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i DEFERRED MAINTENANCE REPORTING FOR FEDERAL FACILITIES Meeting the Requirements of Federal Accounting Standards Advisory Board Standard Number 6, as Amended Federal Facilities Council Standing Committee on Operations and Maintenance Federal Facilities Council Technical Report # 141 NATIONAL ACADEMY PRESS Washington, D.C.
ii NOTICE The Federal Facilities Council (FFC), formerly the Federal Construction Council, 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 cooperation among the sponsoring federal agencies and between the agencies and other elements of the building community in order to advance building science and technology, particularly with regard to the design, construction, acquisition, evaluation, and operation of federal facilities. The following FFC sponsor agencies provided funding for this report: 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 Energy Department of the Interior, Office of Managing Risk and Public Safety Department of the Navy, Naval Facilities Engineering Command Department of State, Office of Foreign Buildings Operations Department of Veterans Affairs, Office of Facilities Management Federal Bureau of Prisons Food and Drug Administration General Services Administration, Public Buildings Service Indian Health Service Internal Revenue Service National Aeronautics and Space Administration, Facilities Engineering Division National Institutes of Health, Division of Engineering Services National Institute of Standards and Technology, Building and Fire Research Laboratory National Science Foundation Office of Secretary of Defense, Federal Facilities Directorate Smithsonian Institution, Office of Facilities Services U.S. Postal Service, Engineering Division As part of its activities, the FFC periodically publishes reports that have been prepared by committees of government employees. Since 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 or FFC reports, please visit the website at http://www4.nationalacademies.org/cets/ffc.nsf or write to Director, Federal Facilities Council, Board on Infrastructure and the Constructed Environment, HA-274, 2101 Constitution Avenue, N.W., Washington, D.C. 20418, or call 202-334-3374. Printed in the United States of America 2001
iii Federal Facilities Council Standing Committee On Operations And Maintenance COMMITTEE CHAIR Richard McCrone, Engineer, Engineering Management and Field Support Office, U.S. Department of Veterans Affairs COMMITTEE VICE CHAIR Charles B. Pittinger, Jr., P.E., Senior Program Manager, Facilities Maintenance, National Aeronautics and Space Administration MEMBERS Ken Baker, Office of Contract and Resource Management, Office of Management and Administration, U.S. Department of Energy William Brodt, Senior Facilities Engineer Consultant, Division of Engineering Services, National Institutes of Health Tom Bullman, Civil Engineer, Structures Branch, Engineering Division, Air National Guard Judie Cooper, Assistant Director, Office of Physical Plant, Smithsonian Institution Captain Jose Cuzme, P.E., Chief, Health Care Facilities Engineering Branch, Indian Health Service Fred Drummond, Assistant Director for Maintenance Management, Office of Management and Administration, U.S. Department of Energy Thomas Duchesne, Engineering, Maintenance Policies and Programs, U.S. Postal Service Geoffrey Frohnsdorff, Chief, Building Materials Division, Building and Fire Research Laboratory, National Institute of Standards and Technology William Graham, Acting Director, Engineering Management and Field Support Office, U.S. Department of Veterans Affairs Larry Grauberger, Program Manager, Office of Foreign Buildings Operations, U.S. Department of State Mark Kleinwichs, R.A., Facilities Engineering, Naval Facilities Engineering Command Gregory P. Krisanda, Branch Chief, Office of Foreign Buildings Operations, U.S. Department of State Ben Lawless, P.E., Mechanical Engineer, Kenneth E. Olmsted, P.E., C.P.E., Deputy Director, Office of Physical Plant, Smithsonian Institution Harry Singh, Head, Facilities Engineering, Naval Facilities Engineering Command Curt Smith, Office of Portfolio Management, Public Buildings Service, General Services Administration
