12 VA CxManual-Whole Bldg Design Guide.pdf

Whole Building Commissioning Process Manual

May 1, 2013 minor revisions 11/01/2013

Prepared by:

Sebesta Blomberg and Associates, Inc.

Contact: Gerald T. Bauers, PE 2231 Crystal Drive, Suite 400

Arlington, VA 22202 Main: 703-522-3800

Fax: 703-522-8070 Email: jbauers@sebesta.com

Office of Construction and Facilities Management (003C)

425 I Street NW Washington, DC 20001 www.cfm.va.gov

Commissioning Process Manual Acknowledgements

Acknowledgements

Many professionals in the Department of Veterans Affairs generously contributed their expertise to guide this edition of the Whole Building Commissioning Process Manual.

Chief among them are:

Don Myers Director, Facilities Standards Service Lam Vu Project Manager, Electrical Engineer James Symanski Sustainability Engineer John Park Portfolio Manager Zoltan Nagy Architect Karen (Katie) Kuehn Contracting Officer Dana Quel Senior Resident Engineer Renee Tietjen Architect Asesh Raychaudhuri Mechanical Engineer

This edition was created by Sebesta Blomberg and Associates, under contract to the Department of Veterans Affairs. The following subject matter experts contributed to this manual:

Jerry Bauers National Director of Commissioning Bill Bliven Senior Commissioning Project Manager Joe Buckley Commissioning Project Manager

Sebesta Blomberg and Associates 2231 Crystal Drive, Suite 400 Arlington, VA 22202 703-522-3800 www.sebesta.com http://www.sebesta.com/�

