asset management plan fy2008
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Asset Management Plan FY 2008
Asset Management Plan FY2008
Appendix A: Agricultural Research Service
Building Block Plan
Appendix A: Agricultural Research Service Building Block Plan i
Asset Management Plan FY 2008
Revision Information Version Number Date Description of Revisions
1 08/11/2005 InsertionofBBPCommentsfrom50%Draft2 08/24/2005 PerformanceMeasuresupdate3 08/25/2005 100%Submission4 09/14/2005 ARSBBPFinalSubmission5 09/30/2006 FY2006Update6 3/16/2007 FY2007Update7 3/7/2008 FY2008Update
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Table of Contents Section1 Introduction.......................................................................................................................... 1
1.1 ARSOrganization..................................................................................................................... 4 1.1.1 Administrator ......................................................................................................................... 4 1.1.2 AreaDirectors(AD);Director,NAL ..................................................................................... 5 1.1.3 NationalProgramStaff(NPS) ............................................................................................... 5 1.1.4 BudgetandProgramManagementStaff(BPMS).................................................................. 5 1.1.5 AdministrativeandFinancialManagement(AFM) .............................................................. 6
1.2 RealPropertyOrganization .................................................................................................... 6 1.2.1 FacilitiesDivision(FD) .......................................................................................................... 6 1.2.2 FacilitiesContractsBranch(FCB).......................................................................................... 7 1.2.3 FacilitiesEngineeringBranch(FEB) ...................................................................................... 7 1.2.4 AmesModernizationBranch(AMB) ..................................................................................... 7 1.2.5 Safety,Health,andEnvironmentalManagementBranch(SHEMB) .................................... 7 1.2.6 RealPropertyManagementBranch(RPMB)......................................................................... 8
1.3 SixAreasofFocus..................................................................................................................... 8 1.3.1 RealPropertyManagementOrganization.............................................................................. 8 1.3.2 RealPropertyPlanningandBudgetingActivities. ................................................................ 8 1.3.3 UtilizationofInventoryDatainDecisionMaking. ............................................................... 9 1.3.4 PerformanceMeasuresandContinuousMonitoring. ............................................................ 9 1.3.5 AssetInspectionandConditionIndex(CI). ........................................................................... 9 1.3.6 DivestmentofUnneededAssets. ............................................................................................ 9
Section2 SupportofAgencyMissionsandStrategicGoals ...................................................... 10
2.1 AgencyMission....................................................................................................................... 10 2.1.1 RealPropertyOrganizationMission.................................................................................... 11
2.2 HumanCapitalandOrganizationInfrastructure .............................................................. 12 2.2.1 RealPropertyHumanCapitalandOrganizationInfrastructure......................................... 13 2.2.2 TrainingforRealPropertyHumanCapital ......................................................................... 14
2.3 RealPropertyLeaseAuthorities........................................................................................... 15
2.4 OwnersObjectives ................................................................................................................. 16
2.5 AppropriationsandAuthorizations .................................................................................... 17 2.5.1 FundingSources ................................................................................................................... 18 2.5.2 ARSAppropriationsAct....................................................................................................... 19 2.5.3 ARSConstructionAuthorizations ....................................................................................... 20
2.6 ToBeDecisionMakingProcess........................................................................................ 24 2.6.1 RealPropertyAssetManagementReviewBoards................................................................ 24 2.6.2 ApprovalAuthorityandOversight ...................................................................................... 26 2.6.3 CapitalProjectandRepairPlan(CPRP).............................................................................. 26
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2.7 AssetManagementObjectives.............................................................................................. 27 2.7.1 RealPropertyManagementOrganization............................................................................ 27 2.7.2 RealPropertyPlanningandBudgetingActivities. .............................................................. 28 2.7.3 UtilizationofInventoryDatainDecisionMaking. ............................................................. 28 2.7.4 PerformanceMeasuresandContinuousMonitoring. .......................................................... 28 2.7.5 AssetInspectionandConditionIndex. ................................................................................. 28 2.7.6 DivestmentofExcessAssets. ................................................................................................ 28
2.8 AgencyMissionandStrategicGoalInitiatives................................................................... 28 2.8.1 FY20082009AdministrativeandFinancialManagement(AFM)StrategicPlans:.......... 28 2.8.2 AssetManagementExecutiveSteeringCommittee:............................................................. 29
Section3 PlanningandAcquisitionofRealProperty ................................................................. 30
3.1 ARSCapitalPlanningProcess .............................................................................................. 30
3.2 CapitalPlanforMajorConstructionandModernization................................................. 31
