Naval Facilities Engineering Command (NAVFAC) Planning and Design Policy

MEMORANDUM

From: Chief Engineer, Naval Facilities Engineering Command

To: Distribution Subject: Sustainable Development Implementation

Encl: (1) Planning and Design Policy Statement 98-01, "Design of Sustainable Facilities and Infrastructure," dated 18 June April 1998 #Planning and Design Policy Statement 98-02, "Criteria Supporting the Design of Sustainable Facilities and Infrastructure," dated 18 June 1998 #Planning and Design Policy Statement 98-03, "Procurement of Sustainable Facilities and Infrastructure through Architect-Engineer (A-E) Contracts," dated 18 June 1998

1. Over four years ago, the Naval Facilities Engineering Command (NAVFAC) embarked on a course of action seeking to demonstrate engineering leadership through a proactive commitment to environmentally sustainable facilities. Based on data generated through field-based workshops held over the past two years, results from a pilot project program, and substantial input from the design and construction industry, we are now ready to adopt sustainability principles and concepts as the normal way we do business and initiate Command-wide implementation of the first segment of NAVFAC’s Sustainable Development Program.

2. To that end, enclosures (1), (2) and (3) are issued. Effective immediately, these policy statements provide overall direction for facilities and infrastructure projects regardless of geographical location, cost, funding source, procurement method, or customer. These policies reflect the approach that sustainable features can be incorporated to some extent in all projects without an increase in construction cost. Actual features will depend on best value principles. In the case of major projects, where "Integrated Design" concepts can be applied, these sustainable features can be significant. To accomplish this, it is extremely important that an A-E or design-build contractor be selected who is thoroughly knowledgeable in sustainable design. Enclosure (3) provides assistance is this area.

3. We have been briefing all segments of the design and construction industry over the past year through various national forums and your A-E symposia. We will continue to do this. It is equally important that all NAVFAC personnel also be well-versed in sustainability concepts and principles. To this end, and jointly with the Air Force and Corps of Engineers, training materials are being developed with DoD funding. When these materials become available early in FY 1999, training workshops will be held in all EFDs, EFAs and PWCs. The development of electronically-based tutorials will also be developed to supplement the workshops.

4. NAVFAC’s Sustainable Development Program calls for additional policies to be issued in the near future in the areas of planning, programming, construction, facilities management and associated areas. To facilitate a continuing dialogue on sustainable development and to assist in continuing field coordination of implementation, please identify to me a single point of contact within your command with whom we can coordinate all future sustainability initiatives (some have already done this), and please contact me or the points of contact noted for each policy statement if you have any questions or concerns.

5. "Sustainable Development" is an integrated approach to facility engineering and management. It entails new ways of conducting NAVFAC’s business. It is my expectation that full and successful implementation of these policies, as well as future ones, will take time. I enlist each Commander’s and Commanding Officer’s full support and commitment to this endeavor.

RADM D. J. NASH

NAVAL FACILITIES ENGINEERING COMMAND PLANNING AND DESIGN POLICY STATEMENT - 98-02

CRITERIA SUPPORTING THE DESIGN OF SUSTAINABLE FACILITIES AND INFRASTRUCTURE

18 JUNE 1998

References: a. NAVFAC Planning and Design Policy Statement 98-01, "Design of Sustainable Facilities and Infrastructure" dated 18 June 1998 b. NAVFAC Planning and Design Policy Statement 98-03, "Procurement of Sustainable Facilities and Infrastructure Through Architect-Engineer (A-E) and Related Contracts" dated 18 June 1998

Attachments: 1. Developed Sustainable Development Criteria and Guidance

Policy Statement: It is the policy of the Naval Facilities Engineering Command (NAVFAC) to adopt and utilize industry-recognized standards, codes, criteria and other guidance in support of sustainable design whenever possible in lieu of establishing Navy-unique documentation. In this regard, the publications identified in Attachment 1 are key criteria and guidance for implementation of NAVFAC’s Sustainable Development Program. As additional or revised criteria, standards and other guidance become available, they will be reviewed and added to the list of Attachment 1, as appropriate.

