Atch_12_AFI_32-1021_Planning_and_Programming_MILCON_Projects.pdf

BY ORDER OF THE

SECRETARY OF THE AIR FORCE

AIR FORCE INSTRUCTION 32-1021

31 OCTOBER 2014

Civil Engineering

PLANNING AND PROGRAMMING

MILITARY CONSTRUCTION (MILCON)

PROJECTS

COMPLIANCE WITH THIS PUBLICATION IS MANDATORY

ACCESSIBILITY: Publications and forms are available for downloading or ordering on the e- Publishing website at www.e-Publishing.af.mil.

RELEASABILITY: There are no releasability restrictions on this publication.

OPR: AF/A4CFC (Mr. Satish Abrol)

Supersedes: AFI32-1021, 14 June 2010

Certified by: AF/A4CF

(Mr. Robert Gill)

Pages: 52

This Instruction implements Air Force Policy Directive (AFPD) 32-10, Installations and

Facilities and Department of Defense Directive (DoDD) 4270.5, Military Construction. It provides guidance on how to plan, develop, and obtain approval for Military Construction

(MILCON) projects. It applies to the active forces, the Air National Guard (ANG), and the US

Air Force Reserve. It addresses facilities obtained through military construction, Unspecified

Minor Military Construction (UMMC), Defense Logistics Agency (DLA) Fuels MILCON, emergency construction, Defense Access Roads (DAR), and relocatable building programs. It excludes military family housing (MFH), medical facility funding, DLA and defense-wide military construction programs, non-appropriated fund (NAF) and host nation funded construction programs, operations and maintenance (O&M) funded minor construction, Working

Capital funds, and construction projects funded with research, development, test, and evaluation

(RDT&E) funds. Refer recommended changes and questions about this publication to the Office of Primary Responsibility (OPR) using the AF Form 847, Recommendation for Change of

Publication; route AF Forms 847 from the field through the appropriate functional chain of command. Ensure that all records created as a result of processes prescribed in this publication are maintained in accordance with (IAW) Air Force Manual (AFMAN) 33-363, Management of

Records, and disposed of IAW the Air Force Records Disposition Schedule (RDS) located in the air Force Records Information Management System (AFRIMS). or any updated statement provided by the AF Records Management Office (SAF/CIO A6P) The authorities to waive wing/unit level requirements in this publication are identified with a Tier (T-0, T-1, T-2, T-3) number following the statement. See AFI 33-360, Publications and Forms Management, for a description of the authorities associated with the Tier numbers (T-0 through T3). Submit http://www.e-publishing.af.mil./

2 AFI32-1021 31 OCTOBER 2014

requests for waivers through the chain of command to the appropriate Tier waiver approval authority, or alternately, to the Publication OPR for non-tiered compliance items.

SUMMARY OF CHANGES

This document is substantially revised. Revisions include updated and expanded sections on

MILCON planning and programming processes, host and tenant responsibilities, MILCON submittal procedures, cost estimating, DLA fuels, UMMC, relocatable and temporary facilities, and the DAR construction program. New project compliance certification, demolition policy, sustainable design, and antiterrorism (AT) requirements for MILCON projects are also included.

AFI32-1021 31 OCTOBER 2014 3

Chapter 1—PRINCIPLES AND RESPONSIBILITIES 5

1.1. Facility Project Planning and Programming Objective

1.2. Principles

1.3. Responsibilities

Table 1.1. Joint Base MILCON Programming and Budgeting Responsibilities

Chapter 2—MILITARY CONSTRUCTION PROJECT PLANNING 10

2.1. Planning

2.2. Planning Actions

2.3. Certificate of Compliance for Critical Planning Actions

Chapter 3—MILITARY CONSTRUCTION PROGRAMMING 17

3.1. MILCON Programming

3.2. MILCON Definition

3.3. MILCON Project Development

Table 3.1. Supervision, Inspection, and Overhead (SIOH) Percentage by Location

3.4. MILCON Program Development

3.5. MILCON and Program Objective Memorandum Schedules

3.6. Advertising Construction Projects

3.7. Project Files

Table 3.2. Suggested Source Documentation

3.8. Special Military Construction Authorities

3.9. Demolition Policy

3.10. Emergency and Standby Power Authorization

Chapter 4—UNSPECIFIED MINOR MILITARY CONSTRUCTION PROGRAMMING 26

4.1. Unspecified Minor Construction

4.2. Minor Construction Project Funding

4.3. Associated Projects

4.4. Project Submittal Process

4.5. Project Justification

4.6. Project Execution

Figure 4.1. Certificate of Compliance for Unspecified Minor Military Construction Projects

Carried out Under Authority of 10 U.S.C. § 2805

4 AFI32-1021 31 OCTOBER 2014

Chapter 5—EMERGENCY, DAMAGED OR DESTROYED, AND CONTINGENCY

CONSTRUCTION PROGRAMS 29

5.1. Purpose of Chapter

5.2. Special Construction Programs

Chapter 6—RELOCATABLE (TEMPORARY) FACILITIES 32

6.1. Relocatable (Temporary) Use Facilities Background

6.2. Interim Facilities

6.3. Temporary Facilities Incident to MILCON

Chapter 7—PRESCRIBED AND ADOPTED FORMS 36

7.1. Forms Prescribed

7.2. Adopted Forms

Attachment 1—GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION 37

Attachment 2—CERTIFICATE OF COMPLIANCE 45

AFI32-1021 31 OCTOBER 2014 5

Chapter 1

PRINCIPLES AND RESPONSIBILITIES

1.1. Facility Project Planning and Programming Objective. The objective of facility project planning and programming is to provide adequate facilities needed to perform the Air Force mission. All commanders and civilian directors shall support this objective by ensuring project requests meet validated requirements; are in compliance with all applicable standards; are programmed at the lowest life cycle cost; achieve optimum resource efficiency and minimize damage to the natural and human environments.

