Standard_Floor_Plan_Design_Testing_(003).pdf

Standard Floor Plan Design Testing – Statement of Objectives

Standard Floor Plan Design Testing Statement of Objectives

Requirement Type FEMA understands that there are different approaches to meeting its requirements. In order to ensure that FEMA gets the most appropriate solution to this requirement the agency will allow the contractor to determine the best approach to meeting FEMA’s requirements. SOOs require that the contractor propose their approach to meeting the agency’s requirements by offering a proposal to develop a

Performance Work Statement (PWS) identifying how the contractor shall meet the government’s requirements through the contractor’s approach to the work. It also allows the contractor to propose tasks that the contractor deems relevant to performing the work. Integral to the PWS is a work schedule, list of deliverables; and method to measure the contractor’s performance in meeting the government’s requirements. As part of this SOO, the contractor is responsible for all of these elements.

Background FEMA uses homes manufactured under 24 CRF 3280, the Manufactured Home Construction and Safety

Standards (the Standards) to house survivors after disasters and other activities permitted under the

Economy Act. In the spring of 2015, FEMA conducted an inventory of Manufactured Housing Units

(MHU) in the agency’s inventory and discovered that the agency had more than 80 different floor plans.

The large number of floor plans causes issues for the agency.

The agency has four (4) basic MHU types which are based on the number of bedrooms:

3 bedroom, 1¾ baths with dimensions of 60 feet by 14 feet;

2 bedroom, 1 bath with dimensions left up to the manufacturer;

1 bedroom, 1 bath with dimensions left up to the manufacturer; and, 1 bedroom, 1 bath “Express” with dimensions of 8 ½ feet by 48 feet.

For each of the basic MHU types, FEMA procures MHUs in two variants, one of which is specifically purchased for people with access and functional needs providing accessibility. Accessible MHUs are designed to meet the Uniform Federal Accessibility Standards (UFAS). All FEMA MHUs have some accessibility accommodations but do not fully meet UFAS requirements. Non-UFAS MHUs are called enhanced accessibility.

In addition to the bedroom variations and the UFAS/enhanced variations, FEMA provides MHUs to all areas within the contiguous United States. Historically, in order to provide for the variations in weather conditions, FEMA has procured what the agency calls northern and southern MHUs. FEMA northern

MHUs meet the thermal requirements in the Standards for in subpart F –Thermal Protection Uo value zone 3. FEMA southern MHUs meet the thermal requirements in the Standards for in subpart F –

Thermal Protection Uo value zone 2. In an attempt to eventually reduce the number of MHU types in the agency’s inventory, in 2014 FEMA requested that MHU production contractors offer what FEMA has termed “CONUS” MHUs. The intent of a FEMA CONUS MHU is to have an MHU that can be deployed to any location within the contiguous United States.

While some of FEMA’s decisions have led to an increase in the total number of MHU types, the biggest contributing factor is that FEMA allows each MHU manufacturer to use their own company’s floor plan.

Multiple MHU contractors per contract as well as a number of generations of contracts (2009, 2012 and

2014) have led to a wide variety of floor plans.

The variety of floor plans effects operations and how disaster survivors perceive the differences between MHUs. Operational effects include variation in installation requirements, difficulty in standardizing FEMA group site (purpose built manufactured home parks for disaster survivors) design with the location of utility connections and different performance of HVAC systems. From the disaster survivor’s perspective, occupants have expressed concern regarding anything from the kitchen layout to bedroom size when compared to the MHU that their neighbor received.

In late September 2015 FEMA competitively solicited and awarded a contract for Standard Floorplan

Design HSFE80-15-R-0013 (available at https://www.fbo.gov/index?s=opportunity&mode=form&id=ae6b28ca95b517ff61ca873f4145561b&tab

=core&_cview=0). As the standard floor plan project has continued FEMA and the contractor have identified a number of issues that need further investigation and documentation to provide the agency with full design documentation to solicit future MHUs.

Contract Goal The goal of this contract is to provide the research necessary to support the development of the standardized floor plans and utility connection layouts for each of the four basic MHU types. This contract will support the validation of the concept of CONUS MHUs

Additional goals include ensuring that the layout is easy to build, allowing all potential manufactured home producers equal opportunity to propose and win future MHU production contracts; examining issues related to HVAC, energy usage and energy efficiency ; MHU durability for storage and transportation; MHU functionality; and, equipping all MHUs with residential fire sprinkler systems.

