NASA Procedures and Guidelines
This Document is Obsolete and Is No Longer Used. Check the NODIS Library to access the current version: http://nodis3.gsfc.nasa.gov
NPR 8820.2G Eff. Date: June 05, 2014 Cancellation Date:	Facility Project Requirements (FPR)
| TOC | Preface | Chapter1 | Chapter2 | Chapter3 | Chapter4 | Chapter5 | Chapter6 | AppendixA | AppendixB | AppendixC | AppendixD | AppendixE | AppendixF | ALL |

Chapter 2. Project Development and Planning

2.1 Facility Project Development

2.1.1 The Center CoF Program Manager shall develop a systematic process for developing projects for potential inclusion in the CoF process. At a minimum, this process includes the following:

a. A method for the ongoing collection of institutional technical capabilities and programmatic requirements throughout the year.

b. A method for identifying operations and maintenance requirements such as excessive trouble calls on a system or facility.

2.2 Facility Project Planning

2.2.1 Acquisition Planning and Execution. The FAR and the NASA FAR Supplement control all of the acquisition phases for all facility project work. The FPM and Center facility planning office shall coordinate all acquisition planning and execution with the Center acquisition office to ensure compliance with these regulations.

2.2.2 Center Master Plan. The FPM shall ensure assigned CoF projects are in accord with the Center Master Plan. See NPD 8810.2, Center Master Planning and NPR 8810.1, Center Master Planning for Real Property for clarification on Master Planning policy and implementation.

2.2.3 Facility Project Manager (FPM). Centers assign an FPM for each CoF project. With support from the project team (see section 2.2.4), the FPM shall organize, manage, and direct facility project work to meet the requirements of this NPR.

2.2.3.1 FPMs should have experience with facility project management commensurate with the size and complexity of the project to be undertaken. As a minimum, FPMs should have completed the Construction of Facilities Management course. In addition, a NASA course in Project Management would be beneficial.

2.2.3.2 For larger and more complex projects, management should consider requiring FPMs to have the level of training provided by the NASA Project Management and Systems Engineering Competency Framework and the Federal Acquisition Certification for Program and Project Managers. Programs and projects with a life-cycle cost of $250 million or greater shall be managed by program and project managers who have been certified in compliance with the Office of Management and Budget (OMB)'s promulgated Federal acquisition program/project management certification requirements. For projects using a design-build approach, specific training in design-build acquisition and requirements is highly recommended.

2.2.4 Facility Project Team. The project team includes all project stakeholders such as representatives from the using organization, safety, health, engineering, fire protection, security, historic preservation, environmental, acquisition, operations and maintenance, and technicians.

2.2.5 Front End Planning (FEP). The FPM ensures that all project stakeholders take part in FEP: the process of gathering and developing sufficient information to define a facility project. Once the FPM and the planning team have identified the initial project goals and objectives, the FEP process starts and continues through the approval of the design statement of work (SOW) and the start of final design. The FEP phase establishes the project approach, requirements, and concept that provide the basis for project budget and approval.

2.2.5.1 In cooperation with the Contracting Officer (CO), the FPM decides whether to conduct the procurement as a Design-Bid-Build or as a Design-Build.

a. Design-Bid-Build. In this approach, the design is provided by an A-E company and then the approved design is put out for a construction bid with the winning contractor building the approved design (see Figure 1-3a).

b. Design-Build. In this approach, a single entity—the design-build team— works under a single contract with the Center to provide the design and then do the construction for the project (see Figure 1-3b). Different elements of the contract may be subcontracted out, but there is a single responsible organization. Front End Planning for design-build is not different from design-bid-build.

2.2.5.2 The FPM shall initially use the PDRI as the primary tool for FEP as a checklist to determine the project areas needing clarification and further study.

2.2.6 Facility Project Requirements. The following are required for all facilities projects regardless of fund source:

2.2.6.1 Functional Requirements Document⁴

a. The FPM shall complete a Functional Requirements Document that contains more detail than is found on the NASA Form 1509 and forms the basis for developing documents for budget formulation and/or project approval. The detailed requirements in this document need to be accurate and complete for use in further development of the project. The Functional Requirements Document includes the following elements:

(1) A clear and concise statement of purpose for the project.

(2) A description of the project, including existing conditions, problems, potential or preliminary solutions, operational need dates, studies, user requests, and reports or Operations and Maintenance (O&M) data. (The FPM either attaches supporting documentation as appendixes or at least notes how and where to obtain it.)

(3) Identification of all safety, health, environmental, and security requirements.

(4) Justification for the project.

(5) An SOW, if the project development and design work is to be done by contract.

(6) The funds source(s) and points of contact for those funds.

b. After the FPM writes the Functional Requirements Document, the project stakeholders (as described in section 2.2.4) shall review it.