1.2. Principles. Planning and programming facilities follows these principles:

1.2.1. Facility Project Planning. Facility project planning identifies facilities needed to satisfy current and known or planned future mission requirements, determines the most economical means of providing those facilities, and identifies the year in which they will be required. This determination shall always begin with an evaluation of existing facilities for their suitability to satisfy mission requirements.

1.2.2. Military Construction (MILCON) Programming. MILCON programming is the process of acquiring both the authority and resources necessary to meet facility requirements identified by the planning process. A construction project with an estimated cost greater than

$750,000 is normally funded through the MILCON Program.

1.3. Responsibilities.

1.3.1. Deputy Assistant Secretary of the Air Force (Environmental, Safety and

Infrastructure), SAF/IEE. Provides Air Force policy development and oversight, and advocates for the MILCON program through the Office of the Secretary of Defense (OSD), Office of Management and Budget (OMB), and Congress.

1.3.2. Secretary of the Air Force Administrative Assistant, SAF/AA. Acts as a Major

Command (MAJCOM) representative for Field Operating Agencies (FOA) that report to elements of the Headquarters Air Force (HAF), in accordance with the Program Objective

Memorandum Preparation Instruction (PPI) guidance.

1.3.3. The Director of Civil Engineers, AF/A7C. Formulates guidance governing the Air

Force MILCON program, directs development of Air Force capital investment strategies, and advocates for resources through the Air Force Corporate Structure, OSD, OMB, and

Congress.

1.3.4. The Facility Management Division, AF/A7CF. Formulates guidance and procedures governing the Air Force MILCON program, develops Air Force capital investment strategies, reviews MILCON programs, and integrates Total Force (Active Air

Force, Air National Guard, Air Force Reserve) MILCON projects into a single prioritized list based on a pre-approved MILCON Model and presents the MILCON program to the Air

Force Corporate Structure for approval. Advocates for MILCON resources through the Air

Force Corporate Structure, OSD, OMB, and Congress. Coordinates construction programs requiring interagency approvals, such as DAR, medical facilities, defense fuels, and energy conservation.

6 AFI32-1021 31 OCTOBER 2014

1.3.5. Air Force Civil Engineer Center, AFCEC. Consults with MAJCOM/DRU/FOA and the Base Civil Engineer (BCE) during the planning and planning charrette phases. Refer to Section 1.5.1.3 of AFI 32-1023, “Designing and Constructing Military Construction

Projects” for definition of Planning and Planning Charrette. Responsible for executing the planning charrette and developing the initial planning documents for MILCON projects.

Facilitates Project Definition Rating Index (PDRI) assessment during the planning charrette process to evaluate and mitigate project risk. Follow Engineering and Construction Bulletin

(ECB) 2010-17, Implementation of Project Definition Rating Index or the most current guidance for PDRI development. AFCEC does not execute ANG MILCON program.

1.3.6. US Air Force Reserve, AF/RE. Issues guidance to Air Force Reserve Command

(AFRC) for submitting its MILCON program, reviews and validates the cost estimate and scope of each project and submits a prioritized list of projects to AF/A7CF for developing the

Total Force prioritized MILCON list. Assists Air Staff in determining size and content of their MILCON program. Prepares and submits the AFR MILCON portion of the President’s

Budget. Advocates for the AFRC MILCON program through OSD and Congress. AFRC

MILCON programming, design, and execution will continue to be accomplished by AFRC, in coordination with Air Force Civil Engineer Center (AFCEC), United States Army Corps of Engineers (USACE), or United States Naval Facilities Engineering Command

(NAVFAC).

1.3.7. Air National Guard, NGB/A7. Provides instructions to ANG installation commanders for planning and preparing construction programs, reviews and validates cost estimate and scope of each MILCON project and submits the prioritized list of projects to

AF/A7CF for developing the Total Force MILCON list. Assists Air Staff in determining size and content of their MILCON program. Prepares and submits the ANG MILCON portion of the President’s Budget. Advocates for the ANG MILCON program through National Guard

Bureau, OSD, and Congress. ANG MILCON programming, design, and execution will continue to be accomplished by ANG. .

1.3.8. Major Commands (MAJCOM), Field Operating Agencies (FOA) and Direct

Reporting Units (DRU). Plan, program, review, validate, prioritize, and submits MILCON programs in accordance with guidance issued by AF/A7CF and all applicable Air Force

Instructions. (T-1). Coordinates with all applicable functions to verify all requirements are documented and cost estimates are accurate. . FOAs that report to MAJCOMs will provide instructions and guidance to installation commanders for planning and submitting MILCON programs; to include review and validation of scope, cost estimates, as well as validation and prioritization of all facility requirements. (T-2). FOAs will submit their MILCON requirements in accordance with the latest PPI guidance. (T-2).

1.3.9. Installation Commander. Identifies, plans, and programs facilities to support their assigned missions. (T-1). Determines whether existing facilities are available to meet the mission requirement (refer to AFI 32-9001, Acquisition of Real Property); ensures existing facilities are used economically and efficiently and that excess space is evaluated for demolition. Reviews, validates, prioritizes, and submits MILCON programs to their assigned

MAJCOM. Ensures all requirements necessary to make the MILCON a complete and usable facility are identified. (T-1).