Table of Contents

1 Introduction

1.1 References

1.2 Acronyms

1.3 Definitions

2 Commissioning Process Overview

2.1 General

2.2 Introduction to Commissioning

2.3 Benefits of Commissioning

2.4 Drivers

2.5 Commissioning Goals

2.6 Commissioning Principles

2.7 Contractual Relationships

3 Applying the Commissioning Process

3.1 Projects to be Commissioned

3.2 Systems to be Commissioned

3.3 Building Envelope Commissioning

3.3.1 Pre-Design Phase Building Envelope Commissioning

3.3.2 Design Phase Building Envelope Commissioning

3.3.3 Construction Phase Building Envelope Commissioning

3.3.4 Warranty Phase Building Envelope Commissioning

3.4 Adapting the Commissioning Process to Specific Projects

4 Pre-Design Commissioning

4.1 Commissioning Agent Contracting Methods

4.1.1 Direct Contracting with the Department of Veterans Affairs

4.1.2 Alternate Contracting Methods

4.1.3 Design-Build Projects

4.1.4 Lease/Developer Projects

4.1.5 Deferred Award of Commissioning Agent Contracts

4.1.6 Impact of Delayed Projects

4.2 Pre- Design Commissioning Kickoff Meeting

5 Design Phase Commissioning

5.1 Design Phase Commissioning Objectives

5.2 Design Phase Commissioning Team

5.3 Commissioning Agent Tasks

5.4 Commissioning Roles and Responsibilities

5.5 Design Narrative

5.6 Commissioning Plan

5.7 Commissioning Specifications

5.8 Commissioning Design Reviews

5.9 Design Phase Controls Meetings

5.10 Design Review Meetings

5.11 Design Review Comment Follow-up

5.12 SD1 Design Submission

5.13 Schematic Design Phase II Submission

5.14 Design Development Phase I Submission

5.15 Design Development Phase II

5.16 Construction Documents Phase I

5.17 Final Construction Documents

5.18 Adapting the Design Phase Commissioning Process

6 Bid and Pre-Construction Phase

6.1 Commissioning Agent Tasks

6.2 Pre-Bid Meetings

6.3 Bid RFI Review and Response

6.4 Roles and Responsibilities

6.5 Adapting the Bid and Pre-Construction Phase Commissioning Process . 92

7 Construction Phase

7.1 Construction Phase Commissioning Objectives

7.2 Commissioning Team

7.3 Commissioning Agent Tasks

7.4 Roles and Responsibilities

7.5 Construction Phase Commissioning Kickoff Meeting

7.6 Construction Phase Commissioning Plan

7.7 Construction Schedule Facilitation and Integration

7.8 Construction Phase Meetings

7.9 Commissioning Construction Observation Visits

7.10 RFI’s, Change Directives, Change Orders

7.11 Submittal Review

7.12 Construction Phase Controls Conference

7.13 Pre-Functional Checklists

7.14 Preliminary Systems Functional Performance Test Procedures

7.15 Adapting the Construction Phase Commissioning Process

8 Acceptance and Testing Phase Commissioning

8.1 Acceptance and Testing Phase Commissioning Team

8.2 Acceptance and Testing Phase Commissioning Tasks

8.3 Acceptance and Testing Phase Commissioning Team Roles and Responsibilities

8.4 Construction Meetings

8.5 Commissioning Construction Site Visits

8.6 Equipment/System Start Up Observation and Review

8.7 Pre-Functional Checklist Verification

8.8 Systems Functional Testing (Season 1)

8.9 Operations and Maintenance Manuals

8.10 Systems Manual

8.11 Training Verification

8.12 Commissioning Issues Follow Up and Resolution

8.13 Final Commissioning Report

8.14 Lessons Learned Review Meeting

8.15 Adapting the Acceptance Phase Commissioning Process

9 Warranty Phase

9.1 Warranty Phase Commissioning Team

9.2 Warranty Phase Commissioning Tasks

9.3 Warranty Phase Commissioning Roles and Responsibilities

9.4 Systems Performance Monitoring

9.5 Deferred Seasonal Testing

9.6 Post-Occupancy Warranty Checkup

9.7 Final Commissioning Report Addendum

9.8 Adapting the Warranty Phase Commissioning Process

Link to Appendix documents on CFM Website Appendix A – Commissioning Process Flowcharts Appendix B – Sample Commissioning Agent Scope of Work Appendix C - Sample Commissioning Agent Request for Proposals Appendix D - Sample Design Narrative TOC Appendix E – Sample Design Review Comment Log Appendix F – Sample Commissioning Plan with Documentation Log Appendix G – Sample Commissioning Progress Meeting Minutes Appendix H – Sample Commissioning Field Report Appendix J – Sample Commissioning Master Issues Log Appendix K – Sample Pre-Functional Checklists Appendix L – Sample Systems Functional Test Procedures Appendix M – Sample Systems Manual Appendix N – Sample Final Commissioning Report http://www.cfm.va.gov/til/spclRqmts.asp#Cx�

Commissioning Process Manual Chapter 1 Introduction Page 1

1 Introduction Guidelines and Policy: Commissioning for all new and renovation construction projects is mandated by the Energy Policy Act and the Executive Orders that have been issued to execute the requirements of this legislation. The following information provides the background that supports this mandate.

Executive Order 13423 – Strengthening Federal Environmental, Energy, and Transportation Management (January, 2007) requires that Federal Agencies to ensure new construction and major renovations comply with the 2006 Federal Leadership in High Performance and Sustainable Buildings Memorandum of Understanding (MOU) which was signed by the Department of Veterans Affairs and other federal agencies.

The MOU creates a sustainable federal government and serves as a lynchpin for the sustainable building provisions of EO 13423 and EO 13514.

Executive Order 13514 Federal Leadership in Environmental, Energy, and Economic Performance (April, 2010) mandates that federal agencies implement high performance sustainable Federal building design, construction, operation and management, maintenance, and deconstruction by:

● Beginning in 2020 and thereafter, ensuring that all Federal buildings that enter the planning process are designed to achieve zero-net-energy by 2030.

● Ensuring that all new construction, major renovation, or repair and alteration of Federal buildings complies with the Guiding Principles for Federal Leadership in High Performance and Sustainable Buildings

● Ensuring that at least 15% of the agency’s existing buildings (above 5,000 gross square feet) and building leases (above 5,000 gross square feet) meet the Guiding Principles by fiscal year 2015 and that the agency makes annual progress toward 100% conformance with the Guiding Principles for its building inventory;

● Pursuing cost-effective, innovative strategies, such as highly reflective and vegetative roofs, to minimize consumption of energy, water, and materials;

● Managing existing building systems to reduce the consumption of energy, water, and materials, and identifying alternatives to renovation that reduce existing asset’s deferred maintenance costs.

● When adding assets to the agency’s real property inventory, identifying opportunities to consolidate and dispose of existing assets, optimize the performance of the agency’s real-property portfolio, and reduce associate environmental impacts, and;

● Ensuring that rehabilitation of federally owned historic building utilizes best practices and technologies in retrofitting to promote long-term viability of the buildings.

Introduction Page 2

Updated High Performance and Sustainable Building guidance was issued by the Office of Management and Budget in December, 2008. Among other things, this guidance includes a revised set of Guiding Principles for New Construction and Major Renovations and a new set of Guiding Principles for Sustainable Existing Buildings The

2008 Guiding Principles for New Construction and Major Renovation

, sets forth the following five guiding principles:

I. Employ Integrated Design Principles

Use a collaborative, integrated planning and design process that:

● Initiates and maintains an integrated project team as described on the

Whole Building Design Guide (http://www.wbdg.org/design/engage_process.php) in all stages of a project’s planning and delivery

● Integrates the use of OMB’s A-11, Section 7, Exhibit 300: Capital Asset Plan and Business Case Summary.

● Establishes performance goals for siting, energy, water, materials, and indoor environmental quality along with other comprehensive design goals and ensures incorporation of these goals throughout the design and lifecycle of the building

● Considers all stages of the building’s lifecycle, including deconstruction.

Commissioning: Employ commissioning practices tailored to the size and complexity of the building and its system components in order to verify performance of building components and systems and help ensure that design requirements are met. This should include an experienced commissioning provider, inclusion of commissioning requirements in construction documents, a commissioning plan, verification of the installation and performance of systems to be commissioned, an a commissioning report.

II. Optimize Energy Performance III. Protect and Conserve Water IV. Enhance Indoor Environmental Quality V. Reduce Environmental Impact of Materials

Commissioning of new construction and major renovation projects is one of several key factors that are an integral part of the Department of Veterans Affairs compliance with the various energy and sustainability mandates.

