Attach 1 - DRAFT PWS.pdf

DRAFT

Business Instruction for Pacific Air Forces (PACAF) Heating

Ventilating, and Air Conditioning (HVAC) System Retro-Commissioning

Oct 2019

Version 1.1

Business Instruction Document Pacific Air Forces (PACAF) Heating, Ventilating, and Air Conditioning (HVAC) System Retro-Commissioning

Vision Statement Provide a cost effective command wide contract method to accomplish HVAC (Heating, Ventilating, and Air Conditioning) system retro-commissioning.

Successful retro-commissioning will assist in ensuring HVAC systems in Air Force facilities operate as intended and at optimum efficiency.

1 Introduction This effort is to provide a contract vehicle to accomplish retro-commissioning on HVAC systems throughout the Pacific Air Forces (PACAF) area of responsibility (AOR).

1.1 Mission

Keeping our facilities properly operating is crucial to support mission objectives. Performing HVAC system Retro-Commissioning will provide HVAC systems that operate as intended, run efficiently, and thereby reduce energy usage, minimize trouble calls, and extend equipment life.

1.2 Background

Retro-Commissioning (RCx) involves the systematic investigation and evaluation of existing HVAC systems to evaluate and improve a building's operations and maintenance (O&M). RCx is a systematic process intended not only to optimize how individual equipment operates, but also to optimize how entire systems work together. O&M adjustments, tune-ups, and diagnostic testing accomplished during RCx greatly optimize building HVAC system operation. RCx may also result in recommendations for future large scale capital improvements. The Department of Defense (DOD) is mandated to meet energy reduction goals of the Energy Independence and Security Act (EISA) 2007, and RCx efforts will help accomplish this goal.

1.3 Scope

The contractor shall provide all materials, equipment, tools, and labor as required, to perform all work necessary to retro-commission HVAC systems in the PACAF area of responsibility (AOR), which includes Eielson Air Force Base (AFB), Joint Base Elmendorf-Richardson (JBER), and several remote radar sites in Alaska; Misawa Air Base (AB), Yokota AB, and Kadena AB located in Japan; Osan AB, Kunsan AB, and smaller collocated operating bases (COBs) located in South Korea; future contract locations may be added to include installations within the PACAF AOR. The contractor will serve as the commissioning provider (formerly referred to as the commissioning authority), and services provided will include HVAC system evaluation, investigation, assessment, data collection and review, functional analysis, testing, balancing, energy analysis, reporting/documentation, corrective maintenance of issues identified by the

RCx contractor (to be verified by the government prior to accomplishment), and cost estimating.

Contractor may be required to accomplish work on multiple facilities at a base, and multiple task orders to accomplish work throughout the AOR may be required.

2 General Requirements This section describes the general requirements for this effort. The following sub-sections provide more detailed instructions of various stages on this effort.

2.1 Non-Personal Services

The Government shall neither supervise contractor employees nor control the method by which the contractor performs the required tasks. Under no circumstances shall the Government assign tasks to, or prepare work schedules for, individual contractor employees. It shall be the responsibility of the contractor to manage its employees and to guard against any actions that are of the nature of personal services, or give the perception of personal services. If the contractor believes that any actions constitute, or are perceived to constitute personal services, it shall be the contractor's responsibility to notify the Contracting Officer (CO) immediately.

2.2 Business Relations

The contractor shall successfully integrate and coordinate all activity needed to execute the requirement. The contractor shall manage the timeliness, completeness, and quality of problem identification. The contractor shall provide corrective action plans, proposal submittals, timely identification of issues, and effective management of subcontractors. The contractor shall seek to ensure professional and ethical behavior of all contractor personnel.

2.3 Contract Administration and Management

The following subsections specify requirements for contract, management, and personnel administration.

2.3.1 Contract Management

The contractor shall establish clear organizational lines of authority and responsibility to ensure effective management of the resources assigned to the requirement. The contractor must maintain continuity between the support operations at the base location specified in the task order, and the contractor's corporate offices.

2.3.2 Contract Administration

The contractor shall establish processes and assign appropriate resources to effectively administer the requirement. The contractor shall respond to Government requests for contractual actions within 5 business days. The contractor shall have a single point of contact between the Government and Contractor personnel assigned to support task orders. The contractor shall assign work effort and maintaining proper and accurate time keeping records of personnel assigned to work on the requirement.

2.3.3 Personnel Administration

The contractor shall provide the following management and support as required. The contractor shall provide for employees during designated Government non-work days or other periods where Government offices are closed due to weather or security conditions. The contractor shall maintain the currency of their employees by providing initial and refresher training as required.