Where recommendations contained in any publication of Attachment 1 are in conflict with existing NAVFAC guidance and criteria, as represented in policy statements, manuals, handbooks, or other formal publications, established NAVFAC guidance will initially take precedence. However, in the case of conflicting criteria and guidance, the NAVFAC Criteria Office, which will be seeking to remove or revalidate such conflicts, shall be consulted for resolution of the conflict. The NAVFAC Criteria Office will seek to approve the most sustainable materials and products consistent with appropriate consideration of other design factors. Where referenced publications make mention of a proprietary product, no endorsement is to be inferred.

Purpose of Policy Statement: The purpose of this policy statement is to identify and establish criteria and other guidance in support of the design of sustainable facilities and infrastructure by NAVFAC. Sustainability principles and concepts, as defined in reference (a), as represented herein, as reflected in NAVFAC’s guide specifications database, and as addressed in other sources of facilities guidance, shall be incorporated into all facilities design decisions.

This policy implements the criteria portion of NAVFAC’s comprehensive Sustainable Development Program which was established to meet the Navy’s facilities infrastructure needs for improved performance, economy and productivity, while maximizing efficiency in resource utilization. In an integrated manner, this program addresses planning, programming, design, construction, and facilities management practices, and accommodates significant changes in NAVFAC’s philosophy and procedures for meeting facilities and infrastructure needs. Policies addressing design and A-E selection are found in references (a) and (b). Policies addressing planning, programming, value engineering, construction, and other areas will be issued in the near future.

This policy statement provides overall guidance on criteria to use in the design of facilities and infrastructure. Future revisions and supplements to this policy statement will incorporate more specific guidance relative to site development, energy efficiency and conservation, the use of renewable energy sources, materials selection based on life-cycle environmental impacts and recycled content, efficiency in materials utilization, building ecology, and occupant productivity as a reflection of both interior and exterior environments.

Background: The determination of acceptable design concepts and engineering solutions to problems, including which building materials, products and systems to incorporate into any facility or infrastructure project, has traditionally involved a complex methodology of evaluating choices on the basis of performance, safety, aesthetics, durability, availability, cost and other factors. An extensive system of commercial codes and standards, often building on over 100 years’ experience of successful product use, has historically provided a reliable base from which to make these comparisons and resulting decisions. Added to this is a similar knowledge base within NAVFAC resulting from specific applications of materials, products and systems under all types of Navy-specific situations.

Traditionally NAVFAC, like most federal agencies, has relied primarily on its own criteria for decisions as to which material, product or system to use in a particular situation. As reflected in an extensive library of manuals, handbooks, and various other guidance, this criteria has served NAVFAC well over the years and has resulted in high levels of quality and consistency. However, an increasing desire to adopt and use new technologies and innovative products is resulting in a greater dependence on the direct adoption and use of industry standards without the traditional "filtering" process through which materials and products were eventually incorporated into NAVFAC criteria. This approach is proving to be highly cost effective, while at the same time bringing new technologies and innovation more quickly into the design of facilities and infrastructure.

As addressed in the definition of sustainable design in reference (a), NAVFAC’s Sustainable Development Program defines a series of design considerations in addition to those that have traditionally existed when selecting materials, products and systems, such as performance, safety, aesthetics, durability, availability and cost. As noted, it is NAVFAC’s policy to apply all of these sustainability considerations "to the fullest extent possible, consistent with budget constraints and customer requirements."

The Building Industry is in the early stages of defining the performance of materials, products and systems with respect to these criteria and only a limited number of national standards exist. In most instances, definitive guidance for the designer is lacking or even contradictory. Consequently, the adoption of clear, concise and definitive criteria from a single, authoritative source is not possible in every situation. Instead of a single national standard upon which to draw guidance, there are numerous industry organizations seeking to provide criteria associated with the various facets of sustainable design. The selective adoption and use of this industry-developed criteria forms the foundation for NAVFAC’s Sustainable Development Program.

As addressed in greater detail in reference (a), NAVFAC’s Sustainable Development Program incorporates "the concept that sustainable facilities and infrastructure do not necessarily have a higher initial cost -- that a substantial number of sustainability initiatives can typically be accommodated within original project budgets if those budgets are adequate from the start. The critical key to accomplishing this is an integrated design approach . . ." Consequently, decisions regarding which criteria to use cannot be made in isolation. The selection of a material or product for a specific application may significantly impact performance and cost of other building elements or systems. This requires special and unique qualifications on the part of designers, as addressed in greater detail in reference (b).