AFI32-1021 31 OCTOBER 2014 7

1.3.10. Installation Base Civil Engineer (BCE). Ensures all required certifications and environmental actions are complete or well underway prior to project submission to

MAJCOM for programming consideration. Accomplishes required planning actions, compliance items, and certificates for every MILCON project and retains for future reference and project management. Develops initial planning documents to support the installation’s

MILCON projects in accordance with AFI 32-1023, Designing and Constructing Military

Construction Projects. Submits the planning documents for each prioritized MILCON project to their assigned MAJCOM.

1.3.11. Host, Tenant, and Supported Unit Responsibilities. The host installation provides services to tenant and supported units IAW AFI 25-201, Intra-Service, Intra-Agency, and

Inter-Agency Support Agreements Procedures and AFI 65-601, Vol 1, Budget Guidance and

Procedures.

1.3.11.1. Projects for On-Base Tenants and Supported Units. Host installations will provide facilities and/or space needed by on-base tenants or supported units from existing assets, if available. (T-2). If adequate existing facilities are not available, or if the tenant requires construction or renovation of facilities for its sole use, the host installation will prepare program-related project documentation on behalf of the tenant or supported unit's mission. The host installation will then forward documentation concurrently to the host

MAJCOM/DRU or supported MAJCOM Civil Engineers/HAF representatives and the tenant. (T-2). Any MILCON requirements programmed or planned by other organizations must be coordinated by the host base MAJCOM/CV. This level of authority will not be delegated below the host MAJCOM/CV. Additionally, for mission bed-down MILCON, the host base MAJCOM/DRU and supported MAJCOM Civil

Engineers/HAF representatives must participate in the bed-down planning and the host

MAJCOM/CV will coordinate on the bed-down plan IAW AFI 10-503, Strategic Basing.

The tenant or supported unit’s command will validate the project, establish its priority, and submit the project as part of its MILCON submittal to AF/A7CF. AFR/ANG should reference AFI 32-1012, Reserve Component Facilities Programs.

1.3.11.2. Air Force Reserve Components Units. Host Installations will follow AFI 25-

201, “Support Agreements Procedures” on host-tenant relationships when reserve component units are tenants on Air Force installations.

1.3.11.3. Joint Basing. At joint bases, refer to Department of Defense Initial Guidance for BRAC 2005 Joint Basing Implementation dated January 22, 2008; Department of

Defense Facilities Investment Supplemental Guidance for Implementing and Operating a

Joint Base dated April 15, 2008. Table 1.1 summarizes the programming and budgeting responsibilities highlighted in the DoD Initial Guidance for BRAC 2005.

8 AFI32-1021 31 OCTOBER 2014

Table 1.1. Joint Base MILCON Programming and Budgeting Responsibilities.

JOINT BASE MILCON PROGRAMMING AND BUDGETING RESPONSIBILITIES

Facilities

DoD Financial Management

Regulation (Volume 2B, Chapter

8) Work Definition

Component Responsible for

Programming & Budgeting

Supporting

Component

Supported

Component

Installation Support Facilities and

Common Infrastructure for which the

Supporting Component is generating the requirement

New Construction X

Mission Facilities for which the

Supporting Component is generating the requirement New Construction

X

Installation Support Facilities and

Common Infrastructure for which the

Supported Component is generating the requirement

New Construction

Mission Facilities for which the

Supported Component is generating the requirement New Construction

Notes:

1. For example, the Component generating an increase to the Joint Base population is responsible for any new construction needed to expand installation support facilities to accommodate the population increase. See DUSD(IE) memorandum, 15 Apr 08, for examples of Installation Support Facilities types.

2. New construction encompasses activities that provide new or expanded facilities. New construction adds footprint and increases the real property inventory.

General Note. The following guidance applies to projects carried out under Title 10 U.S.C. 2854, Restoration or Replacement of Damaged or Destroyed Facilities. Programming and budgeting for

Installation Support Facilities and Common Infrastructure are the responsibility of the Supporting

Component. Programming and budgeting for Mission Facilities are the responsibility of the component owning the mission.

1.3.11.4. Joint Use of Installations with Other Agencies. Host installations will follow

AFI 25-201, “Support Agreements Procedures” in cases where units of other government agencies, departments, or military services use facilities or portions of an Air Force installation. Each MILCON project must be reviewed for joint use potential and certified in the certificate of compliance and stated on DD Form 1391. (See Chapter 2) (T-0).

AFI32-1021 31 OCTOBER 2014 9

1.3.11.5. Installations in Foreign Countries. In foreign countries, installations will follow guidelines outlined in the Status of Forces Agreement (SOFA) or country-to-country agreements during the planning, design, and construction of the project. (T-0).

In addition; Installations can follow their MAJCOMs unique supplemental guidance to the AFIs for MILCON projects. Refer to AFI 25-201, “Support

Agreements Procedures.”

10 AFI32-1021 31 OCTOBER 2014

Chapter 2

MILITARY CONSTRUCTION PROJECT PLANNING

2.1. Planning. Effective planning establishes facility and infrastructure requirements critical for mission accomplishment and proposes the most effective and economical means of satisfying those requirements.

2.2. Planning Actions.

2.2.1. Determine Requirements. Installations identify facility needs 3-5 years in the future and determine which needs cannot be met with existing facilities. Installation commanders review, validate, and prioritize installation MILCON facility requirements.

MAJCOM/FOA/DRUs review and submit their programs as outlined in paragraph 3.3.5. .

Requirements shall be based on AFMAN 32-1084, Facility Requirements, which provides typical requirements for a given facility type. Reference to other Air Force or DoD publications or a detailed study of unique user requirements may also be necessary to determine complete needs. The ANG and AFR have unique facility requirements that can be different from active duty installations. ANG unique facility requirements are published by

NGB/A7. AFR unique facility requirements are contained in AFRCH 32-1001, “Standard

Facility Requirements.