There are additional requirements defined in the Standards and FEMA’s most recent solicitation for

MHU production solicited in 2014 with an award made in late September 2014.

FEMA is not looking for this contract to produce specification such as those which would be called "MIL-

STD" or "MIL-SPEC." According to the Government Accountability Office (GAO), military specifications

"describe the physical and/or operational characteristics of a product", while military standards "detail the processes and materials to be used to make the product." The GAO acknowledges, however, that the terms are often used interchangeably. FEMA is looking for requirements for future MHU procurements.

The contractor will be responsible for the administration and project management as well as the following areas of research which will include:

A. Bulk Water Testing

B. Architectural Design and HVAC Assessment

C. Process Engineering and Management https://www.fbo.gov/index?s=opportunity&mode=form&id=ae6b28ca95b517ff61ca873f4145561b&tab=core&_cview=0 https://www.fbo.gov/index?s=opportunity&mode=form&id=ae6b28ca95b517ff61ca873f4145561b&tab=core&_cview=0

D. Foundation System Design and Assessment

E. Moisture and Thermal Performance Testing of CONUS Assemblies

High Level Contract Goal Details All work with be conducted in conjunction with the design contractor. High Level Contract Goals are detailed below.

Administration and project management Provide administrative support, technical oversight and task integration for the FEMA MHU research program. The effort will include: regular FEMA staff briefings and general liaison; soliciting input of industry including forming and convening a subject matter experts (SME) panel; coordinating participation by and contracting with all consultants and other subcontractors; coordinating with other

FEMA contractors (e.g., national laboratories); and overseeing, facilitating and otherwise completing project deliverables including all reports and task products.

Contractors Responsibilities

General support contractor (Prime)

Conduct all administrative and support tasks

Form and convene SME and expert panels

Serve as the conduit for all project communication and outreach

Brief FEMA staff and carry out staff directives

Oversee and facilitate all project contractors (including national laboratories) and subcontractors

Provide all project reporting and documentation, including maintaining a project website

A. Bulk Water Testing To address bulk-water intrusion issues experienced by FEMA’s MHUs in storage and service, this task will characterize the construction practices that are resulting in the current problems, identify alternative practices that are likely to resolve the water penetration problems and evaluate the relative efficacy of these assemblies through controlled testing. Assessment of window and door products and assemblies will be performed using standardized bulk-water resistance tests (such as, ASTM E1105/AAMA 205). The results of the tests will inform the specification of window and doors in future FEMA MHU construction.

Responsibilities

Conduct all administrative and support tasks

Characterize the problem and describe the underlying construction and design issues

Oversee conduct of tests

Facilitate participation by topic experts

Develop solutions for testing with subject experts

Report on findings and provide design recommendations

Responsibilities

Provide input on the test methods, monitor tests, suggest products and procedures that mitigate bulk water susceptibility

Construct test sections per Test Plan

B. Architectural Design and HVAC Assessment Using four prototype MHUs (two each of Express and 3-Bedroom units) built to the preliminary standard floor plans and outfitted with all furnishings, an assessment will be conducted of various aspects related to efficient utilization of interior space, accessibility (UFAS), serviceability of key systems (mechanical, electrical, sprinkler, hot water, etc.) and performance of the space conditioning and ventilation systems.

The assessment will consist of five parts: (1) a visual inspection of the spaces and furnishings (furniture, shelving, cabinets, fixtures, etc.) verifying that the design meets UFAS standards and the layout is compact and efficient; (2) verification that key systems (hot water heater and TPS) are secure and easily serviceable; (3) an operational assessment verifying that the space conditioning system (anticipated to be a factory installed, single head, mini-split heat pump) operates properly and the design minimizes overall energy use; (4) operational assessment of the sprinkler system; and, (5) the ventilation system meets the requirements of the HUD standards and is cost effective, considering both first and operating costs. For the space conditioning and ventilation system, it is anticipated that multiple equipment configurations will be evaluated in severe heating/high humidity and cold conditions with the final design optimized for a CONUS unit capable of placement everywhere in the nation. One unit of each type will be placed in two representative climates (hot/humid and cold) for these long term tests.

The assessments and related research is likely to reveal other attributes of the MHUs that require follow on engineering analysis and testing. Provision is made in the proposed budget for other investigations to be detailed and approved by FEMA at a later date.