The commissioning process outlined in this updated Whole Building Commissioning Process Manual is intended to implement the requirements included in EO 13423, EO 13514, and the 2008 Guiding Principles for New Construction and Major Renovations and to integrate into the Department of http://www.wbdg.org/design/engage_process.php�

Introduction Page 3

Veterans Affairs (VA) well-documented process for the design and construction of new facilities. The tasks and deliverables included in this commissioning process either utilize the documentation required by the existing VA process or supplement the requirements of this process to improve accountability and the transfer of information and knowledge to each member of the construction and operations team.

Commissioning and acceptance testing is integral to the design and construction process, not additive. Execution of commissioning tasks is intended to enhance the ability of the design and construction team to meet demanding building performance requirements while maintaining project budget and schedule. The Commissioning Agent is charged with identifying the ‘performance impacts’ of all significant design and construction decisions so that the VA can make informed decisions when budget, schedule or convenience impact the outcome of a project.

In accordance with ASHRAE Guideline 0, the anticipated outcomes of the VA Commissioning Process are:

● Document VA Owner’s Project Requirements (OPR)

● Document and improve the quality of project deliverables

● Document systems performance in accordance with OPR

● Verify adequate documentation is provided to VA

● Verify and document proper training of VA’s personnel

● Provide a uniform delivery process for construction projects

● Deliver completed construction projects that conform to the OPR

● Verify proper coordination among systems, equipment, and assemblies in completed project

1.1

a. Executive Order 13514: “Federal Leadership in Environmental, Energy and Economic Performance,” October, 2010

References

b. Executive Order 13423 “Strengthening Federal Environmental Energy and Transportation Management,” January, 2007

c. High Performance and Sustainable Buildings Guidance (2008), www.wbdg.org/pdfs/hpsb_guidance.pdf

d. Memorandum of Understanding on Federal Leadership in High Performance (2006)

e. Green Buildings Action Plan, Implementing the Memorandum of Understanding on Federal Leadership in High Performance and Sustainable Buildings, Department of Veterans Affairs, www.fedcenter.gov/kd/Items/actions.cfm?action=Show&item_id...

www.cfm.va.gov/TIL/sustain/GreenBuildAction.pdf

Introduction Page 4

f. ASHRAE Guideline 0-2005 – The Commissioning Process, American Society of Heating, Refrigeration and Air Conditioning, , 2005

g. ASHRAE Guideline 1.1 – The HVAC&R Technical Requirements for the Commissioning Process, American Society of Heating, Refrigeration and Air Conditioning, 2008

h. NEBB Procedural Standards for Whole Building Systems Commissioning of New Construction – Third Edition, National Environmental Balancing Bureau, 2009, www.nebb.org

i. American Society for Healthcare Engineering , Health Facilities Commissioning Guidelines, 2010

j. American Society for Healthcare Engineering, Health Facilities Commissioning Handbook; Optimizing Building Systems Performance in New and Existing Health Care Facilities, 2010

k. VA BIM Guide, Department of Veterans Affairs, http://www.cfm.va.gov/til/bim/BIMGuide/lifecycle.htm

l. VA Sustainable and Energy Reduction Manual, Department of Veterans Affairs, http://www.cfm.va.gov/til/sustain.asp

m. VA PG 18-15 A/E Design Submission Requirements

1.2

Acronyms

List of Acronyms

Acronym Meaning A/E Architect / Engineer Design Team

AHJ Authority Having Jurisdiction

ASHRAE Association Society for Heating Air Condition and Refrigeration Engineers

BOD Basis of Design

BSC Building Systems Commissioning

CCTV Closed Circuit Television

CD Construction Documents

CMMS Computerized Maintenance Management System

CO Contracting Officer (VA)

COTR Contracting Officer’s Technical Representative (see also VA-RE)

COBie Construction Operations Building Information Exchange

CPC Construction Phase Commissioning http://www.nebb.org/� http://www.cfm.va.gov/til/bim/BIMGuide/lifecycle.htm� http://www.cfm.va.gov/til/sustain.asp�

Introduction Page 5

Acronym Meaning Cx Commissioning

CxA Commissioning Agent

DPC Design Phase Commissioning

FPT Functional Performance Test

GBI-GG Green Building Initiative Green Globes

HVAC Heating, Ventilation, and Air Conditioning

LEED Leadership in Energy and Environmental Design

NC Department of Veterans Affairs National Cemetery

NCA Department of Veterans Affairs National Cemetery Administration

NEBB National Environmental Balancing Bureau

O&M Operations & Maintenance

OPR Owner’s Project Requirements

PFC Pre-Functional Checklist

PFT Pre-Functional Test

SD Schematic Design

SO Site Observation

TAB Test Adjust and Balance

VA Department of Veterans Affairs

VAMC VA Medical Center

VA CFM VA Office of Construction and Facilities Management

VACO VA Central Office

Introduction Page 6

Acronym Meaning VA PM VA Project Manager

VA-RE VA Resident Engineer

USGBC United States Green Building Council

1.3 Acceptance Phase Commissioning: Commissioning tasks executed after most construction has been completed, most Site Observations and Static Tests have been completed and Pre-Functional Testing has been completed and accepted.

