsTypical Uses: New Facilities &InfrastructureHow to get started: Submit 1391– Aligned with Base Master Plan– Can take five years to execute– May require TOA– May require HN approval48

CONTINGENCY CONSTRUCTIONAUTHORITY - CCAType of work: ConstructionScope of work: Large ScaleTiming/Process: < 1 year/OSD Approval(limited to $200M)Location Issues: Limited to IraqTypical Uses: “Break the Glass” rqmntsHow to get started: Submit 1391– CENTCOM validates, prioritizesand advocates requirements49

CONTINGENCY CONSTRUCTIONAUTHORITY – CCA (Cont.)• Project must meet the followingcriteria:• Construction > $750K necessary tomeet urgent operational rqmnts• Construction is not carried out atlocation where U.S. is reasonablyexpected to have a long termpresence• U.S. has no intention of usingconstruction after the operationalrqmnts satisfied• Level of construction is minimumnecessary to meet the temp rqmnts50

UNSPECIFIED MINOR MILITARYCONSTRUCTIONType of work: ConstructionScope of work: Medium ScaleTiming / Process: 4 months/Congressional NotificationLocation Issues: NoneTypical Uses: New Facilities andInfrastructureHow to get started: Submit 139151

TROOP LABORType of work: Construction &RepairsScope of work: Small ScaleFacilitiesTiming/Process: < 1 year / HHQApprovalLocation Issues: NoneTypical Uses: “Break the Glass”requirementsHow to get started: Submit 1391– RED HORSE reports directlyto COMUSAFCENT52

OPERATIONS & MAINTENANCE - O&MType of work: Minor Construction (MC),Repair, MaintenanceScope of work: Small Scale (MC

Operations & MaintenanceMain source for construction projectsCommon programming rqmnts:– Stress Tension Shelter (Fabric)– Billeting– Relocatable Buildings (RLBs)– Repair by Replacement– Tilt-up Construction– Troop Labor– MSA Berms– Runway/Taxiway Repair54

75%RULE55

Historic Facility?No75% RuleYesRepair Costs > 75% ofPlant ReplacementValue?NoProceedYesReplaceFacilityORTo proceed with proposed work:1) Accomplish Economic Analysis-- If repair notmore economical, must reclassify work asconstruction2) Obtain waiver to 75% rule3) Still must obtain approval for project. Waiverauthority may be different than approvalauthority!!NOTE: At NO time shall cost to repair facility exceed replacement cost. Ifrepair work exceeds replacement cost, facility MUST be replaced.