The criteria and guidance of Attachment 1 shall be applied to all facilities and infrastructure projects such that sustainability principles and concepts are incorporated to the fullest extent possible, consistent with budget constraints and customer requirements. This policy applies to renovation and alteration projects as well as new construction; applies to projects regardless of funding source or amount; applies to projects accomplished for all customers; applies to projects accomplished both in-house and through A-E contracts; and applies to design associated with all procurement methods, including design-build.

Actions and Procedures: To implement this policy statement, Engineering Field Divisions (EFDs), Engineering Field Activities (EFAs) and Public Works Centers (PWCs) shall apply this policy, effective with its issue date, to all design-bid-build projects and all design-build projects for which CBD announcements have not been made; to all projects utilizing other procurement methods where criteria for selection of designers can be determined or influenced; and to all projects for which in-house design has not started or reached a point where incorporation of sustainability principles and concepts would detrimentally affect the project. Where the A-E selection process or in-house design process has proceeded beyond the points noted above this policy shall be applied on a selective basis consistent with project requirements, customer needs and other appropriate considerations. The intent is to apply this policy to the greatest extent possible without detrimentally affecting the progress of the project.

Points of Contact: NAVFAC Headquarters POCs for sustainable criteria are: Philip Bolton, P.E., Director, NAVFAC Criteria Office (located at the Atlantic Division, Norfolk, VA); Phone: (757) 322-4200; E-Mail: bolton@efdlant.navfac.navy.mil; Fax: (757) 322-4416 Terrel M. Emmons, FAIA, Associate Director for Engineering, NAVFAC HQ Code CHENG; Phone: (703) 325-0033; E-Mail: emmonstm@hq.navfac.navy.mil; Fax: (703) 325-4450;

Attachment 1 Industry- and Federal Agency-Developed Sustainable Development Criteria

The following documentation and publications are to be used as criteria:

Environmental Resource Guide - American Institute of Architects, 1735 New York Avenue, NW, Washington, DC 20006, Phone (202) 626-7300, published by John Wiley & Sons. Inc., One Wiley Drive, Somerset, NJ 08875 Phone (800) 255-5945 The industry’s most comprehensive guide for incorporating environmental criteria into design decisions. Contains both in-depth research reports and "at-a-glance" reference charts facilitating decision-making between competing building materials and products on the basis of a wide range of environmental criteria. Organized on the basis of the CSI 16-division format.

Environmentally Responsible Facilities Guide - Headquarters Air Force Center for Environmental Excellence, 8106 Chennault Road, Brooks Air Force Base, Texas 78285 Phone (210) 536-3433 A comprehensive guide for programmers, planners, designers, project managers, energy managers, environmental managers, facility users, A-E consultants and constructors. Provides design requirements, criteria, and a wealth of additional information to guide sustainable development.

Local Government Sustainable Buildings Guidebook: Environmentally Responsible Building Design and Management - Public Technology, Inc., 1301 Pennsylvania Avenue, NW, Washington, DC 20004; Phone (202) 626-2400 or (800) 852-4934; Fax (202) 626-2498 Basics of sustainable design with specific strategies for pre-design, site development and building design.

Sustainable Building Technical Manual - Public Technology, Inc. (co-sponsored by U. S. Green Buildings Council, U. S. Department of Energy, and the U. S. Environmental Protection Agency), 1301 Pennsylvania Avenue, NW, Suite 800, Washington, DC 20006; Phone (202) 626-2400 or (301) 490-2188 (publication sales) A compendium of available information on "green" building practices for new construction, renovation, and building operations, with in-depth discussion on economics and the environment, pre-design issues, site issues, building design, the construction process, and operations and maintenance. The format for most sections includes a short introduction, highlights and background on the significance of the topic, suggested practices and checklists, and a list of resources for more information.

Sustainable Materials for Bachelor Enlisted Quarters - Naval Facilities Engineering Command, Alexandria, VA 22332, 23 October 1997; Phone 703-325-0104 A comprehensive compendium of materials to use in BEQ’s based on evaluations relative to durability, environmental considerations, and recycling considerations.