Responsibilities

Conduct all administrative and support tasks

Oversee, advise and document construction of test modules

Perform all assessments

Coordinate the input of experts

Report findings and make recommendations for design changes based on findings

Provide input on test methods, observe tests, review results and reports. Expert input is anticipated in the areas of sprinkler design and operation and HVAC design

Construct four (4) MHUs, two each of Express and three bedroom design

Supplemental testing to be defined (e.g., shear wall design and testing, etc.)

C. Foundation System Design and Assessment The use of standard MHU floor plans presents the opportunity to similarly standardize the home set up process, including the design and installation of the foundation system. A standard design and installation protocol provides the same type of advantages as the standard floor planning effort, namely:

consistent quality of construction, use of well vetted and best practice solutions, design optimization and value engineered solutions, opportunity for bulk procurements of materials and components, use of solutions best matched to the designs, ability to provide precise guidance to installers minimizing errors and maximizing quality, among other advantages.

While foundation designs are location specific, it is practical and feasible to develop standard designs responsive to a range of soil types and frost depths. However, separate designs will likely be required for different wind zones and areas prone to seismic events. As many as four generic designs may be required (three wind zones, one seismic) and as few as two, assuming one design can suffice for all wind zones. Since the foundation selection is a function of location, having separate foundation designs by location does not contradict the goal of creating a CONUS solution. The foundation designs will also address special and extraordinary attributes of the MHU, such as the concentrated loads associated with the TPS.

The product of this task will be a foundation design drawings and specifications with detailed installation instructions. Two of the prototype homes (an Express and three bedroom unit) built as part of other tasks will be placed over the foundation as a way to evaluate and refine the design. The results of this work will be a stand-alone set of designs and installation specifications and will be included in the standard installation guide developed as part of Task E, Process Engineering and Integrated

Documentation.

Responsibilities

Conduct all administrative and support tasks

Document designs for all four MHU types.

Procure services of a foundation engineer to design and stamp foundation designs.

Identify and secure location for installation of homes.

Contract with installation contractor. Document and assess installation process

Report findings and make recommendations for design changes based on findings.

Design foundations for all wind zones, seismic conditions and all MHU types.

Review and approve foundation design. Stamp drawings.

Based on the designs for non-seismic and seismic conditions, install two homes (one for each condition) at a selected site including all components and labor.

D. Process Engineering and Integrated Documentation The goal of this task is to streamline the entire home delivery process from procurement through occupancy (heads-in-beds) and home recycling/reuse, minimizing both the total cycle time required to get MHUs into service and the resources (i.e., costs) required by the entire process while assuring a high level of construction quality, durability and overall MHU performance. The entire process will be mapped (using Value Stream Mapping) documenting each step, including the time and resources required, and assessed with regard to extent to which each step provides value and contributes to meeting FEMA’s objectives. Specific challenges (i.e., waste) be identified and options developed to address waste in all forms (for example, component parts with long lead times may need to be inventoried to assure timely availability for manufacturing). Alternative approaches will be proposed that optimize (minimize) the total resources and lead to improvement in the overall home delivery experience. Tools and resources will be developed at strategic points in the process that lead to improved outcomes. For example, to improve home installation, a standard installation guide will be developed for use by FEMA installers with content based on the best practices developed as part of Task

D, Foundations Design. Other tools appropriate to streamlining other steps, such as checklists, testing procedures (e.g., blower door) and detailed specifications will be developed.

This task will have two principal deliverables: a report summarizing the approach, analyses, findings, conclusions and recommendations for changes in the overall process that achieve the above stated goals; and a suite of tools and forms (e.g., checklists) that FEMA and its contractors can use to document parts of the process and verify quality and performance compliance at every stage in the home delivery process.

Responsibilities

Conduct all administrative and support tasks

Develop tools that streamline the home acquisition, delivery, completion process and assure a high level of quality at each step.

Create all project reports and documentation of findings.

Develop a value stream map and preliminary strategy for documenting FEMA’s MHU acquisition process.

Recommend changes that would improve/reinvent the process of MHU procurement through use and recycling.

E. Moisture and Thermal Performance Testing of CONUS Assemblies In a joint effort between private contractors and national laboratories, this task will identify candidate envelope components, model their hygrothermal and thermal performance, and field test viable options for their durability under CONUS conditions. Field tests will consist of alternative construction assemblies positioned side-by-side in the form of a test module to be placed in various climatic design conditions. Top-performing combinations of assemblies will be considered for final envelope specifications, and a final recommendation will be made based on hygrothermal performance, manufacturability, and cost.