The main commissioning activities performed during this phase are verification that the installed systems are functional by conducting Systems Functional Performance tests and Owner Training.

Definitions

Accuracy: The capability of an instrument to indicate the true value of a measured quantity.

A/E: See Design Professional.

Back Check: A back check is a verification that an agreed upon solution to a design comment has been adequately addressed in a subsequent design review Basis of Design (BOD): The Engineer’s Basis of Design is comprised of two components: the Design Criteria and the Design Narrative, these documents record the concepts, calculations, decisions, and product selections used to meet the Owner’s Project Requirements (OPR) and to satisfy applicable regulatory requirements, standards, and guidelines.

Benchmarks: Benchmarks are the comparison of a building’s energy usage to other similar buildings and to the building itself.. For example, ENERGY STAR Portfolio Manager is a frequently used and nationally recognized building energy benchmarking tool.

Building Information Modeling (BIM): Building Information Modeling is a parametric database which allows a building to be designed and constructed virtually in 3D, and provides reports both in 2D views and as schedules. This electronic information can be extracted and reused for pre-populating facility management CMMS systems. Building Systems Commissioning (BSC):

NEBB acronym used to designate its commissioning program.

Calibrate: The act of comparing an instrument of unknown accuracy with a standard of known accuracy to detect, correlate, report, or eliminate by adjustment any variation in the accuracy of the tested instrument.

Introduction Page 7

CCTV: Closed circuit Television. Normally used for security surveillance and alarm detections as part of a special electrical security system.

COBie: The COBie system is an Excel spreadsheet system developed by the US Army Corps of Engineers to gather facility and equipment data for construction projects. The COBie approach is to enter the data as it is created during design, construction, and commissioning, see Figure 1. Designers provide floor, space, and equipment layouts. Contractors provide make, model, and serial numbers of installed equipment. Much of the data provided by contractors comes directly from product manufacturers who can also participate in COBie.

See the Whole Building Design Guide website for further information (http://www.wbdg.org/resources/cobie.php) Commissionability: Defines a design component or construction process that has the necessary elements that will allow a system or component to be effectively measured, tested, operated and commissioned Commissioning Agent (CxA): The qualified Commissioning Professional who administers the Cx process by managing the Cx team. Where CxA is used in this manual it means the Commissioning Agent, members of his staff or appointed members of the commissioning team. Note that LEED uses the term Commissioning Authority in lieu of Commissioning Agent.

Commissioning Checklists: Lists of data or inspections that should be verified to ensure proper system or component installation, operation and function.

Verification checklists are developed and used during all phases of the commissioning process to verify that the Owner’s Project Requirements (OPR) is being achieved.

Commissioning Design Review: The commissioning design review is a collaborative review of the design professionals design documents for items pertaining to the following: owner’s project requirements; basis of design;

operability and maintainability (O&M) including documentation; functionality;

training; energy efficiency, control systems’ sequence of operations including building automation system features; commissioning specifications and the ability to functionally test the systems.

Commissioning Issue: Any condition identified by the Commissioning Agent or other member of the Commissioning Team that adversely affects the commissionability, operability, maintainability or functionality of a system, equipment or component. Any condition that is in conflict with the Contract Documents and/or performance requirements of the installed systems and components.. (See also – Commissioning Observation) Commissioning Observation: An issue identified by the Commissioning Agent or other member of the Commissioning Team that does not conform to the project OPR, contract documents or standard industry best practices. (See also Commissioning Issue) http://www.wbdg.org/resources/cobie.php�

Introduction Page 8

Commissioning Plan: A document that outlines the scope and defines responsibilities, processes, schedules, and the documentation requirements of the Commissioning Process.

Commissioning Process: A quality focused process for enhancing the delivery of a project. The process focuses upon verifying and documenting that the facility and all of its systems, components, and assemblies are planned, designed, installed, tested, can be operated, and maintained to meet the Owner's Project Requirements.

Commissioning Report: The final commissioning document which presents the commissioning process results for the project. Cx reports include an executive summary, the commissioning plan, issue log, correspondence, and all appropriate check sheets and test forms.

Commissioning Specifications: The contract documents that detail the objective, scope and implementation of the commissioning process as developed in the Commissioning Plan.

Commissioning Team: Individual team members whose coordinated actions are responsible for implementing the Commissioning Process.

Construction Phase Commissioning: All commissioning efforts executed during the construction process after the design phase and prior to the Acceptance Phase Commissioning.

Contract Documents (CD): Contract documents include design and construction contracts, price agreements and procedure agreements. Contract Documents also include all final and complete drawings, specifications and all applicable contract modifications or supplements.

Construction Phase Commissioning (CPC): All commissioning efforts executed during the construction process after the design phase and prior to the Acceptance Phase Commissioning.

Coordination Drawings: Drawings showing the work of all trades that are used to illustrate that equipment can be installed in the space allocated without compromising equipment function or access for maintenance and replacement. These drawings graphically illustrate and dimension manufacturers’ recommended maintenance clearances. On mechanical projects, coordination drawings include structural steel, ductwork, major piping and electrical conduit and show the elevations and locations of the above components.