2.2.6.2 Facility Project Management Plan

a. For CoF projects, the FPM shall prepare a Facility Project Management Plan that establishes a schedule for implementing a facility project and assigns roles, responsibilities, and authorities to develop and complete the project. The plan provides a detailed outline of the steps in the facility implementation process with well-defined milestones to measure progress. The Facility Project Management Plan includes the following elements:

(1) Identification of the FPM, the project team members, and other individuals or organizations responsible for project implementation.

(2) Functional Requirements Document (see section 2.2.6.1).

(3) A description of the planned work, including capacity, scope, location, sustainability elements, special features, and CCE.

(4) An acquisition plan outlining the contract method and schedule that can realistically support the operational need date(s).

(5) A project schedule with key milestones for planning, environmental, design, acquisition, construction (including long-lead items such as equipment items that are not typically stocked by suppliers), and activation.

(6) Configuration/change control procedures and responsibilities.

(7) A description of design review milestones, documentation, fiscal control procedures, and reporting frequency.

b. Prior to the start of final design work, the FPM shall present the management plan for approval to the Center official exercising project technical approval authority.

c. For discrete projects, the FPM shall submit the management plan to the NASA Headquarters FED for review and approval. Management plan approval on discrete projects is required before start of final design (after acceptance of the 30-percent design for Design-Bid-Build (see section 3.6.1.1, 30-Percent Design) or acceptance of the requirements document for Design-Build (see section 3.6.2).

2.2.6.3 Environmental Compliance. The FPM and the Center Environmental Manager shall ensure an environmental evaluation in accordance with NPR 8580.1, NASA National Environmental Policy Act Management Requirements, and Exec. Order 12114. 14 C.F.R. Part 1216, Environmental Quality, contains NASA's environmental regulations, including NASA's environmental policy and requirements for managing wetlands and flood plains and for considering the impacts of a proposed action on the environment, including for example, on historic and cultural resources, prior to undertaking the proposed action. These regulations include a list of categorical exclusions; that is, types of actions that, based on NASA's experience, do not significantly impact the environment under normal circumstances and that NASA established through public notice and comment in the Federal Register. To demonstrate under the National Environmental Policy Act (NEPA) that the potential impacts of a proposed construction activity have been considered, the administrative record will include an environmental checklist and accompanying Record of Environmental Consideration (14 C.F.R. § 1216.305(e)) determining whether further review is required.

2.2.6.4 Historic Preservation

a. For work on existing facilities with potentially historic significance, the FPM and the Center Historic Preservation Officer shall ensure the work complies with 36 C.F.R. Part 800, Protection of Historic Properties, of the National Historic Preservation Act (NHPA) prior to rewarding a Design-Bid-Build, Design-Build, Demolition, or Deconstruction contract.

b. The FPM and Center Historic Preservation Officer (HPO) shall ensure any mitigation or design requirements for compliance with 36 C.F.R. Part 800, Protection of Historic Properties are included in a Design-Build request for proposal (RFP) prior to issuance.

2.2.6.5 Energy. The following documents are applicable:

a. 10 C.F.R. Part 433, Energy Efficiency Standards for the Design and Construction of New Federal Commercial and Multi-Family High-Rise Residential Buildings, establishes performance standards for energy conservation that are mandatory for the design of Federal buildings.

b. 10 C.F.R. Part 435, Energy Efficiency Standards for New Federal Low-Rise Residential Buildings, establishes mandatory energy efficiency standards for the design of Federal buildings.

c. 42 U.S.C. § 6834, Federal Building Energy Efficiency Standards, establishes energy efficiency performance standards for Federal buildings.

d. 42 U.S.C. § 6835, Federal Compliance, limits the expenditure of Federal construction funds to Federal buildings that meet or exceed the energy standards of 42 U.S.C. § 6834.

e. 42 U.S.C. § 8253 (g) "Large capital energy investments," establishes requirements for the life-cycle cost effectiveness of large capital energy investments in existing buildings.

f. NPR 8570.1, NASA Energy Management Program.

2.2.6.6 Occupational Safety and Health

a. The FPM and the Center Occupational Safety and Health organization(s) shall identify safety and occupational health requirements in compliance with NPR 8715.3, NASA General Safety Program Requirements and NPR 8715.1, NASA Occupational Safety and Health Programs.

b. The FPM shall prepare a Preliminary Hazard Analysis and the Preliminary Hazard List and initiate the Facility Safety Management Plan (FSMP) containing the Hazard Analysis Tracking Index (HATI) in accordance with NPR 8715.3, NASA General Safety Program Requirements.