The Smart Office - A. K. Townsend, Gila Press, P. O. Box 623, Olney, MD 20830-0478; Phone 301-774-0917 A comprehensive guide to the design of interior spaces, especially offices, to streamline resource use and create healthier workplaces. Subjects addressed include: energy-efficient lighting; energy-efficient office equipment; efficient building systems; health issues associated with interior environments; environmental considerations in selecting flooring, wallcoverings, and furniture; recycling; and alternative office concepts, such telecommuting. Whole Building Design Guide - Naval Facilities Engineering Command, Alexandria, VA 22332 (under development with publication projected for July 1998), Phone 757-322-4200 Comprehensive criteria focusing specifically on integrated design concepts.

Note: Appendix B of the Environmental Resource Guide and The Smart Office contain many more references for books, periodicals, newsletters and web sites that may prove helpful. Many of these, however, contain propriety information on specific manufacturers’ products.

NAVAL FACILITIES ENGINEERING COMMAND PLANNING AND DESIGN POLICY STATEMENT - 98-03

PROCUREMENT OF SUSTAINABLE FACILITIES AND INFRASTRUCTURE THROUGH ARCHITECT-ENGINEER (A-E) AND RELATED CONTRACTS

18 JUNE 1998

References: a. NAVFAC Planning and Design Policy Statement 98-01, "Design of Sustainable Facilities and Infrastructure" dated 18 June 1998 b. NAVFAC Planning and Design Policy Statement 98-02, "Criteria Supporting the Design of Sustainable Facilities and Infrastructure" dated 18 June 1998

Attachments: 1. Policy Mandates Supporting the Procurement of Sustainable Facilities and Infrastructure 2. Suggested Evaluation Factors for Determining an A-E’s Knowledge and Experience in Sustainable Design

Policy Statement: It is the policy of the Naval Facilities Engineering Command (NAVFAC) to select A-Es for design and related professional services on the basis of their "knowledge and demonstrated experience in applying sustainability concepts and principles to facilities and infrastructure problems through an integrated design approach." This selection criteria shall be given a high degree of importance when used jointly with other criteria, such as professional qualifications, specialized experience and technical competence in the type of work required, capacity to perform the work, past performance and geographical location in proximity to the project location. For "Two-Phase Design-Build" projects, the above underlined requirement shall apply to both Phase 1 and Phase 2; for other design-build methods, this requirement shall apply at all appropriate stages of the selection process; for other procurement methods, this requirement shall apply to all design portions of the process. This policy applies to renovation and alteration projects as well as new construction; applies to projects regardless of funding source or amount; applies to projects accomplished for all customers; and applies to design associated with all procurement methods.

Purpose of Policy Statement: The purpose of this policy statement is to provide for the utilization of A-E design services such that knowledge, skills and experience in the application of sustainable design principles and concepts is a major consideration in A-E or contractor selection. This policy applies to all A-E services, whether contracted for separately or in conjunction with construction services, as occurs when using design-build contracts.

This policy implements the A-E selection portion of NAVFAC’s comprehensive Sustainable Development Program which was established to meet the Navy’s facilities infrastructure needs for improved performance, economy and productivity, while maximizing efficiency in resource utilization. In an integrated manner, this program addresses planning, programming, design, construction, and facilities management practices, and accommodates significant changes in NAVFAC’s philosophy and procedures for meeting facilities and infrastructure needs. Policies addressing design and criteria are found in references (a) and (b). Policies addressing planning, programming, value engineering, construction, and other areas will be issued in the near future.

Background: Reference (a) indicates "It is the policy of the Naval Facilities Engineering Command to incorporate sustainability principles and concepts in the design of all facilities and infrastructure projects to the fullest extent possible, consistent with budget constraints and customer requirements." Reference (a) further notes that "Traditional approaches to the planning, design and construction of facilities have not typically included a coordinated look at the environmental consequences of decisions, although areas such as reduced energy utilization have received attention over the years."

