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QUALITY AND PRACTICES FOR ITS ASSURANCE 16 FACTORS THAT INFLUENCE AGENCY PRACTICES Agency liaison representatives to the committee suggested that the variations among QA practices of individual agencies are traceable to a number of factors that fall broadly into four categories: (1) budgetary, (2) agency programs, (3) project-specific, and (4) personnel-related factors. Budgetary factors include both the amount of funding available for construction control as well as the allocation of construction funding to inspection and other functions. Recurring budget cutbacks tend to place particular pressures on quality management because the loss of quality is often difficult for the untrained eye to observe. Restrictions on funds use (i.e., ear-marking), imposed in the authorization and appropriation process or in top-level agency management decisions, may limit an agency's ability to pay for QA. Construction cost increases associated with changes in the requirements, termed "upgrading," is rarely matched by adequately increased allocations to QA activities needed to maintain quality oversight of the expanded project. The particular types of facilities an agency develops and the criticality of these facilities to the agency's mission will influence the agency's inspection practices. When the risk of loss from non-conformance to the requirements is high, as in an embassy built by the Department of State or a strategic defense facility built by the Corps or NAVFAC, greater effort is devoted to insuring the requirements are met. Agencies that build for other agencies, such as the Corps working for the Air Force, must use inspection strategies that meet customer expectations, in a manner similar to the private sector. Projects of large scale or complexity always require greater attention, and agencies that build such projects frequently are inclined to be more stringent in all of their QA activities. (This is true of non-federal agencies as well. See box.) Issues of national security, social sensitivity, and environmental impact contribute to complexity of certain projects, as will remote or inhospitable geographic locations.
QUALITY AND PRACTICES FOR ITS ASSURANCE 17 QA AND QC AT KENNEDY AIRPORT'S RENEWAL The Port Authority of New York and New Jersey (PANY/NJ) in its JFK2000 Redevelopment Program for Kennedy International Airport in New York City has adopted a policy that QC--the process of ensuring that proper materials and equipment are furnished and used, competent workmanship is provided, and timely services are performed in accordance with the contract requirement--is the contractual responsibility of the contractor. This responsibility includes providing inspection and inspection reporting, systems testing as required by the contract, providing survey control, preparing as-built drawings, maintaining inspection and systems testing documentation, including off-site quality control records such as manufacturer's certificates of compliance, and submitting copies of all contract documentation to the construction resident engineer. The contractor must submit a proposed QC program to the construction manager for review and approval prior to the start of work in the field. The construction manager (CM) is responsible for quality assurance. The program manager is responsible for auditing the CM's administration of the QA/QC program. The Engineer of Record has some specific inspection requirements such as test pile measurements and inspections of each pile prior to concrete placement. The PANY/NJ requires the CM to assign inspectors who have the primary day-to-day responsibility for confirming that the contractor's work is in accordance with the specifications, the approved QC program, and all applicable codes. Documentation that work has been performed satisfactorily includes laboratory and test results and inspection reporting. The inspector is responsible for a number of specified tasks: ⢠Confirming when and where routine testing will be required and arranging with the laboratory to have tests performed; ⢠Providing lab personnel with needed information; ⢠Witnessing all testing and verifying that requirements were followed; ⢠Arranging for specialist assistance for witnessing testing, as required; ⢠Recording all testing on a Daily Construction Report; ⢠Documenting all areas of nonconformance; ⢠Maintaining copies of test results, inspection reports, certification papers and permits; ⢠Verifying that testing devices are calibrated; ⢠Coordinating site activity; ⢠Visual inspection of all items not requiring laboratory testing; ⢠Preparing and maintaining inspection checklists.
QUALITY AND PRACTICES FOR ITS ASSURANCE 18 On the other hand, repetitive facilities such as military barracks can involve substantial off-site fabrication that reduces on-site inspection requirements. Some agencies, such as the Department of State, are able to develop longer term relationships with contractors, such that these contractors become thoroughly familiar with agency requirements and the agency may, with confidence, reduce the level of effort in its QA program. The continuity of progress of a particular project through design and construction influences the need for inspection as well. Delays and interruptions on a project can result in changed specifications and changed requirements that then necessitate greater QA effort. The urgency of completing construction leads too easily to neglect of QA activities that might otherwise have been undertaken. Personnel-related factors may be the most significant determinants of agency QA practices. Agency personnel often believe that staffing levels are insufficient for the range of administrative responsibilities they face, and that quality assurance activities are frequently sacrificed. Because of budget cutbacks, low pay, normal retirements, and a general shortage of trained professionals, many government agencies have suffered losses of experienced staff to execute or supervise QA activities. Personnel regulations, compensation, and mobility requirements make it difficult for these agencies to attract and retain qualified professionals, which both increases training costs and reduces effectiveness of their QA activities. The task of inspection, in particular, is in some agencies viewed as unlikely to contribute to career advancement. 17 17 These various factors have led to increased use of consultants when budgets have permitted (Newman, 1989).