2.2.6.7 Security. NASA is required by Exec. Order 12977 to comply with the Interagency Security Council (ISC) Design Criteria for planning and designing new construction and major renovation. Refer to the Department of Homeland Security for security criteria documents for specific requirements (see The Risk Management Process for Federal Facilities: An Interagency Security Committee Standard - August 2013).

a. The Design-Basis Threat (DBT) establishes the characteristics of the threat environment to be used in conjunction with ISC physical security standards.

b. The application of the Physical Security Criteria for Federal Facilities is predicated on a Facility Security Level designation using the ISC's Standard, "Facility Security Level Determinations for Federal Facilities."

c. In addition to the ISC Design Criteria and in compliance with NPD 1600.2, NASA Security Policy, FPMs with cooperation from the Center security officer assigned to the project shall ensure NASA facility projects comply with the requirements contained within NPR 1600.1, NASA Security Program Procedural Requirements (section 7.7); NPR 1620.2, Facility Security Assessments; and NPR 1620.3, Physical Security Requirements for NASA Facilities and Property.

2.2.6.8 Risk Management. If applicable to any portion of a CoF project, the FPM shall ensure compliance with the risk management process as outlined in NPR 8000.4, Risk Management Procedural Requirements. The referenced NPR describes applicability. A project with projected cost growth could be considered an "at-risk project" if the projected growth exceeds $500,000 for a discrete project or 25 percent of its budget authority for a minor project.

2.2.6.9 Operations and Maintenance (O&M)

a. The FPM coordinates all facility project designs and planning with the Center O&M organization. The FPM shall ensure all facility project designs comply with accepted maintenance policies described below:

(1) Reliability Centered Maintenance Guide for Facilities and Collateral Equipment.

(2) Reliability Centered Building and Equipment Acceptance (RCB&EA) Guide.

(3) NPR 8831.2, Facilities Maintenance and Operations Management.

(4) Computerized Maintenance Management System (CMMS) requirements.

b. The FPM shall make sure that O&M manuals on the installed systems and equipment are provided and training of O&M personnel (including certification training for complex technical systems) is accomplished. For real property systems and equipment, these costs are included in the CoF budget. For noncollateral equipment and systems, these costs are included in the activation budget (Non-CoF). It is recommended that the O&M manuals be provided in electronic formats for ease of use.

2.2.6.10 Sustainability. The FPM and project team members shall incorporate the five guiding principles, LEED Silver certification as outlined in section 1.3, and the following:

a. Commissioning. Commissioning as defined in ASHRAE Guideline 0 shall be required on all new construction and major renovation projects and also on the installed items and associated systems of all other projects (for more commissioning guidance, see http://www.wbdg.org/project/buildingcomm.php). Include the five guiding principles and the requirements outlined in the USGBC LEED Silver certification in the commissioning plan as a minimum.

b. Exemptions. For projects incapable of meeting the sustainability requirements described in the above paragraph, the FPM and the project team shall incorporate sustainable design practices to the maximum extent practical using the LEED checklist and provide justification in an exemption request. Neither the use of life-cycle cost nor compliance with the five guiding principles can be included in the exemption request.

c. Construction Waste. During the planning stage, local recycling and salvage operations that could process site-related waste are identified. Where markets or onsite recycling opportunities exist, the designer shall incorporate into the construction contract documents to have the contractor recycle or salvage at least 50 percent of construction, demolition, and land-clearing waste, excluding soil.

d. Other Construction Standards. The FPM shall ensure compliance with the following standards or guidance:

(1) Indoor Air Quality (IAQ) During Construction. Sheet Metal and Air Conditioning Contractors' National Association IAQ Guidelines for Occupied Buildings Under Construction 2nd Edition, 2008. After construction and prior to occupancy, conduct a minimum 72-hour flush with maximum outdoor air, consistent with achieving relative humidity no greater than 60 percent. After occupancy, continue the flush as necessary to minimize exposure to contaminants from new building materials.

(2) Ventilation and Thermal Comfort. ASHRAE Standard 55-2013, Thermal Environmental Conditions for Human Occupancy, including continuous humidity control within established ranges per climate zone and ASHRAE Standard 62.1-2013, Ventilation for Acceptable Indoor Air Quality.

(3) Moisture Control. Implement a moisture control strategy for controlling moisture flows and condensation to prevent building damage and mold contamination.

(4) Daylighting. Maintain a minimum daylight factor of 2 percent (excluding all direct sunlight penetration) in 75 percent of all spaces occupied for critical visual tasks. Provide automatic dimming controls or accessible manual lighting controls and appropriate glare control.

(5) Low-Emitting Materials. Use materials and products with low pollutant emissions, e.g., low or no volatile organic compounds. This requirement includes adhesives, sealants, paints, carpet systems, and furnishings.