Some aspects of sustainable design are not new. Attention has been given in the past to energy conservation and efficiency, water conservation, recycling, reduced use of ozone depleting substances, and avoidance of the use of certain harmful substances such as asbestos. Attachment 1 captures some of the policy mandates that are the most relevant to the procurement of A-E services for sustainable design. The comprehensive incorporation of sustainability principles and concepts into the design process through an integrated design approach must be accomplished. NAVFAC’s Sustainable Design Pilot Project Program, together with meetings with various professional societies representing the A-E community, has demonstrated that design firms have typically not been tasked by NAVFAC or other federal agencies to design projects in this manner, although many are now capable of doing so. Given the policies previously noted, and especially the discussion on "Integrated Design" contained in Attachment 4 to reference (a), the selection of an A-E which has experience in applying sustainable design concepts and principles on an integrated design basis is essential to overall project success.

Action and Procedures: To implement this policy statement, Engineering Field Divisions (EFDs), Engineering Field Activities (EFAs) and Public Works Centers (PWCs) shall apply this policy, effective with its issue date, to all design-bid-build projects and all design-build projects for which CBD announcements have not been made; and to all projects utilizing other procurement methods where criteria for selection of designers can be determined or influenced. Where the A-E selection process has proceeded beyond the points noted above, this policy shall be applied on a selective basis consistent with project requirements, customer needs and other appropriate considerations. The intent is to apply this policy to the greatest extent possible without detrimentally affecting the progress of the project. Acquisition Strategy Boards at individual EFDs, EFAs or PWCs shall determine the specific requirements and evaluation strategies on a project by project basis. Suggested means for evaluating knowledge and experience in sustainable design are contained in Attachment 2.

Points of Contact: NAVFAC Headquarters POCs for policy associated with the procurement of sustainable facilities and infrastructure through A-E and related contracts are: Mike Howard, Director, Strategic Operations and Community Management, NAVFAC HQ Code ACQ-021; Phone: (703) 325-7654; E-Mail: howardm@hq.navfac.navy.mil Terrel M. Emmons, FAIA, Associate Director for Engineering, NAVFAC HQ Code CHENG; Phone: (703) 325-0033; E-Mail: emmonstm@hq.navfac.navy.mil; Fax: (703) 325-4450;

Attachment 1 - POLICY MANDATES SUPPORTING THE PROCUREMENT OF SUSTAINABLE FACILITIES AND INFRASTRUCTURE

On 11 August 1994, the Secretary of Defense stated, "The Department of Defense must improve its environmental performance by actively implementing policies that embrace pollution prevention in all phases of the acquisition process, the procurement of goods and services, and in the life-cycle management of our installations."

Both prior and subsequent to this date, selected Executive Orders and acquisition policies have required NAVFAC to implement certain practices that are encompassed within NAVFAC Sustainable Development Program. However, few of these have been translated into specific regulations. One notable exception is the requirement for recycled content in construction materials.

Other relevant policies includes the following:

Executive Order #12873: In developing plans, drawings, work statements, specifications, or other product descriptions, agencies shall consider the following factors: elimination of virgin material requirements; use of recovered materials; reuse of product; life-cycle cost; recyclability; use of environmentally preferable products; waste prevention (including toxicity reduction or elimination); and ultimate disposal, as appropriate. These factors should be considered in acquisition planning for all procurements and in the evaluation and award of contracts, as appropriate. Program and acquisition managers should take an active role in these activities." (Section 401)

Executive Order #12902: Each agency involved in the construction of a new facility that is to be either owned by or leased to the Federal Government shall design and construct such facility to minimize the life cycle cost of the facility by utilizing energy efficiency, water conservation, and solar or other renewable energy technologies." (Section 306)

40 Code of Federal Regulations (CFR) 247 – Comprehensive Procurement Guidelines (CPG): This is the first formal regulation implementing sustainability requirements. We expect more to follow.

The Environmental Protection Agency (EPA) has designated twenty-four items that are, or can be, manufactured using recycled and recovered materials. Construction, landscaping and park and recreation products are among the designated items.

Federal agencies are required to purchase EPA-designated items meeting minimum recycled content standards unless they are not available within a reasonable period of time; fail to meet reasonable specifications standards; are not available from two or more sources (to maintain competition); or are unreasonably priced (5% higher than comparable non-recycled products).