The contractor shall make necessary travel arrangements for employees. The contractor shall provide necessary infrastructure to support contract tasks (e.g., cellular phones, vehicles, and equipment). The contractor shall provide administrative support to employees in a timely fashion (e.g., time keeping, leave processing, pay, emergency needs).

2.3.4 Contractor Manpower Reporting

The contractor shall report ALL contractor labor hours (including subcontractor labor hours) required for performance of services provided under this contract for the Air Force via a secure data collection site. The contractor is required to completely fill in all required data fields at http://www.ecmra.mil. Manpower reporting will be accomplished at the task order level.

Reporting inputs will be for the labor executed during the period of performance for each Government fiscal year (FY), which runs 1 October through 30 September. While inputs may be reported any time during the FY, all data shall be reported no later than 31 October of each calendar year. Contractors may direct questions to the CMRA (Contractor Manpower Reporting Application) help desk.

2.4 Subcontract Management

The contractor shall be responsible for any subcontract management necessary to integrate work performed on this requirement and shall be responsible and accountable for subcontractor performance on this requirement. The prime contractor will manage work distribution to ensure there are no Organizational Conflict of Interest (OCI) considerations. Contractors may add subcontractors to their team after notification to the Contracting Officer (CO) or Contracting Officers Representative (COR).

2.5 Contractor Personnel, Disciplines, and Specialties

The contractor shall accomplish the assigned work by employing and utilizing qualified personnel with appropriate combinations of education, training, and experience. The contractor shall match personnel skills to the work or task with a minimum of under/over employment of resources. The contractor shall ensure the labor categories as defined in the Davis-Bacon Wage Act, labor rates, and man-hours utilized in the performance of each Task Order issued will be the minimum necessary to accomplish the task.

The Contractor shall provide the necessary resources and infrastructure to manage, perform, and administer the contract.

The contractor will serve as the Commissioning Provider (CxP) (formerly referred to as the Commissioning Authority (CxA)), and will be certified as an independent commissioning provider/authority by one or more of the following accredited organizations: 1) Associated Air http://www.ecmra.mil/

Balance Council Commissioning Group (ACG), or 2) the Building Commissioning Association (BCA). Additional certification by the National Environmental Balancing Bureau (NEBB), American Society of Heating, Refrigerating and Air Conditioning Engineers (ASHRAE), or the Testing, Adjusting and Balancing Bureau (TABB) is desired.

2.6 Location and Hours of Work

Accomplishment of the results outlined by this business instruction requires work at bases throughout the PACAF AOR, as outlined in paragraph 1.3. Normal workdays are Monday through Friday except for United States (US) Federal Holidays. Workers typically work eight (8) hours per day, 40 hours per week. Work days at bases at foreign locations may also be subject to foreign national holidays. Specific buildings and locations will be identified in individual task orders.

2.7 Travel/Temporary Duty (TDY)

Travel to government facilities or other contractor facilities will be required, and specific bases will be specified in the task orders. Contractors shall NOT start any travel without prior approval by the Government and without issuance of an approved Contractor Travel Authorization Request documented with a Letter of Identification-Official Travel of Government Contractors (LOI). Costs for all travel shall be billed in accordance with the regulatory implementation of Public Law 99-234 and FAR 31.205-46 Travel Costs (subject to local policy & procedures).

Travel arrangements shall be made through the Contractor’s corporate office.

2.7.1 Foreign Travel

Contractor shall ensure, prior to temporary duty travel to foreign countries, that they complete United States Forces Korea (USFK) Required Theater Specific Training (USFK Reg 350-2) and unique Status of Forces Agreement (SOFA)/USFK requirements per USFK Reg 700-19, or United States Forces Japan (USFJ) instruction 36-2611 as applicable.

3.1 Performance Requirements Summary

Retro-Commissioning Services:

Retro-commissioning is required due to issues with initial commissioning adequacy and system changes over time. Buildings selected for this work have operational HVAC systems, but may not have fully functional control systems or data monitoring and logging capability.

Performance Requirements

Performance Objective (Paragraph reference)

Standard Acceptable Quality Level

3.2.1 (Planning Phase) Available system documentation has been reviewed, energy benchmarking, and retro-commissioning approach have been developed.

Draft retro-commissioning plan iaw task order completed and submitted to and accepted by the government. Gov’t rep oversight notes tasks complete.

3.2.2 (Investigation Phase)

System investigations have been accomplished, including interview with base and physical inspection of systems, baseline system data has been obtained, and pre-functional testing accomplished.