2.2.2. Evaluate Alternative Solutions. Installations evaluate existing assets and determine the most economical and effective means of satisfying facility needs. (T-2). Consideration shall be made for consolidating requirements into existing or “right-sized” facilities to reduce the Air Force physical plant. New construction greater than $2M will require justification based on an economic analysis performed in accordance with AFI 65-501, Economic

Analysis.

2.2.3. Initiate Programming Actions. When it is determined that a facility must be constructed or upgraded, the BCE will initiate the construction programming process, and complete the initial planning documents, including a DD Form 1391, facility siting documentation, EIAP review, and all other applicable documents. (T-0). The BCE shall enter the DD Form 1391 information in the Civil Engineer (CE) electronic programming database. (T-1).

2.3. Certificate of Compliance for Critical Planning Actions. Installations shall complete several planning actions for every MILCON project. These planning results should be approved by the Installation Facilities Board before obtaining the Certificate of Compliance for Critical

Planning Actions (as shown in Attachment 2), signed by the installation commander, documenting completion of these actions. (T-1). MAJCOM/FOA/DRUs review these certificates to ensure installations have fulfilled all compliance requirements, and BCE shall retain them in the project folder at the installation for future reference and use. Although this certificate is only completed once, MAJCOM/FOA/DRUs shall ensure required actions take place when and as needed. (T-1). The following paragraphs, listed in the same order on the certificate, briefly describe the actions being certified. If more detailed information is required to ensure compliance, referenced documents should be reviewed.

AFI32-1021 31 OCTOBER 2014 11

2.3.1. Environmental Impact Analysis Process (EIAP). (Attachment 2, Item 1). The

EIAP must be complete before initiating MILCON projects for both CONUS and OCONUS.

(T-0). Refer to AFI 32-7061, The Environmental Impact Analysis Process (EIAP) as promulgated at 32 CFR Part 989, Environmental Impact Analysis Process (EIAP). Projects outside the United States, its territories and possessions shall comply with DODI 4715.5, “Environmental Compliance at Installations Outside the United States”.

2.3.2. Wetlands and Floodplains. (Attachment 2, Items 2 and 3). Before MILCON projects are submitted to the MAJCOM/DRU, they shall comply with Executive Order

11990, Protection of Wetlands, Executive Order 11988, Floodplain Management, and

Executive Order 13653, Preparing the United States for the Impacts of Climate Change.

Refer to AFI 32-7064, Integrated Natural Resources Management and 32 § CFR Part

989.14g. When any of these Executive Orders apply, a Finding of No Practical Alternative

(FONPA) must be completed and submitted to the MAJCOM/DRU Environmental Planning

Function (EPF) before action is taken. (T-0). Compliance with these Executive Orders may be accomplished as part of the EIAP documentation. Projects with potential impact to wetlands and/or floodplains may require special permits and authorizations. Consult with the

US Army Corps of Engineers, Regulatory District Office, or the Naval Facilities Engineering

Command prior to initiating any actions affecting wetlands or floodplains.

2.3.3. Coastal Zone Management. (Attachment 2, Item 4). Refer to AFI 32-7064.

2.3.4. Coastal Barrier Resources. (Attachment 2, Item 5). Refer to AFI 32-7064.

2.3.5. Threatened and Endangered Species. (Attachment 2, Item 6). Installations shall consult with the US Fish and Wildlife Service (USFWS) and National Marine Fisheries

Service (NMFS), according to Section 7 of the Endangered Species Act, for MILCON actions potentially affecting threatened or endangered species. (T-0). These consultations should be completed before the FONSI or ROD is signed. Refer to AFI 32-7064.

2.3.6. Cultural Resources Management. (Attachment 2, Item 7). Areas of potential effect shall be surveyed to identify historic buildings, archaeological sites, and other cultural resources. (T-0). Installations shall report survey results, regardless of the findings, to the

State Historic Preservation Officer (SHPO) for consultation in accordance with Section 106 of the National Historic Preservation Act. (T-0). Consultation must also be conducted with any Native American tribe or Native Hawaiian organization that attaches religious and cultural significance to historic properties in the area of potential effect. (T-0). Further consultation with the Advisory Council on Historic Preservation (ACHP) is required when a

National Historic Landmark is affected or when adverse effects cannot be resolved with the

SHPO. This process shall be completed prior to project award or obligation of funds. Refer to AFI 32-7065, Cultural Resources Management and 36 CFR Part 800, Protection of

Historic Properties. (T-0). Installations shall be aware of the requirement to stop work after inadvertent discovery of cultural items as defined in Title 25 United States Code, section

3001- 3013, the Native American Graves Protection and Repatriation Act. Installations shall includes provisions in construction contract for possible delays in areas where inadvertent discovery is possible. The discovery will be protected in accordance with federal law, regulation, and any existing executed agreements.

2.3.7. Interagency and Intergovernmental Coordination. (Attachment 2, Item 8).

Installations shall submit data to state and local review agencies on proposed construction

12 AFI32-1021 31 OCTOBER 2014

projects and real property acquisition plans that may affect local, regional (area-wide), and state community plans, programs, and projects in accordance with applicable laws and regulations. (T-0).

2.3.8. Environmental Permits. (Attachment 2, Item 9).

2.3.8.1. Environmental Compliance. Permits required by applicable federal, state, interstate, or local regulations shall be obtained before constructing or operating a facility that emits or generates pollutants. (T-0). Permits may be required for construction or modification of wastewater, drinking water, storm water runoff systems, and underground storage tanks. Applicable federal laws include 42 U.S.C. §§ 9601 - 9675, Comprehensive Environmental Response, Compensation, and Liability Act, 42 U.S.C. §§

7401 - 7671q, Clean Air Act; 33 U.S.C. §§1251 - 1387, Federal Water Pollution Control

Act; 42 U.S.C. §§ 6901 - 6992k, Resource Conservation and Recovery Act; and 42

U.S.C. §§ 300f - 300j-26, Safe Drinking Water Act.