Data Logging: The monitoring and recording of temperature, flow, current, status, pressure, etc. of equipment using stand-alone data recorders.

Deferred System Test: Tests that cannot be completed at the end of the acceptance phase due to ambient conditions, schedule issues or other conditions preventing testing during the normal acceptance testing period.

Deficiency: See “Commissioning Issue”.

Introduction Page 9

Design Criteria: A listing of the VA Design Criteria outlining the project design requirements, including its source. These are used during the design process to show the design elements meet the OPR.

Design Intent: The overall term that includes the OPR and the BOD. It is a detailed explanation of the ideas, concepts, and criteria that are defined by the owner to be important. The design intent documents are utilized to provide a written record of these ideas, concepts and criteria.

Design Manual: A listing of the VA Design Manuals outlining the system infrastructure requirements for the project.

Design Narrative: A written description of the proposed design solutions that satisfy the requirements of the OPR. The preparation of this document is the responsibility of the Engineer during the SD-1, SD-2 and DD-1 phases. The narrative should include a description of the systems selected and why they were chosen. It should also include reasons other systems were considered and rejected. Acceptance of the items in the Design Narrative should be the consensus of both the Owner and the Engineer. The Design Narrative is updated by the Commissioning Agent during the DD-2, CD-1, and Final Design phases to maintain a record of design changes, reasons for the changes, and the approval authority for each change.

Design Phase Commissioning (DPC): All commissioning tasks executed during the design phase of the project.

Design Phase Commissioning Report: The commissioning document prepared at the end of the Design Phase which presents the commissioning process results for the project design phase. Cx reports include an executive summary, the design phase commissioning plan, design review comment log, Owners Project Requirements, Design Narrative, meeting notes, correspondence, and other design phase commissioning documents.

Design Professional: The architect(s) or engineer(s) of record of the project.

Environmental Systems: Systems that use a combination of mechanical equipment, airflow, water flow and electrical energy to provide heating, ventilating, air conditioning, humidification, and dehumidification for the purpose of human comfort or process control of temperature and humidity.

Executive Summary: A section of the Commissioning report that reviews the general outcome of the project. It also includes any unresolved issues, recommendations for the resolution of unresolved issues and all deferred testing requirements.

Functionality: This defines a design component or construction process which will allow a system or component to operate or be constructed in a manner that will produce the required outcome of the OPR.

Functional Test Procedure (FTP): A written protocol that defines methods, steps, personnel, and acceptance criteria for tests conducted on components, equipment, assemblies, systems, and interfaces among systems.

Introduction Page 10

Industry Accepted Best Practice: A design component or construction process that has achieved industry consensus for quality performance and functionality.

Refer to the current edition of the NEBB Design Phase Commissioning Handbook for examples.

Installation Verification: Observations or inspections that confirm the system or component has been installed in accordance with the contract documents and to industry accepted best practices.

Integrated System Testing: Integrated Systems Testing procedures entail testing of multiple integrated systems performance to verify proper functional interface between systems. Typical Integrated Systems Testing includes verifying that building systems respond properly to loss of utility, transfer to emergency power sources, re-transfer from emergency power source to normal utility source; interface between HVAC controls and Fire Alarm systems for equipment shutdown, interface between Fire Alarm system and elevator control systems for elevator recall and shutdown; interface between Fire Alarm System and Security Access Control Systems to control access to spaces during fire alarm conditions; and other similar tests as determined for each specific project.

Issues Log: A formal and ongoing record of problems or concerns – and their resolution – that have been raised by members of the Commissioning Team during the course of the Commissioning Process.

Lessons Learned Workshop: A workshop conducted to discuss and document project successes and identify opportunities for improvements for future projects.

Maintainability: A design component or construction process that will allow a system or component to be effectively maintained. This includes adequate room for access to adjust and repair the equipment. Maintainability also includes components that have readily obtainable repair parts or service.

Manual Test: Testing using hand-held instruments, immediate control system readouts or direct observation to verify performance (contrasted to analyzing monitored data taken over time to make the ‘observation’).

Owner’s Project Requirements (OPR): A written document that details the project requirements and the expectations of how the building and its systems will be used and operated. These include project goals, measurable performance criteria, cost considerations, benchmarks, success criteria, and supporting information.

Peer Review: A formal in-depth review separate from the commissioning review processes. The level of effort and intensity is much greater than a typical commissioning facilitation or extended commissioning review. The VA usually hires an independent third-party (called the IDIQ A/E) to conduct peer reviews.

Precision: The ability of an instrument to produce repeatable readings of the same quantity under the same conditions. The precision of an instrument refers to its ability to produce a tightly grouped set of values around the mean value of the measured quantity.

Introduction Page 11

Pre-Design Phase Commissioning: Commissioning tasks performed prior to the commencement of design activities that includes project programming and the development of the commissioning process for the project Pre-Functional Checklist (PFC): A form used by the contractor to verify that appropriate components are onsite, correctly installed, set up, calibrated, functional and ready for functional testing.

Pre-Functional Test (PFT): An inspection or test that is done before functional testing. PFT’s include installation verification and system and component start-up tests.

