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14 - - - - ~ - %I ~ II n Lt n [ ~1 KEY PRACTICES FOR DEVE~MNG SCOPES O FOk CECILIA PkOjECTS 1 WOkK AuthoreJ by G. EJ~orJ Gibson' bra one gel ~ PoRRos in conlunchon filth the FeJerol FocH#les CouncH' StonJlng Commode on OrgonlzoNonol Performance one management Ala gal Al THE NOTIONAL ACADEMIES PRESS Woshlng~n' D.C. _.nop.ed"

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NOTICE The Federal Facilities Council (FFC) is a continuing activity of the Board on Infrastructure and the Constructed Environment of the National Research Council (NRC). The purpose of the FFC is to promote continuing coopera- tion among the sponsoring federal agencies and between the agencies and other elements of the building commun- ity in order to advance building science and technology particularly with regard to the design, construction, acquisition, evaluation, and operation of federal facilities. The following agencies provided funding for this study: Department of the Air Force, Office of the Civil Engineer Department of the Air Force, Air National Guard Department of the Army, Assistant Chief of Staff for Installation Management Department of the Army, Army Corps of Engineers Department of Defense, Federal Facilities Directorate Department of Energy, National Nuclear Security Administration Department of Energy, Office of Engineering and Construction Management Department of Energy, Office of Science Department of Homeland Security, U.S. Coast Guard Department of Homeland Security, Immigration and Naturalization Service Department of the Interior, Office of Managing Risk and Public Safety Department of the Navy, Naval Facilities Engineering Command Department of State, Office of Overseas Buildings Operations Department of Transportation, Federal Aviation Administration Department of Veterans Affairs, Office of Facilities Management Food and Drug Administration General Services Administration, Public Buildings Service Indian Health Service International Broadcasting Bureau National Aeronautics and Space Administration, Facilities Engineering Division National Institute of Standards and Technology, Building and Fire Research Laboratory National Institutes of Health National Science Foundation Smithsonian Institution, Facilities Engineering and Operations U.S. Postal Service, Engineering Division As part of its activities, the FFC periodically publishes reports that have been prepared by committees of govern- ment employees. Because these committees are not appointed by the NRC, they do not make recommendations, and their reports are considered FFC publications rather than NRC publications. For additional information on the FFC program and its reports, visit the Web site at www.nationalacademies.org/ Tic or write to Director, Federal Facilities Council, 500 Fifth Street, N.W., Room 944, Washington, DC 20001 or call 202-334-3374. Printed in the United States of America 2003.

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FEDERAL FACILITIES COUNCIL STANDING COMMITTEE ON ORGANIZATIONAL PERFORMANCE AND MANAGEMENT 2001-2003 COMMITTEE CO-CHAIRS Stanley Kaczmarczyk, 2001-2003, Office of Governmentwide Policy, General Services Administration William Stamper, 2001-2002, Facilities Engineering Division, National Aeronautics and Space Administration Nancy Wilkie, 2002-2003, Office of Overseas Buildings Operations, Department of State COMMITTEE MEMBERS James Bartlett, Ir., Office of Engineering Operations, Naval Facilities Engineering Command Walter Borys, Office of Engineering and Technical Services, International Broadcasting Bureau Robert Chapman, Building and Fire Research Laboratory, National Institute of Standards and Technology Phyllis Clarke, Shore Facilities Capital Asset Management, U.S. Coast Guard Tony Clifford, Division of Engineering Services, National Institutes of Health Ray Cooke, Division of Facilities Planning and Construction, Indian Health Service David Eakin, Public Buildings Service, General Services Administration Lance Feiner, Office of Real Estate, Department of Commerce Dave Goodwin, Office of Science, Department of Energy Rob Hitchcock, Lawrence Berkeley National Laboratory, Department of Energy Howard Hochman, Division of Engineering Services, National Institutes of Health Mary Kfoury, Engineering and Design Division, Smithsonian Institution David Reese, Office of Civil Engineering, U.S. Coast Guard Richard A. Rothblum, Office of Overseas Buildings Operations, Department of State Terry Ulsh, Engineering Operations Center, Naval Facilities Engineering Command film Woods, Office of Real Estate, Department of Commerce FEDERAL FACILITIES COUNCIL STAFF Lynda Stanley, Director . . .

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Contents Executive Summary 1 Introduction Problem Statement, 6 Study Purpose and Objectives, 7 How the Study was Conducted, 7 Organization of the Report, 8 Scopes of Work for Design Introduction, 9 Commonly Used Contract Forms, 9 Assignment of Project Functions or Services, 11 Common Issues Emphasized by Standard Documents, 12 Preproject Planning Processes and Project Scopes of Work Introduction, 14 Background, 15 Preproject Planning, 15 Impact of Inadequate Preproject Planning, 17 Key Fundamentals of the Preproject Planning Process, 18 Enabling Management Actions, 24 Tools Available to Support Preproject Planning Activities, 25 4 Federal Agency Practices Introduction, 27 Scopes of Work for Design, 28 Preproject Planning Process, 28 Funding, Process, and Other Related Issues, 32 Performance Measurement, 34 v 5 9 14 27

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v! Preproject Planning Activities in Selected Agencies, 34 Summary, 40 5 Policy Implications Conclusion and Findings, 41 Key Practices, 45 Path Forward, 46 Future Study, 46 References and Bibliography Appendixes A Record of Meetings and Interviews B Structured Interview Instrument C Alignment Thermometer D PDRI for Buildings Score Sheet E F G DOE Acquisition Strategy Format H ACC Scope of Work for Customer Concept Document I Biographies of Authors J Acronyms Example PDRI Element Descriptions Stakeholder Identification Checklist CONTENTS 41 47 53 56 58 60 63 65 66 71 85 86