2.3.8.2. Permits. Base Civil Engineer shall obtain environmental permits required for

MILCON projects, or make certain the appropriate government contractor has obtained the required permits. (T-0). For MILCON projects, the Base Civil Engineer (BCE) shall ensure funds are included in the project to meet all environmental requirements. Base

Civil Engineer (BCE) shall forward electronic copies of required permits to AFCEC at earliest completion but no later than requesting Authority to Advertise. (T-1).

2.3.9. Potentially Regulated Substances at Existing Sites. (Attachment 2, Item 10).

During project planning and design and preparation of EIAP documentation, installations shall survey the site/structures and soil, where soil disturbance is anticipated, to find out whether hazardous and toxic substances are present. (T-1). These substances include, but are not limited to: pesticides; asbestos; lead-based paint; polychlorinated biphenyls (PCBs);

ozone-depleting substances; petroleum, oils, and lubricants (POL); and radon. If these materials are present, they must be removed, quantified, reported, handled, and disposed in accordance with applicable environmental regulations as part of MILCON project. The base bioenvironmental engineer and an environmental representative must coordinate and approve design plans before alterations can begin.

2.3.10. Radon at New Construction Sites. (Attachment 2, Item 11). Installations shall determine if a proposed construction site is likely to generate radon gas and include appropriate mitigation measures in design. (T-1).

2.3.11. Environmental Restoration Program (ERP), Including Installation Restoration

Program (IRP), Military Munitions Response Program (MMRP) and Other Historic

Releases of Hazardous Substances. (Attachment 2, Item 12). Installations shall ensure project siting and construction will not adversely affect ERP, IRP, or MMRP activities and there are no land use constraints impacting siting and construction. (T-1).

2.3.11.1. Historic Release of Hazardous Substances Within MILCON Project

Footprints. Installations are responsible for funding all necessary assessments to identify existing site conditions and their associated impact costs. Refer to AFI 32 –

7020, The Environmental Restoration Program for guidance on funding and remediation of historic release of a hazardous substance.

AFI32-1021 31 OCTOBER 2014 13

2.3.11.1.1. Project Sited at the Location of a Known Hazardous

Substance. Costs for anticipated removal and disposal of contamination within the

MILCON project footprint shall be included as part of the MILCON project and identified on the DD Form 1391. Additionally, if contamination is unexpectedly encountered during project execution, costs for removing and disposing of contamination within the project footprint can be paid by the MILCON project.

2.3.11.1.2. DLA Fuels MILCON Projects. All POL facilities should be assumed to have had contaminant releases. DLA-Energy will fund the identification, assessment, and remediation cost for POL releases that occurred after 1 October 1992 at POL facilities. Additionally, DLA will fund site assessment during DLA funded Fuels

MILCON Project verification phase. Costs for anticipated removal and disposal of

POL contamination within the MILCON project footprint shall be identified in the

DD Form 1391, either as a project cost or as an AF funded O&M cost depending on the date of the POL release. If contamination is unexpectedly encountered during project execution, costs for removing and disposing of contamination within the project footprint shall be paid by the MILCON project.

2.3.12. Air Pollutants. (Attachment 2, Item 13). Installations shall obtain construction and operating permits for air pollution sources according to paragraph 2.3.8. (T-0).

Installations shall ensure facility designs incorporate appropriate pollution control technology and perform a conformity determination, if required, according to AFI 32-7040, Air Quality

Compliance and AFI 32-7061 as promulgated by 32 CFR Part 989. (T-0).

2.3.13. Water Pollutants. (Attachment 2, Item 14). Installations shall obtain construction and operating permits for water pollution sources according to paragraph 2.3.8. (T-0).

Installations shall also ensure facility designs incorporate appropriate pollution and erosion control technologies and plans are consistent with local, state, and national environmental requirements. (T-0).

2.3.14. Solid and Hazardous Wastes. (Attachment 2, Item 15). Installations shall apply for and obtain construction and operating permits for facilities to be used for managing solid and hazardous wastes to include treatment, storage and disposal facilities according to paragraph 2.3.8. (T-0). Reference AFI 32-7042, Waste Management for additional information on sustainable management of construction and demolition debris diversion in all phases of a project life cycle and to comply with EO 13514, Federal Leadership in

Environmental, Energy and Economic Performance; DoD Strategic Sustainability

Performance Plan; and Air Force solid waste diversion goals.

2.3.15. Underground Storage Tanks (UST). (Attachment 2, Item 16). Installations shall apply for and obtain construction and operating permits for installing, upgrading, or removing underground storage tanks according to paragraph 2.3.8, if required by federal, state, or local regulatory agencies. ANG requires NGB/A7 approval for UST installation.

(T-0).

2.3.16. Air Installation Compatible Use Zone (AICUZ). (Attachment 2, Item 17). When applicable, installations shall ensure siting and design of all facility projects conform to AFI

32-7063, Air Installation Compatible Use Zone Program and Land Use Compatibility tables in AFH 32-7084, AICUZ Program Manager’s Guide. (T-0).

14 AFI32-1021 31 OCTOBER 2014

2.3.17. Installation Development Plan (IDP). (Attachment 2, Item 18). Installations shall comply with their IDP, recommendations changes, when siting MILCON projects. (T-2).

The Installation Facilities Board will approve MILCON siting and ensure conformance with the installation strategic vision. (T-2). Further guidance on base comprehensive planning is contained in AFI 32-7062, Air Force Comprehensive Planning and AFPAM 32-1010, Land

Use Planning.