Attachment 2 - SUGGESTED EVALUATION FACTORS FOR DETERMINING A-E’S KNOWLEDGE AND EXPERIENCE IN SUSTAINABLE DESIGN (Based, in part, on reference 2 of Attachment 2 of PDPS 98-02)

A-Es should be required to explain their expertise with environmentally responsible or sustainable facility design, and their specific expertise in applying "Integrated Design" concepts and methodologies.

In reviewing the narratives, look for comparisons to industry standards and broad experience integrating several disciplines. For example, firms who specify daylighting or energy efficient lighting but don't incorporate energy efficient building "skins" or mechanical systems have not grasped the concept of "Integrated Design."

The A-E should be required to demonstrate experience with projects that use less heating and cooling energy than the DoD design energy target. Firms may be requested to list the number of projects and, for selected examples, briefly explain strategies used to reduce HVAC energy.

The A-E should be required to demonstrate experience with projects that use less electrical energy (per square foot/meter) and less energy for lighting than industry standards.

A-Es should indicate any projects that are EPA Energy Star compliant. They should also provide data on LEED (Leadership in Energy and Environmental Design) ratings attained by buildings they recently designed.

The A-E should be required to demonstrate experience with projects that have specifically addressed ensuring good indoor air quality, including such measures as specifying adhesives with low levels of volatile organic compounds (VOC), low VOC paints, low-toxic building materials, or above-code required air exchanges. Projects which are designed with Integrated Pest Management techniques in mind reduce the use of toxic pesticides, and also contribute to improved indoor air quality.

The A-E should be required to describe past projects demonstrating site planning that works with the natural environment, maximizes solar energy potential and use of natural light and ventilation, and minimizes off-site storm water runoff.

The A-E should be required to demonstrate experience in writing specifications requiring waste management and recycling plans for project construction and demolition (C&D).

If the A-E demonstrates access to local market data for C&D material reuse and knows what materials will sell and who will buy it, they should be given extra credit. A successful past project would demonstrate a cost effective C&D management effort that reused materials on site and recycled as much as possible of what they could not reuse. A 40% C&D material diversion from the landfill (by weight) would be acceptable; a 75 to 80% diversion would be outstanding.

The A-E should be required to demonstrate knowledge of the EPA Comprehensive Procurement Guidelines for recycled-content building materials and have written specifications requiring the use of recycled-content materials.

If the A-E has developed a database of suppliers, extra credit should be given – it takes a lot of time to research the possible materials, determine their technical feasibility, and compare their costs with virgin-material products.

The A-E should be required to demonstrate experience using environmental life-cycle analysis techniques to select building materials which minimize environmental impacts throughout their life cycle (especially maintenance and ultimate disposal).

The A-E should be required to demonstrate experience with life-cycle cost analysis. This technique is the key to justifying the use of materials and systems that have a higher first cost, but pay for themselves quickly due to decreased utility costs or maintenance requirements.

The A-E’s submittal should provide a list of client references for sustainable design.

The A-E’s submittal should include a resume of the Architect/Engineer who will be in charge of this project. Include this person's experience with sustainable design projects.

The A-E’s sustainable design experience should either reside within the firm or be accommodated by means of a consultant with whom the A-E has had extensive sustainable design experience on previous projects. Simply teaming with a consultant, regardless of that consultants qualifications in sustainable design, but where the lead A-E has only limited experience in sustainable design, is unlikely to lead to success and fulfilled expectations regarding integration of design.

The A-E’s submittal should detail a sample sustainable project previously designed by the A-E. This information may include size of project (preferably above 15,000 square feet) and measures taken for:

• Increased energy conservation and efficiency
• Increased use of renewable energy resources
• Reduction or elimination of toxic and harmful substances in facilities and their surrounding environments
• Improvements to interior and exterior environments leading to increased productivity and better health
• Efficiency in resource and materials utilization, especially water resources
• Selection of materials and products based on their life-cycle environmental impacts increased use of materials and products with recycled content
• Recycling of construction waste and building materials after demolition
• Reduction in harmful waste products produced during construction
• Facility maintenance and operational practices that reduce or eliminate harmful effects on people and the natural environment.

 

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