System investigation report (including Issues Log) iaw task order completed and submitted to and accepted by the government.

3.2.3 (Corrective Action Phase)

Corrective actions or adjustments identified in the Issues log and approved by government representative, are accomplished. Repairs beyond the scope of the task order are identified.

25% sampling of items reported completed is found by the government to be accomplished satisfactorily to allow system testing and operation.

3.2.4 (Implementation Phase)

Final functional testing, energy analysis, TAB, and data logging is performed.

Implementation Phase report (including data logging and final testing results) iaw task order submitted to and accepted by the government. Gov’t rep oversight notes tasks complete.

3.2.5 (Hand Off Phase) Base personnel have been provided training session, including informing base of any changes made. System Manuals and Final Retro-Commissioning reports are completed.

Training sessions completed and documented per Task order. System manuals and final Retro-Commissioning reports iaw task order submitted to and accepted by the government.

3.2.6 (Other Investigative Services)

Investigation performed on causes of system malfunction or underperformance, and potential solutions or repairs identified.

System investigation reports iaw task order submitted to and accepted by the government.

3.2 Retro-Commissioning Services

This section provides details on the work steps needed to perform successful HVAC system retro-commissioning.

3.2.1 Planning Phase

Perform a documentation review of existing HVAC information provided as the basis of work for facilities identified in the task order. The planning phase consists of the following;

a) Documentation Review - will include;

1) Collect and analyze HVAC system documentation such as as-built plans, O&M manuals, and equipment lists.

2) Collect and analyze energy audits, energy analysis reports, BUILDER Sustainment Management System (SMS) data reports, Energy, Condition, & Optimization (ECO) reports, or any other applicable studies/audits. Data such as equipment manufacturer, model number and type, size, capacity, age, location, and terminal unit quantities can be obtained and used to plan for functional testing.

3) Collect and analyze HVAC shop data (e.g., boiler combustion analysis test results, boiler inspection results, airflow test and balancing records, humidity/temperature tests and logs).

4) Collect and analyze HVAC Work Order history from shop records or other databases (e.g., Interim Work Information Management System (IWIMS), GeoBase, Next-Gen IT (TRIRIGA), etc.)

5) Develop Current Facility Requirements (CFR) survey.

6) Conduct advance phone interview/discussion with the base Points of Contact (POC(s)) to plan the initial site survey.

b) Develop Utility Bill Benchmarking:

The approach to benchmarking shall be tailored to the specific needs of the building and shall target major HVAC equipment. Based on previous experience on RCx projects, the contractor shall use the following parameters (at a minimum) to determine the building baseline energy performance. Benchmarking shall include for the building: kilowatt (kW) and kilowatt-hour (kWh), natural gas and combustion fuel consumption, diesel fuel oil consumption and steam consumption where available. For HVAC equipment, Chiller and/or Direct Expansion (DX) kW and kWh, fan kW and kWh, and pumps kW and kWh. These values shall be used to determine if final consumption values result in an energy savings. The Air Force (AF) or designated service component will assist in providing as much of the data as possible; however; if data is not available, then the contractor shall provide their own portable measuring devices.

1) As an alternative; the contractor may use energy modeling software to determine building energy usage and performance based on measurements of values such as air handler discharge air temperature, mixed air temperature, and return air temperature.

c) Develop Draft Retro-Commissioning Plan

Contractor shall take all gathered information and develop a Draft Retro-commissioning plan, which provides the approach in which to continue the Retro-Commissioning process. This is to ensure there is a documented and established approach to performing system evaluations.

This will facilitate on-site support of the actions, as well as providing a road map of actions to make the best use of time while on site. The draft Retro-Commissioning plan includes identification of Retro-commissioning objectives, proposed Point-to-Point test approach, proposed Test and Balance Assessment Approach, and sample Point-to-Point and Test and Balance Forms.

3.2.2 Investigation Phase

In this phase, the contractor will be on-site to conduct interviews, perform visual inspection of equipment to verify accuracy of existing equipment inventory and operation, perform data logging to gather baseline data and conduct functional testing of HVAC equipment and controls.

Perform system investigations and documentation for both the heating and cooling seasons.