2.3.18. Airfield Clearance Criteria. (Attachment 2, Item 19). Installations shall ensure all facilities and structures conform to the airfield and airspace clearance criteria and airfield frangibility requirements in UFC 03-260-01, Airfield and Heliport Planning and Design. (T-

0). Prior to submitting projects, installations shall obtain a waiver from their

MAJCOM/DRU for any proposed project creating an obstruction or intrusion that will violate airfield and airspace criteria. (T-1). Installations shall coordinate on projects affecting terminal instrument procedures (TERPS) with the installation’s TERPS authority

(AFMAN 11-226, United States Standard for Terminal Instrument Procedures). (T-1).

2.3.19. Air Space Use. (Attachment 2, Item 20). Installations located within the US and its territories shall file FAA Form 7460-1, Notice of Proposed Construction or Alterations.

Coordinate projects affecting navigable air space (refer to Federal Aviation Regulations, Parts 77, Safe, efficient use, and Preservation of the Navigable Airspace) with the proper

Federal Aviation Administration (FAA) region through the regional Air Force representative.

(Refer to UFC 03-260-01, paragraph 1.2.2 and Attachment 6; and AFI 13-201, US Air Force

Airspace Management; for procedures). (T-0). Installations outside the US and its territories shall refer to the SOFA for specific procedures. (T-0).

2.3.20. Explosives Quantity/Distance Siting and Safety Clearance Criteria. (Attachment

2, Item 21). All projects to construct facilities used for storage, handling, testing, and maintenance of explosives or related items require explosive safety siting approval by the

Department of Defense Explosives Safety Board (DDESB) prior to award. (T-0). Other facilities located within an identified explosive quantity-distance zone may also require

DDESB site plan approval. Installations shall obtain DDESB siting approval before their

MAJCOM/DRU submits the project to HQ USAF. Refer to AFMAN 91-201, Explosive

Safety Standards. For projects at locations deemed to have a “medium-to-high” risk for

Munitions and Explosives of Concern, as approved by the DDESB, investigation and mitigation costs should be included in the DD Form 1391 under Supporting Costs. (T-1).

2.3.21. Air Base Survivability, Conventional Hardening, Chemical Protection Levels and Priorities, Camouflage, Concealment and Deception. (Attachment 2, Item 22).

When constructing, substantially altering, or renovating facilities, installations shall follow the air base survivability criteria contained in War Mobilization Plan 1 (WMP-1), Annexes J and L. Per AFI 10-401, Air Force Operations Planning and Execution, paragraph 2.14.1., the WMP volumes, access instructions, and restrictions are available electronically using either the GCCS or the A5XW SIPRNet homepage at:

http://c2www.af.pentagon.smil.mil/xoxw/. (T-1).

2.3.22. Allowance for the Physically Handicapped. (Attachment 2, Item 23). Installations shall ensure all new facilities are planned to be readily accessible to and usable by handicapped persons and comply with the Architectural Barriers Act (ABA) chapters 1 through 10. (T-0). Alterations to existing facilities shall be readily accessible to and usable http://c2www.af.pentagon.smil.mil/xoxw

AFI32-1021 31 OCTOBER 2014 15

by handicapped persons. (T-0). When accessibility cannot be achieved without causing a substantial impairment of significant historic features, forward a request for modification or waiver of access standards to AF/A7CF; AF/RE for Reserve facilities; or NGB/A7 for Air

National Guard facilities. For further guidance, refer to AFI 36-2707, Nondiscrimination on the Basis of Handicap in Programs and Activities Conducted by the Department of the Air

Force.

2.3.23. Real Estate Requirements. (Attachment 2, Item 24). Installations shall determine whether any proposed construction project requires acquisition of real estate interests and what such interests would cost. (T-1). Refer to AFI 32-9001, “Acquisition of Real Property” for additional information.

2.3.24. Antiterrorism (AT). (Attachment 2, Item 25). All military construction shall comply with DoD Antiterrorism Construction Standards, UFC 4-010-01, DoD Minimum

Anti-Terrorism Standards for Building, except when the local Commander sets more stringent standards to meet specific AT threats. (T-0). Installations shall coordinate antiterrorism/force protection facility requirements through the Installation Security Council and/or the Antiterrorism/Force Protection Officer. (T-1). Analysis conducted during the project planning and programming phases shall assess potential threats and vulnerabilities, review design opportunities and constraints, and integrate protective strategies into the facility and its surroundings. Refer to AFI 10-245, Antiterrorism (AT), UFC 4-020-01, Security Engineering Facility Planning Manual, other applicable publications, and annual

AF/A7CF MILCON program call letters for additional information. Document on the

Certificate of Compliance for Critical Planning Actions and DD Form 1391 when protective measures, provided under paragraph 2.3.20, also satisfy AT requirements. (T-1).

2.3.25. Excess Space. (Attachment 2, Item 26). Installation commanders shall certify existing excess space cannot be used to satisfy a new requirement in lieu of a MILCON project. (T-2).

2.3.26. Temporary Facilities Incident to Construction. (Attachment 2, Item 27).

Installation commanders shall certify temporary facilities required incident to MILCON shall be demolished or otherwise removed upon completion of the project. (T-2). Refer to

Chapter 6 of this AFI for more information.

2.3.27. Communications and Information Systems. (Attachment 2, Item 28). Installation commanders shall certify common user communications equipment, information systems, and other pre-wiring requirements were identified and their costs included in MILCON project documentation and base communications budgets as required by AFI 65-601, Vol 1.

. This includes all MILCON-funded communication items and communications items funded from other sources. A copy of the communication cost estimate provided by the base communications office shall be provided with the DD Form 1391.