Procedure or Protocol: A defined approach that outlines the execution of a sequence of work or operations. Procedures are used to produce repeatable and defined results.

Range: The upper and lower limits of an instrument’s ability to measure the value of a quantity for which the instrument is calibrated.

Resolution: This word has two meanings in the Cx Process. The first refers to the smallest change in a measured variable that an instrument can detect. The second refers to the implementation of actions that correct a tested or observed deficiency.

Schematic Design (SD): A conceptual image of the projects engineering requirements. Load calculations, preliminary system selection, and flow sheets are developed in this phase of the project. This phase could represent the project at approximately 35% of the design effort.

Site Observation Visit: On-site inspections and observations made by the CxA or CxC for the purpose of verifying component, equipment, and system installation, to observe contractor testing, equipment start-up procedures, or other purposes.

Site Observation Reports (SO): Reports of site inspections and observations made by the CA. Observation reports are intended to provide early indication of an installation issue which will need correction or analysis.

Special System Inspections: Inspections required by a local code authority prior to occupancy and are not normally a part of the commissioning process.

Static Tests: Tests or inspections that validate a specified static condition such as pressure testing. Static tests may be specification or code initiated.

Start-Up Tests: Tests that validate the component or system is ready for automatic operation in accordance with the manufactures requirements.

Systems Manual: A system-focused composite document that includes all information required for the owners operators to operate the systems.

Test Procedure: A written protocol that defines methods, personnel, and expectations for tests conducted on components, equipment, assemblies, systems, and interfaces among systems.

Introduction Page 12

Testing: The use of specialized and calibrated instruments to measure parameters such as: temperature, pressure, vapor flow, air flow, fluid flow, rotational speed, electrical characteristics, velocity, and other data in order to determine performance, operation, or function.

Testing, Adjusting, and Balancing (TAB): A systematic process or service applied to heating, ventilating and air-conditioning (HVAC) systems and other environmental systems to achieve and document air and hydronic flow rates. The standards and procedures for providing these services are referred to as “Testing, Adjusting, and Balancing” and are described in the Procedural Standards for the Testing, Adjusting and Balancing of Environmental Systems, published by NEBB or

AABC.

Thermal Scans: Thermographic pictures taken with an Infrared Thermographic Camera. Thermographic pictures show the relative temperatures of objects and surfaces and are used to identify leaks, thermal bridging, thermal intrusion, electrical overload conditions, moisture containment, and insulation failure.

Training Plan: A written document that details, in outline form the expectations of the operator training. Training agendas should include instruction on how to obtain service, operate, startup, shutdown and maintain all systems and components of the project.

Trending: Monitoring over a period of time with the building automation system.

Unresolved Commissioning Issue: Any Commissioning Issue that, at the time that the Final Report or the Amended Final Report is issued that has not been either resolved by the construction team or accepted by the VA. The Commissioning Agent shall make all reasonable attempts to resolve every issue.

Commissioning Agent shall provide documentation of attempts to achieve a resolution of each unresolved issue with the VA Validation: The process by which work is verified as complete and operating correctly:

1. First party validation occurs when a firm or individual verifying the task is the same firm or individual performing the task.

2. Second party validation occurs when the firm or individual verifying the task is under the control of the firm performing the task or has other possibilities of financial conflicts of interest in the resolution (Architects, Designers, General Contractors and Third Tier Subcontractors or Vendors).

3. Third party validation occurs when the firm verifying the task is not associated with or under control of the firm performing or designing the task.

Verification: The process by which specific documents, components, equipment, assemblies, systems, and interfaces among systems are confirmed to comply with the criteria described in the Owner’s Project Requirements.

Warranty Phase Commissioning: Commissioning efforts executed after a project has been completed and accepted by the Owner. Warranty Phase Commissioning includes follow-up on verification of system performance, Introduction Page 13 measurement and verification tasks and assistance in identifying warranty issues and enforcing warranty provisions of the construction contract.

Warranty Visit: A commissioning meeting and site review where all outstanding warranty issues and deferred testing is reviewed and discussed.

Whole Building Commissioning: Commissioning of all building systems such as Building Envelope, HVAC, Electrical, Special Electrical (Fire Alarm, Security & Communications), Plumbing and Fire Protection.

Commissioning Process Manual Chapter 2 Commissioning Process Overview Page 14

2 Commissioning Process Overview 2.1 The Implementation Guide for Executive Order 13423 describes Commissioning and the Commissioning Process as:

General

Building Commissioning is a systematic approach to improving system performance, operation & maintenance, indoor air quality & thermal comfort, and energy efficiency, as well as benefits like improving occupant comfort, health & welfare, and productivity, in both new and existing buildings. These activities are not, as many owners and managers believe, part of the typical design and construction process or part of standard operation & maintenance service contracts. Commissioning goes beyond testing, adjusting and balancing (TAB) and traditional inspections. Commissioning involves functional testing to determine how well the building systems, like Heating, Ventilating and Air Conditioning (HVAC) and Lighting, work together. Commissioning also seeks to determine whether the installed building equipment (e.g. chillers, boilers, motors, airflow system) meets a facility's goals or whether it needs to be adjusted to improve the efficiency and overall performance, consistent with the original design intent. The long-term life-cycle benefits of commissioning far outweigh the short-term up-front investments, as borne out by many documented case studies, both in the public and private sector building/facility infrastructure. Green building rating systems and certification programs have given a significant boost to the role of Building Commissioning, as part of the Efficient and High Performance Building stock.