(6) Biobased Content. Use products meeting or exceeding the United States Department of Agriculture's biobased content recommendations. For other products, use biobased products made from rapidly renewable resources and certified sustainable wood products.

(7) Ozone-Depleting Compounds. Eliminate the use of ozone-depleting compounds during and after construction where alternative environmentally preferable products are available, consistent with both the Montreal Protocol and Title VI of the Clean Air Act Amendments of 1990 or equivalent overall air quality benefits that take into account life-cycle impacts.

(8) Recycled Content. For EPA-designated products, use products meeting or exceeding EPA's recycled content recommendations. For other products, use materials with recycled content such that the sum of postconsumer recycled content plus one-half of the preconsumer content constitutes at least 10 percent (based on cost) of the total value of the materials in the project.

e. Laboratories. The Labs21 program is cosponsored by the U.S. Environmental Protection Agency (EPA) and the U.S. Department of Energy (DOE). For major renovation and new construction of laboratories, the FPM shall incorporate and reference the recommendations of the Labs21 program, including the Labs21 Laboratory Energy Efficiency Profiler and the Labs21 Environmental Performance Criteria.

2.2.6.11 Cost Estimate. The FPM shall prepare or ensure that assigned CoF projects have a Facility Project Cost Estimate that includes every element described in the project Functional Requirements Document with enough accuracy to have a reasonable expectation of project success. For CoF projects, NASA Form 1510, Facility Project Cost Estimate summarizes this estimate with sufficient detail for review. When applicable to the specific project, cost estimates for the following major elements are required:

a. Land acquisition.

b. Site preparation, utilities, sidewalks, parking lots, and access roads.

c. Construction materials and labor.

d. Material and equipment tests performed at the construction site or at an offsite location.

e. Construction management services (including supervision, inspection, and engineering services (SIES) and network diagrams).

f. Commissioning services during design and construction.

g. Environmental compliance and protection.

h. Collateral equipment.

i. Subcontractor and general contractor cost, overhead, and profit.

j. General conditions, insurance bonds, and taxes.

k. LEED certification.

l. Recordation of as-built conditions.

2.2.6.12 Budget and Approval Documents

a. For all discrete and MRC projects (see section 1.4.18.2), the Center CoF Program or Project Manager shall submit NASA Forms 1509 and 1510 to FED.

b. For discrete projects, the Center CoF Program Manager shall provide FED a budget narrative and an LCCA in compliance with OMB Circular A-94 using ECONPACK.

c. The Center CoF Program Manager shall also provide NASA Forms 1509 and 1510 for demolition projects estimated to cost in excess of $1 million to FED.

2.2.6.13 Earned Value Management

a. Earned Value Management (EVM) is a tool that offers the potential for early visibility into the likelihood of cost/schedule problems. The FPM shall consider using EVM for any project with a Facility Project Cost Estimate of $20 million or more or where there is significant development or technical risk. Information on EVM can be found in section 7.11 of the NASA Schedule Management Handbook (SP-2010.3403).

b. A resource-loaded ⁵ schedule is an acceptable alternative to EVM when issuing a firm-fixed-price contract. If this option is selected, the construction contractor shall be required to submit a resource-loaded schedule for review and approval by the CO prior to beginning work.

2.2.7 Codes and Standards

2.2.7.1 The FPM shall ensure designs meet or exceed locally adopted, nationally recognized building codes and standards.

2.2.7.2 If a local jurisdiction has adopted a code that is not nationally recognized, the FPM shall ensure the design meets or exceeds the latest version of the International Building Code from the International Code Council.

2.2.7.3 Regardless of locally adopted building codes, the FPM shall ensure the design meets or exceeds the latest version of the National Fire Protection Association requirements for electrical systems, life safety, and fire protection, detection, and suppression.

2.2.7.4 The FPM shall ensure that all CoF design drawings comply with the United States National CAD Standard.

2.2.7.5 For all CoF project specifications, designers shall use SpecsIntact; i.e., the Unified Facilities Guide Specifications (UFGS) found in the Whole Building Design Guide. For equipment or systems not adequately specified by using the UFGS, the designer may use professional judgment to ensure a specification suitable for open and competitive procurement.

2.2.7.6 For projects where BIM is to be used, the FPM shall reference the latest version of the National BIM Standard and incorporate the NASA BIM Scope of Services and Requirements in the projects to the extent applicable.

2.2.8 Activation Budget Formulation

2.2.8.1 The FPM shall include budget formulation planning for activation during the planning phase of the project. The purpose is to identify costs associated with activation and ensure funds are available at the time activation starts. The budget planning identifies all costs necessary to outfit the facility for its intended operation and the source(s) of funding (see Chapter 5, Activation for details). NASA Form 1509 includes both the CoF funded and non-CoF funded estimated activation costs for the project.

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