Please note that the Department of Energy, Oak Ridge National Laboratories (ORNL) will be providing support for this task. The portion of the task that ORNL is responsible for is outlined below.

Contractors Responsibilities

General support contractor

Conduct all administrative and support tasks

Conducted selected technical tasks, particularly development of the test design, selection of components to be tested, development of a Test Plan, bidding and selection of contractors and securing of a test site

Coordination of all contractors

All project documentation

Construct test modules with a total of 12 component types (mix of wall, roof and floor measures). Two sets of modules, one for each climate extreme

Provide secure test site, power and internet

ORNL, Buildings Thermal Envelope Systems & Materials Program

Conducted selected technical tasks, including simulation, data collection and analysis

Procure and install testing equipment (includes sensors)

Support reporting effort

PERIOD AND PLACE OF PERFORMANCE:

The period of performance is for 18 to 24 months after the contract is awarded. The place of performance will be at the contractor’s facility.

PERFORMANCE OBJECTIVES, GOALS AND OUTCOMES:

Overall Objectives:

Personnel - The contractor shall provide qualified personnel with the proper skill mix and experience, and the required number of personnel to accomplish the performance objectives.

Materials – The contractor shall provide all necessary supplies, spares, tools, and test equipment, consumables, hardware, software, automatic data processing equipment, documentation, and other applicable properties. (Unless directed by FEMA)

Facilities – No facilities are required in this solicitation.

Organizational processes - The contractor shall provide internal controls, management oversight, and supply support.

Contract Objectives:

The Government is seeking services to:

Oversee and manage the projects

Conduct or contract for the research

Provide the results of the research is such a fashion that it can be incorporated into the

Standard Floor Plans.

Contract Effort and Requirements FEMA does not anticipate that a contractor will work full time on these tasks. However, FEMA does anticipate that this effort will involve not just the contractor but will involve Subject Matter Experts

(SMEs) who are noted for their knowledge and practical experience in the manufactured home industry as defined by the National Manufactured Housing Construction and Safety Standards Act of

1974 and regulated by the U.S. Department of Housing and Urban Development (HUD) and codified in the Standards. The contractor shall not form a Federal Advisory Committee as defined in the

Federal Advisory Committee Act (FACA) Public Law PL 92–463, 6 October 1972. Any meeting held with the SMEs shall be for purposes of the contractor gathering information similar to the government conducting market research and shall not be for the purpose of advising the government.

All SMEs working as part of this contract shall be informed and reminded that they are not providing the government with suggestions or recommendations that will lead to the development of policy and government regulations.

The contractor and SMEs who work on this contract shall:

Have extensive experience in working with the manufactured home industry including in the design, production, operation or research areas;

Have significant experience in overseeing designs that are in compliance with the Standards;

Have developed requirements for manufactured homes that are in compliance with the

Standards;

The contractor shall:

Have significant experience in preparing material for publication;

Have experience and knowledge of the manufactured home industry so that they can bring together a group of subject matter experts to support the design effort;

Demonstrate how they are either not currently working for any manufacturers in the manufactured home industry or how they would be able to avoid personal and organizational conflicts of interest in assisting FEMA with this project;

Be willing to not participate in any capacity in FEMA’s next round of MHU procurement which will replace the contract awarded in September 2014;

Have experience working with government agencies regarding manufactured homes (e.g.

FEMA, Department of Housing and Urban Development; Department of Energy);

Can clearly demonstrate an understanding of the differences between FEMA’s use of manufactured homes and the commercial use of manufactured homes; and, Provide the government with a Performance Work Statement and Quality Assurance Plan that will meet the requirements of this SOO.

Glossary Statement of Work - The portion of a contract which establishes and defines all non-specification requirements for contractor's efforts either directly or with the use of specific cited documents.

Performance Work Statement - A statement of work for performance-based acquisitions that describes the required results in clear, specific and objective terms with measurable outcomes.

Statement of Objectives - A government-prepared document incorporated into the solicitation that states the overall performance objectives. It is used in solicitations when the Government intends to provide the maximum flexibility to each offeror to propose an innovative approach. That portion of a contract that establishes a broad description of the government’s required performance objectives.

Quality Assurance Plan – Describes the strategy and methods the contractor will deploy to ensure that the contract is being managed, developed and deployed in a sound, reasonable way and that the deliverables are of acceptable quality before they are delivered to the