The results of the investigation phase will result in a project issues log, which will be the basis for government approval for follow-on minor corrective maintenance actions.

a) Interviews: Conduct on-site interviews of HVAC technical support staff. Interview facility managers and conduct Current Facility Requirements (CFR) survey to understand and verify Current Facility Requirements. Review Operations & Maintenance (O&M) staffing resources and HVAC shop Recurring Work Program (RWP) and compare against manufacturer's recommendations or industry standards.

b) Visual Inspection: Conduct site condition assessment survey of facilities for heating and cooling equipment. Compare current O&M to design or manufacturer's specified O&M.

Annotate any differences between documented vs. visually inspected condition. Confirm and validate existing equipment inventory and Sequence of Operation by reviewing installation HVAC shop recurring work program (RWP) records, or system O&M information. (Note: not all facilities will have this information available).

c) Baseline Data Logging: Implement diagnostic monitoring (Data Logging) Plan for Energy Baseline during cooling and heating seasons. Information will be used compare and report increases in operating efficiencies. Data loggers shall collect kW, kWh, temperatures, and pressures on all HVAC equipment for a minimum of 14 days for each season to establish a baseline.

d) Functional Testing: Conduct Point-to-Point and functional testing during cooling and heating seasons. Results of any functional test will be documented to provide the following type information:

1) Generate an Issues Log from the results of functional testing and technical troubleshooting that will detail all broken/non-functional components of the evaluated system. This log will be prioritized by how critical that component is to the function of the system, and a proposed cost for implementing the fix. Corrections that require complete major component or system replacement will be categorized as a Capital Investment type effort and detailed on a separate log sheet. Examples are provided in paragraph 3.2.3 below.

See Appendix A for further information on the RCx Issues Log.

e) Incidental minor corrective maintenance items shall be approved by the Contracting Officer (or the designated Contracting Officers Representative if cost is less than $3500) once there is an agreed upon solution and price for each item identified on the Issues Log as needing correction.

f) Develop and submit an Investigation Phase Report that will include an initial Functional Testing Report, the Draft Retro-Commissioning Plan which includes identification of Retro-commissioning objectives, proposed Point-to-Point test approach, proposed Test and Balance Assessment Approach, and sample Point-to-Point and Test and Balance Forms.

1) The report shall also include any Capital Improvement measures identified during this phase. This section shall also include estimated costs for enacting the proposed capital improvements and estimated energy savings that can be obtained as a result. Use the Department of Energy (DoE) Building Life-Cycle Cost (BLCC) program to quantify those savings using the following assumptions:

a) Location; nearest US City or US Average for overseas

b) Discount rate - 3%

c) Economic Life - based on Energy Conservation Investment Program (ECIP) criteria

d) Utility Unit Cost - based on current installation rates

3.2.3 Corrective Actions Phase

This phase is for the contractor to accomplish and document the corrections to items as identified on the Issues Log once approved by the Contracting Officer (or designated Contracting Officers Representative). The basis for this phase of work is derived from the Issues Log deliverable from the Investigation Phase.

a) Typical corrective actions include (but are not limited to); coil cleaning, filter replacement, actuator linkage adjustments or replacements, belt replacements, thermostat calibration, replace frozen or inoperable dampers, reset and calibrate Variable Air Volume (VAV) boxes, adjust/replace frozen or inoperable valves, re-connect controls and wiring, calibration of line setter valves. See Appendix D for the Corrective Maintenance Item Listing (a list of anticipated corrective maintenance items typically seen on HVAC systems).

b) Examples of items which would be beyond the scope of this contract, and not considered a corrective maintenance action are items such as; complete HVAC system renovation or replacement; replacement of major system equipment such as boilers, chillers, air handling units, condensing units, fan coils, heat exchangers, ductless split systems or heat pumps, hydronic pumps, and exhaust fans; replacement or rerouting of entire duct or piping sections.

Identified items such as these requiring correction, will be accomplished via a separate contract action. These should also be on a separate log sheet, as noted in paragraph 3.2.2 d) above

c) The contractor will be responsible for obtaining all items and materials needed, labor required, tools, and equipment necessary to accomplish all of the approved minor corrective actions. Costs for travel will not be part of this cost; travel cost shall be listed separately.

d) Since the exact amount of items requiring correction will not be available at time of award, an Over and Above contract line item will be included to account for RCx minor corrective action items. Approval by the Contracting Officer is required prior to accomplishing any of the identified corrective action items.

3.2.4 Implementation Phase

During this phase, RCx actions are performed on the systems to bring them to optimal performance. Final functional testing is performed, Test, Adjust and Balance (TAB) is accomplished, and final data logging is performed to evaluate the effectiveness of the process.