Through this executive order and the interagency memorandum of understanding, incorporating commissioning into the VA Construction projects is a legal obligation.

2.2 Whole Building Commissioning is a Project Management and Technical Execution practice that is being embraced by public and private organizations because of its benefits in improved project delivery results. It is a multi-disciplined, collaborative effort involving owners, design professionals, construction managers, and commissioning agents to achieve optimal results from the commissioning process.

Introduction to Commissioning

Commissioning information, guidance, and resources can be addressed under the following four broad principles:

● Establish Measureable Project Performance Requirements,

● Plan and Execute the Commissioning Process,

● Verify and Document Compliance with Requirements, and

● Effectively Transfer Knowledge to the Building Operations Team.

Commissioning Process Overview Page 15

It is important to note that all four principles are applied over the life of a capital design and construction project.

2.3 Commissioning assists in the delivery of a project that provides a safe and healthy facility; optimizes energy use; reduces operating costs; ensures adequate &M staff orientation and training; and improves installed building systems documentation.

Benefits of Commissioning

Commissioning benefits the VA through improved regulatory compliance, energy efficiency, improved workplace performance due to higher quality environments, reduced risk from threats, and prevention of business losses. Organizations that have researched commissioning claim that owners can achieve savings in operations of $4 over the first five years of occupancy as a direct result of every $1 invested in commissioning – an excellent return on investment. Meanwhile, the cost of not commissioning is equal to the costs of correcting deficiencies plus the costs of inefficient operations. For healthcare and other mission critical facilities, the cost of not commissioning will be measured by not only the cost of downtime and loss of facility use, but in degraded patient outcomes that may result from poor environmental control and poor compliance with the VA Standards.

2.4 Government projects commonly employ commissioning because healthcare and mission critical facilities support essential public infrastructures. While projects with special performance needs require commissioning, all projects need some level of commissioning to perform at their best.

Drivers

In addition to the performance needs of healthcare and mission critical facilities, another factor driving demand for commissioning is a desire to obtain certification through the LEED program and the Green Globes program. These rating systems have been developed to improve energy efficiency and environmental performance in buildings – and commissioning is a pre-requisite for LEED certification and a requirement for Green Globes. Commissioning beyond the basic pre-requisite requirement can earn additional LEED credits.

2.5 Commissioning is often misunderstood to focus solely on testing during the end of the construction phase. However, Whole Building Commissioning is a collaborative process for planning, delivering, and operating buildings to work as the VA and Designer intended. Commissioning begins with project planning and includes design, construction, start-up, acceptance and training and warranty phase services. The goals of the commissioning process are to:

Commissioning Goals

a. Define, document, and maintain a clearly stated set of measureable integrated system performance requirements throughout the design and construction of the project;

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b. Verify and document compliance with these requirements at each completion milestone in;

c. Establish a clear set of tasks, deliverables, and schedule milestones for every member of the commissioning team to drive building delivery to a successful conclusion;

d. Demonstrate and document effective integrated buildings performance through a rigorous process of system testing;

e. Verify that operation and maintenance personnel and occupants are properly trained; and

f. Provide documentation, training tools, and building performance metrics that will allow the VA to sustain High Performance Building systems over the life of the building.

2.6 Regardless of the extent to which the commissioning process is applied to a project, there are four overarching principles in the Commissioning Process that begin at project inception and continue through Occupancy and Operations.

Commissioning Principles

a. Establish Measureable Project Performance Requirements, As projects progress through successive Design Stages, the design team establishes Owner's Project Requirements, project work scopes and design solutions that meet the needs of the operation that will be housed in the new facility. It is the task of the commissioning process to establish measureable dynamic system performance requirements that can be definitively measured through field testing methodologies. These criteria, properly documented and measured, ultimately form the basis for project final acceptance.

Since building performance decisions are successively refined over the course a of project's life cycle, it is imperative that these ‘measureable requirements’ be refined and documented at the same time. During the pre-design and design phases of a project, the critical objectives of the commissioning process include:

● Develop Owner’s Project Requirements (OPR) o Define Dynamic Performance Requirements of the Project, including:

Environmental Control Criteria Response to Threats, Risks, and Failures Static and Dynamic Performance Requirements

● Review Design Documents for Compliance with the OPR o Design Narrative (Basis of Design) Document o Plans & Specifications

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● Document Design Development Decisions o Deviations for OPR or Design Narrative o Value Engineering Decisions & Consequences

● Document the Process o Develop & Maintain a Project Commissioning Plan o Develop the Commissioning Specifications

b. Plan and Execute the Commissioning Process Since Commissioning is a collaborative process involving multiple parties with potentially conflicting interests, it is critical that the process be well planned, documented and communicated to all project team members. Planning is accomplished through development and maintenance of the project Commissioning Plan. Planning must include