2.3.28. Sustainable Design and Development. (Attachment 2, Item 29). Sustainable

Design and Development shall be incorporated into the project at the planning phase. Project requirements shall be guided by the most current UFCs and policy; specifically, UFC 1-200-

02, High Performance and Sustainable Building Requirements; UFC 3-210-10, Low Impact

Development; and the most current DoD and AF Sustainable Design and Development policy or Implementing Guidance, which includes third-party green building certification requirements. (T-0).

16 AFI32-1021 31 OCTOBER 2014

2.3.29. Seismic Considerations. (Attachment 2, Item 30). All projects shall be planned and designed to withstand seismic loading in accordance with UFC 3-310-04, Seismic Design for

Buildings. (T-0). Installations shall evaluate renovation projects with respect to seismic considerationsExisting facilities shall be evaluated for seismic deficiencies IAW UFC 1-200-

01 General Building Requirements, Chapter 34. Any seismic deficiencies shall be mitigated as a result of project completion.

2.3.30. Joint Use Certification. (Attachment 2, Item 31). Congressional Authorization and

Appropriation committees directed that all MILCON project requests include a certification that the project was evaluated for joint use or unilateral construction. The selected recommendation must be stated on the DD Form 1391. (T-0). Refer to annual AF/A7CF call letter for applicable Joint Use statement.

AFI32-1021 31 OCTOBER 2014 17

Chapter 3

MILITARY CONSTRUCTION PROGRAMMING

3.1. MILCON Programming. Programming is the process of developing and obtaining approval and funding for MILCON projects. Installations and FOAs identify, develop, and validate MILCON projects, and submit prioritized list of projects to their MAJCOM/FOA/DRU representative. (T-2). MAJCOM/FOA/DRUs compile, validate, and submit MILCON programs according to this AFI and instructions provided in annual HQ USAF MILCON program call letters. In addition; NGB/A7A and AFRC/A7P compile, validate and submit their MILCON programs according to AFI and instructions provided in annual HQ USAF MILCON program call letter. (T-2) AF/A7CF presents the Total Force AF MILCON program to the Air Force

Corporate Structure and advocates for MILCON resources through the Air Force Corporate

Structure and OSD.

3.2. MILCON Definition. Military Construction, as defined in 10 U.S.C. § 2801, Scope of

Chapter, Definitions and § 2802, Military Construction Projects includes any construction, development, conversion, or extension of any kind carried out with respect to a military installation. MILCON includes construction projects for all types of buildings, roads, airfield pavements, and utility systems. Military Construction project costing up to $750K is generally planned and programmed using other appropriations in accordance with AFI 32 – 1032. The Air

Force MILCON program objective is to provide quality facilities to support Air Force missions.

A MILCON project includes all construction work necessary to produce a complete and usable facility or a complete and usable improvement to an existing facility.

3.2.1. Project Authority. Authority to carry out a MILCON project includes authority for surveys and site preparation; acquisition, conversion, rehabilitation, or installation of facilities; acquisition and installation of equipment and appurtenances integral to the project;

acquisition and installation of supporting facilities (including utilities) and appurtenances incident to the project; and planning, supervision, administration, and overhead incident to the project.

3.2.2. Project Limitations. OMB Circular A-11, Part 2, Section 31.5 mandates fully funded

MILCON projects in the President’s Budget. Specifically, OMB Circular A-11 encourages phasing of large funded projects into complete and usable phases, with phases in multiple years, when feasible, in lieu of incrementing projects. Each phase must be complete and usable whether or not the following phases are constructed. For large funded (greater than

$200M) projects where phasing is not feasible, OMB approval is required to increment projects appropriation over multiple years. Full Authorization of incrementally funding projects is required in the first year of the budget cycle and appropriations will be requested over multiple years.

3.3. MILCON Project Development. Project development is one of the most important actions in MILCON programming and is documented using a DD Form 1391. The DD Form

1391, by itself, shall explain and justify the project to all levels of the Air Force, OSD, OMB, and Congress. Justification data shall clearly describe the impact on mission, people, productivity, life-cycle cost, etc., if the project is not accomplished. (T-1). BCEs will develop the initial planning documents to support each MILCON project in accordance with AFI 32-

18 AFI32-1021 31 OCTOBER 2014

1023. . A project folder for each MILCON project must be established at Installation level and all actions throughout the planning process must be recorded. In addition, each subsequent change identified during the planning charrette and design process, including changes to the project by OSD actions, must be filed. Changes to the DD Form 1391 from the initial planning stages to President’s Budget (PB) submission must be tracked and filed for record in the project folder at the installation.

3.3.1. Project Identification. With the exception of HQ USAF-directed projects, installation commanders determine which facility needs cannot be met with existing facilities. Installation commanders review, validate, and prioritize installation MILCON facility requirements. (T-2). When it is determined a facility shall be constructed or upgraded, the BCE will prepare and submit a DD Form 1391, with all other applicable documentation, and enter the project into the CE electronic programming database. (T-1).

Documentation (typically obtained from facility users/tenants) shall include a fully justified, indisputable case for accomplishing the project. (T-2). A project is considered initiated for programming once it is entered into the CE electronic programming database. New Mission

MILCON requirements will be identified and advocated through the respective Core

Function Lead (CFL) who serves as the principal integrator for their assigned Service Core

Function (SCF). For ANG projects, the BCE submits DD Forms 1391/1390 to NGB/A7A.

For AFRC projects BCE submit DD Forms 1391/1390 to HQ AFRC/DA7.