iv Stanley K. Thurber, Architect, Office of Managing Risk and Public Safety, U.S. Department of the Interior Jeanne Trelogan, Office of Business Performance, Public Buildings Service, General Services Administration Terry Watson, Pentagon Energy Office, U.S. Department of Defense Howard L. Wink, Jr., PE, Assistant Director, Office of Physical Plant, Smithsonian Institution OTHER CONTRIBUTORS TO THE STUDY James Padgett, PE, Forest Service, U.S. Department of Agriculture Michael Burke, Office of the Secretary of Defense Jay Janke, Chief Analyst, Directorate of Analysis and Investment, Office of the Deputy Under Secretary of Defense for Installations Gregory Spencer, P.E., Chief, Maintenance, Operations, and Logistics Branch, NASA-Dryden Flight Research Center NONGOVERNMENT LIAISON MEMBERS Werner Baath, representing the American Public Works Association STAFF Lynda Stanley, Director, Federal Facilities Council Gail Kelly, Research Aide, Board on Infrastructure and the Constructed Environment Nicole Longshore, Project Assistant, Board on Infrastructure and the Constructed Environment
v Federal Facilities Council CHAIR Jack Buffington, USN CEC (Retired), Director, Mack-Blackwell National Rural Transportation Study Center, Department of Civil Engineering, University of Arkansas VICE CHAIR William Brubaker, Director, Facilities Engineering Division, National Aeronautics and Space Administration MEMBERS Edward Ayscue, Chief, Facilities Management Branch, Federal Bureau of Prisons Roger Bell, Chief, Structures Branch, Facilities Division, Air National Guard John Bower, MILCON Program Manager, U.S. Air Force Bruce Chelikowsky, Acting Director, Office of Environmental Health and Engineering, Indian Health Service Tony Clifford, Director, Division of Engineering Services, National Institutes of Health Thomas Duchesne, Maintenance and Policies Programs, Engineering Division, U.S. Postal Service David Eakin, Chief Engineer, Design Programs Center, Public Buildings Service, General Services Administration John Scalzi, Program Director, Division of Civil and Mechanical Systems, National Science Foundation Peter Gurvin, Director, Building Design and Engineering, Office of Foreign Buildings Operations, Department of State James Hill, Deputy Director, Building and Fire Research Laboratory, National Institute of Standards and Technology John Irby, Director, Federal Facilities Directorate, Office of the Secretary of Defense L. Michael Kaas, Director, Office of Managing Risk and Public Safety, U.S. Department of the Interior
vi Michael Karau, Chief, Facilities Policy Branch, Internal Revenue Service Get Moy, Chief Engineer, Director, Planning and Engineering Support, Naval Facilities Engineering Command, U.S. Navy Robert Neary, Jr., Associate Facilities Management Officer, Office of Facilities Management, Department of Veterans Affairs Stan Nickell, Chief, Construction Division, Assistant Chief of Staff for Installation Management, U.S. Army Richard Rice, Jr., Senior Facilities Services Officer, Smithsonian Institution William Stamper, Senior Program Manager, Facilities Engineering Division, National Aeronautics and Space Administration John Yates, Director, Laboratory Infrastructure Division, Office of Science, U.S. Department of Energy STAFF Richard Little, Director, Board on Infrastructure and the Constructed Environment (BICE) Lynda Stanley, Director, Federal Facilities Council Michael Cohn, Program Officer, BICE Kimberly Goldberg, Administrative Associate, BICE Gail Kelly, Research Aide, BICE Nicole Longshore, Project Assistant, BICE
CONTENTS vii Contents Executive Summary 1 1 Introduction 7 Background, 7 Facilities Maintenance and Repair Programs, 8 Reasons for Deferring Maintenance and Repairs, 9 Other Standards in Effect, 11 Federal Financial Accounting, 12 FASAB Standard Number 6, as Amended, 12 Study Origin, 14 Study Objectives, 15 Study Method, 15 Report Organization, 16 References, 16 2 Definitional Issues and Potential Revisions 19 Issues, 19 Potential Revisions, 22 References, 22 3 Methodological Issues and Alternative Approaches for Calculating Deferred Maintenance for 23 Facilities Condition Assessment Surveys, 24 Total Life-Cycle Cost Method, 25 Other Potential Approaches to Deferred Maintenance Reporting for Facilities, 26 Summary, 38 References, 38 4 Deferred Maintenance and Repairs as an Indicator of Facility Condition 41 References, 43 Appendixes Aâ Excerpts from Stewardship of Federal Facilities: A Proactive Strategy for Managing the Nation's Public Assets Bâ Excerpts from FASAB Standard Number 6 Câ Excerpts from Amendments to FASAB Standard Number 6