The Final report will document all findings and future potential energy conservation opportunities.

a) Final Functional Test: Conduct Final Point-to-Point and Functional Retesting of corrected or adjusted HVAC equipment and systems during heating and cooling seasons, conduct Test and Balance Assessment. Implement and document equipment and controls adjustments to maximize efficiency.

b) Perform Energy Analysis of Potential Energy Conservation Opportunities

1) Utilize results of Data Trending, Benchmarking results, and Field observations to determine Baseline energy performance.

2) Analyze potential Energy Efficiency Measures for Energy Savings Potential and economic benefit.

3) Analyze synergistic effects of combinations of Energy Efficiency Measures (if combinations are identified).

c) Develop Final Implementation Phase Report

1) Present Trend Data Assessment results

2) Present results of all Field Testing and Surveys

a) Completed Functional Testing and Point-to-Point procedures

b) HVAC testing and recommendations for any follow-up on detailed TAB requirements per applicable standards, such as ASHRAE 90.1 and 62.1.

c) Final Project Issues Log that details all items that were corrected, lists any new items discovered, and status of other items that could not be corrected at the time of retro-commissioning

3) Present results of Energy Analysis

4) Present Energy Conservation Opportunity (ECO) recommendations with Economic and Energy Savings Estimates and associated implementation costs.

d) Implement diagnostic monitoring (data logging) plan during heating* and cooling* seasons, and revise estimated energy savings calculations based on monitoring results. Data loggers shall collect kW, kWh, temperatures and pressures at a minimum on all HVAC equipment for a minimum of 14 days for each season to validate results. [*Note; not all installations or locations will have both a heating and a cooling season. Perform tasks as applicable for the location.]

e) Cost Estimates;

1) Cost estimates should be broken down into labor, materials, and other direct costs, with appropriate quantities, if not otherwise specified. Estimated costs for overhead, profit, bonds and taxes shall be identified separately from the direct costs.

2) Estimates/breakdowns shall be submitted on a Construction Cost Estimate Breakdown form (See Appendix E for sample), or a computer generated equivalent which provides the same information.

3.2.5 Hand off Phase

This phase is conducted following the implementation phase. The purpose is to inform the local operators and maintainers of what corrections and adjustments were made to the system, teach them how to keep the system performing optimally, and provide reference documentation for their future reference.

a) Conduct a digitally recorded Hand-Off Phase meeting with base maintenance personnel and conduct training and out-brief.

b) Provide data to update recurring maintenance database (e.g., IWIMS/TRIRIGA, BUILDER SMS) with HVAC equipment data and maintenance schedules so that personnel will continue with proper preventive maintenance actions in order to keep the systems operating efficiently.

c) Prepare and submit a Systems Manual that includes O&M documentation for maintaining the systems. See Appendix B herein for required manual items.

d) Prepare and submit Retro-Cx Final Report. See Appendix C herein for further details on the Retro-Commissioning Final Report content.

3.2.6 Other Investigative Services

The government in-house force may not have the capability to identify specific problems with specialized or complicated HVAC systems and will require additional investigative support to figure out causes to system malfunction or underperformance. These will be detailed in individual task orders.

3.2.6.1 Investigative Services and Assessments

Provide services such as field investigations, condition assessment, and capacity analysis.

Perform field investigations and research necessary to ascertain all existing conditions affecting system performance. This will include the collection of data and the presentation of this data in a report which clearly substantiate and explain the conclusions and/or recommendations of the analysis. Reports shall present the following, further details of which will be presented on individual task orders for specific buildings.

a) On-Site Investigations: This service includes on-site investigations to verify available data with existing conditions.

b) Project development: This service will develop basic project strategy, funding justifications, and construction requirements to be used as the basis to develop future capital project packages.

c) System Assessment: This service will provide assessment of a particular system issue. The service will include the collection of data and the presentation of this data in a report which clearly substantiate the conclusions and/or recommendations for the system. Assessment reports should include;

1) Discussion of the assessment and investigation. Provide an executive summary in addition to detailed discussion.

2) Description of all plans, schemes, and options considered for obtaining the end result of the assessment, including any assumptions made.

3) All drawings and sketches necessary to present and illustrate the details and results of the assessment.

4) Complete findings and recommendations to gather justification and criteria for any proposed future capital improvement project needed, or to support future planning by the base. Provide the findings and results of interviews, governing codes and regulations, and requirements. Provide all recommendations concerning the design or other work, including potential project scope and cost factors.

5) Parametric estimates of costs, including comparative costs for indicated alternate or optional plans/schemes. See Appendix E for sample cost estimate format.

6) Final results, conclusions, and recommendations.