● Clear Roles and Responsibilities for all Team Members

● Establish clear means and methods of communications between all

Team Members

● Well Defined Commissioning Work Scope and Deliverables

● Project Commissioning Schedules

● Effective Inspection and Testing Plans o Pre-Functional and Functional Test Plans o Integrated System Test Plans o Special testing needs for unique or innovative assemblies

● Clear Commissioning Specifications consistent with the Project Commissioning Plan

● Clear Definitions of Training Requirements to Support Long Term Sustainability

c. Verify and Document Compliance with Requirements Commissioning serves as the historical record of both the VA's expectations for project performance and the performance achieved in the construction process. Commissioning documentation should provide a record of standards of performance for building systems and level of performance achieved in the delivered facility. Commissioning documentation should include

● A clear history of Project Development, Execution and Turnover

● A definitive record of all inspections, tests, performance issues and deficiencies and issue resolutions

● A clear methodology to evaluate building performance against that standard achieved at final acceptance of the Project (Re- Commissioning Plan)

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d. Effectively Transfer Knowledge to the Building Operations Team In order for the commissioning process to deliver sustainable results, the operations team responsible for the facility after final acceptance must be adequately prepared to assume responsibility for the installed equipment and systems at Final Acceptance of the project. It is a primary responsibility of the Commissioning Team to manage the training process to effectively prepare this team to understand and properly operate the high performance systems that will be required to sustain the VA mission. To this end, the Commissioning team should

● Engage the Operations Team in the Commissioning Process as early as possible,

● Organize and prepare all Contractors and Vendors to deliver coherent training to the Operations Team,

● Provide Systems Training and Key Performance Criteria to guide operators in monitoring and evaluating their operating systems,

● Provide Training, O&M, Performance and Re-Commissioning Documentation that will allow a facility to maintain a knowledgeable and effective operations team for the life of the facility.

2.7 For any construction project, the Department of Veterans Affairs establishes A/E Design contracts for Design Phase and Construction Period Services. The Department also establishes a construction contract with a Prime Contractor to provide construction services. Both contracts are administered by a VA Contracting Officer and his/her designated representative. During the Design Phase, this representative is the Project Manager; during the construction phase, it is the Resident Engineer. On every project, the authority to modify any contract is strictly limited to the Contracting Officer and his/her designated representative.

Contractual Relationships

In this structure, all communications on contractual issues are strictly limited to communications between the VA and these two prime contractors (A/E Team and Prime Contractor). It is the practice of the VA to require that communication between other parties to the contracts (A/E Sub-consultants, Subcontractors and Vendors) be routed through these two prime contractors and the VA.

Whole Building Commissioning is a process that relies upon high levels of communications and collaboration between all parties to the construction process. By its nature, the levels of communication and cooperation between the Commissioning Agent and all other parties to the construction process (Architects, Engineers, Subcontractors, Vendors, third party testing agencies, etc.) is essential to the success of the Commissioning effort. In the absence of these relationships, cooperation and support created by this communication, the Commissioning Process will likely fail to achieve its ends.

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With this fundamental conflict in mind, this manual has been developed to recognize that, in the execution of the Commissioning Process, the Commissioning Agent must develop effective methods to communicate with every member of the construction team involved in delivering commissioned systems while simultaneously respecting the exclusive contract authority of the Contracting Officer and his/her Designated Representative. Thus, all procedures outlined in this manual must be executed within the following limitations:

a. The Commissioning Agent may maintain a continuous open communication with the A/E team, including Sub-consultants, the Contractor and Subcontractors and the VA’s team to facilitate a collaborative commissioning process subject to the specific limitations outlined below.

b. All communications shall be copied to the VA Project Manager (Design Phase) and Resident Engineer (Construction Phase).

c. All Communications shall include specific reference to these contract limitations (e.g., “All issues identified in this Commissioning Issues Log are subject to ‘Specification Section 01 91 00: Paragraph 1.2: Contractual Relationships.’”

d. All information from the Commissioning Agent to any party to the project must be transmitted with the following clear limitations:

● No communications (verbal or written) will be deemed to constitute direction that modifies the terms of any contract between the Department of Veterans Affairs and any party to the construction project.

● Commissioning Issues communicated in writing to the Contractor or A/E Team and copied to the PM/RE are provided to all parties to the contract to expedite communication. All issues must be understood as the professional opinion of the Commissioning Agent and suggestions for issue resolution only until expressly approved as direction by the Project Manager or Resident Engineer.

● In the event that any Commissioning Issues and suggested resolutions are deemed to require either an official interpretation of the construction documents or are determined to require a modification of the contract documents, Contracting Officer or designated Project Manager (Design Phase) or Resident Engineer (Construction Phase) will issue an official directive to this effect.

● All parties to the Commissioning Process shall be individually responsible for alerting the PM/RE of any issues that they deem to constitute a potential contract change prior to acting on these issues.

● Authority for design and construction issues resolution rests solely with the Contracting Officer and his/her designated representative with

Commissioning Process Overview Page 20 appropriate technical guidance from the A/E Team and/or Commissioning Agent.

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3 Applying the Commissioning Process 3.1 The Commissioning Process provides universal benefits to any…