3.3.2. Validation. HQ USAF, MAJCOM/FOA/DRUs, and installations shall validate each

MILCON project by verifying the requirement that creates the need for the proposed project and confirming the proposed project is the most cost effective means of satisfying the requirement. All projects costing over $2 million, require an economic analysis in accordance with AFI 65-501. The MAJCOM/A7N or equivalent confirms by a signed letter that DD Form 1391 data is accurate and complete.

3.3.3. Project Cost Estimates. Cost estimates must be closely scrutinized to ensure they are in-line with the OSD Pricing Guide or fully justified with historical cost data. (T-1).

Installations and MAJCOM/FOA/DRUs should prepare cost estimates using parametric estimating tools. (T-2). The basis for parametric project cost estimates shall be completed planning documents, as defined by the USAF Project Managers Guide for Design and

Construction. (T-2). Use the Tri-Service Parametric Cost Engineering System (PACES) as a tool to develop parametric cost estimates; however, PACES cost estimates for primary facilities shall be consistent with unit prices published in the OSD Pricing guide. (T-1).

Major cost differences between PACES and the OSD Pricing Guide (e.g., clay tile roof versus standing seam metal roof) shall be fully justified in the project file. (T-2). Capture unique requirements of a project as separate line items under Primary or Supporting Facility cost. (T-1). The cost of Sustainable Design not to exceed 2% should be identified under

Primary Facilities. (T-1). Project costs shall include contingency (typically 5%) and

Supervision, Inspection, and Overhead (SIOH). (T-1). SIOH costs vary by location and are listed in Table 3.1. Coordinate with AFCEC to confirm the project design method, Design

Build vs. Traditional. For Design Build projects, a 4% design cost should be included on the

DD Form 1391. (T-1).

AFI32-1021 31 OCTOBER 2014 19

Table 3.1. Supervision, Inspection, and Overhead (SIOH) Percentage by Location.

Line Location Percentage

1 Continental US 5.7%

2 Alaska/Hawaii 6.5%

3 Guam 6.2%

4 United Kingdom 2.5%

5 Afghanistan/Iraq 7.7%

6 All Other Locations Outside the US 6.5%

3.3.3.1. Utility Connections. MILCON projects must capture the cost to connect to existing installation utility infrastructure to provide a complete and usable facility. (T-1).

If existing utilities do not have enough capacity to carry the new loads generated by the project, include the cost to provide this capacity increase under Supporting Facilities.

Major base-wide capacity increases will be programmed as a separate project.

3.3.3.1.1. Privatized Utility Connections. This work should be a separate line item in Block 9 (Supporting Facilities), Cost Estimates, titled “Privatized Utility

Connection Fee” and described in detail in Block 10, Description of Proposed

Construction. The cost estimate must be shown as a lump sum requirement for each privatized utility connection and must not include quantities of materials or components. (T-1). Utility systems include (but are not limited to) piping, lift stations, transformers, valves, lines, conduit, overhead electrical poles, electrical vaults, water wells, water hydrants, sewer manholes, primary power electrical generators, waste water treatment and collection plants, etc.

3.3.4. Design Schedules. AFCEC shall document design and construction schedules in

Block 12 of the DD Form 1391 for each MILCON project. (T-1). The schedule shall show the design will be complete in time to award the construction in the fiscal year that funding is requested. (T-2). . Coordinate with AF/A7CF the project design schedule.

3.3.5. MAJCOM/FOA/DRU MILCON Program Submittals. MAJCOM/DRUs shall prioritize validated projects and submit their commander or CFL-approved program in accordance with the annual MILCON program call letter issued by AF/A7CF .. Submittals should indicate which projects (if any) support specified Major Defense Acquisition

Programs (MDAPS). SAF/AA shall prioritize validated projects and submit the HAF-represented FOA program to AF/A7CF. AFRC and ANG shall submit projects to their respective Joint Service Reserve Component Facility Board in accordance with instructions found in AFI 32-1012. . NGB/A7A and AF/RE shall submit their prioritized validated program to HQ AF/A7CF for total force consolidation and Air Force Corporate Structure review.

3.4. MILCON Program Development. AF/A7CF, in conjunction with other HQ USAF functional offices, will review each MILCON project. In developing the MILCON program, AF/A7CF consolidates projects from SAF/AA (representing FOAs), the MAJCOM/DRUs, 20 AFI32-1021 31 OCTOBER 2014

ANG, AFR, and Corporate Adjustments, and presents the proposed program to the Air Force

Corporate Structure for approval.

3.4.1. Corporate Adjustments. Corporate Adjustments are projects approved and placed in the MILCON program by Chief of Staff of the Air Force (CSAF) or the Secretary of the Air

Force (SECAF) due to their overriding importance to the Air Force. These projects are so necessary that they are considered must-pay bills and do not compete with other

MAJCOM/FOA/DRU requirements.

3.5. MILCON and Program Objective Memorandum Schedules. The Air Force submits a

MILCON budget annually to OSD in the September time called BES. OSD submits the

MILCON program to Congress thru OMB as part of the President's Budget (PB). Additionally, each year, a five-year MILCON program or Future Years Defense Program (FYDP) is developed. The FYDP outlines the MILCON projects proposed for the next five years.

Scheduling of these submittals is subject to change and is provided annually by the OSD

Comptroller.

3.5.1. Office of the Secretary of Defense Budget Review. The Air Force submits the

MILCON budget to OSD by facility category (such as operations and training facilities, maintenance and production facilities, research and development facilities, etc.). OSD reviews every project submitted and issues Resource Management Decisions (RMDs) that transmit their proposed decision on every project (approve, disapprove, revise, or defer to a future year). OSD provides reasons for their decisions. If the Air Force is not satisfied with these decisions and a strong case can be made to rebut the proposed decision, a reclama is developed and submitted by HAF.