3.3 ProjectTeamforMajorConstructionandModernizationProjects................................. 33 3.3.1 ResearchProgramManager(RPM) ..................................................................................... 33 3.3.2 RealEstateWarrantOfficer(REWO).................................................................................. 34 3.3.3 ResearchProgramRepresentative(RPR) ............................................................................. 35 3.3.4 EngineeringProjectManager(EPM)................................................................................... 35 3.3.5 AreaOfficeEngineer(AOE)................................................................................................. 35 3.3.6 ContractingOfficer(CO)...................................................................................................... 36 3.3.7 ContractingOfficersRepresentative(COR) ....................................................................... 36 3.3.8 Safety,HealthandEnvironmentalManagementBranch(SHEMB) ................................... 36 3.3.9 AreaSafetyandHealthManager(ASHM).......................................................................... 37 3.3.10 LocationMonitor(LM) .................................................................................................... 37 3.3.11 Cooperator......................................................................................................................... 37 3.3.12 ArchitectEngineer(AE) ................................................................................................. 38 3.3.13 DesignReviewer(DR)...................................................................................................... 38 3.3.14 ConstructionInspectionContractor(CIC) ...................................................................... 38 3.3.15 ConstructionContractor(CC) ......................................................................................... 38
3.4 EconomicAnalysisforMajorProjects ................................................................................. 39 3.4.1 SelectiveRenovation ............................................................................................................. 40 3.4.2 GuttingandRebuilding........................................................................................................ 40 3.4.3 NewReplacementFacility .................................................................................................... 40
3.5 DeterminingBestModernizationApproach ...................................................................... 40 3.5.1 AnalysisandDecisionProcess ............................................................................................. 41
3.6 AcquisitionofMajorLeases .................................................................................................. 43 3.6.1 AcquisitionofLongTermLandLeases................................................................................. 44 3.6.2 AcquisitionofSpace .............................................................................................................. 44 3.6.3 LeaseScoring......................................................................................................................... 46
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3.7 LongtermLeasesofSitesforPermanentStructures......................................................... 46
3.8 ToBeCapitalPlanningProcess............................................................................................ 47
3.9 PlanningInitiatives................................................................................................................. 48 3.9.1 CapitalPlanning................................................................................................................... 48 3.9.2 ReviewBoards....................................................................................................................... 49
Section4 OperationsofRealProperty............................................................................................ 50
4.1 RealPropertyInventory ........................................................................................................ 50 4.1.1 5YearPhysicalRealPropertyInventory ............................................................................. 50 4.1.2 AnnualRealPropertyInventoryReview ............................................................................. 52
4.2 HistoricPreservationRequirements .................................................................................... 55
4.3 AssetDocumentation............................................................................................................. 55
4.4 PeriodicEvaluationofAssets ............................................................................................... 58
4.5 OperationsandMaintenancePlan....................................................................................... 59
4.6 PlanforBasicRepairandAlterationsNeeds...................................................................... 60
4.7 CapitalOperatingandResourceRequirements................................................................. 60
4.8 OperationsInitiatives............................................................................................................. 60 4.8.1 PerformanceMeasuresandAssessments:............................................................................. 60 4.8.2 Energy ................................................................................................................................... 61 4.8.3 EnhancedUseLeasing(EUL)Authority ............................................................................. 61
Section5 DisposalofUnneededRealProperty ............................................................................ 63
5.1 ToolstoSupportDecisionMaking....................................................................................... 63
5.2 DisposalProcess ..................................................................................................................... 63 5.2.1 TheAuthority........................................................................................................................ 63 5.2.2 TheDecisionDisposalProcess.............................................................................................. 64 5.2.3 DispositionProcessOverview ............................................................................................. 64 5.2.4 Outcome ................................................................................................................................ 66 5.2.5 DelegationofAuthoritytoARSRealEstateWarrantOfficer ............................................. 66
5.3 DisposalInitiatives ................................................................................................................. 70
Section6 ARSPerformanceMeasuresandContinuousMonitoring ....................................... 71
6.1 AcquisitionPerformanceMeasuresandContinuousMonitoring. ................................. 71 6.1.1 AgencySpecificNewAcquisitionStrategies ........................................................................ 72 6.1.2 GreeningARS....................................................................................................................... 73
6.2 OperationsPerformanceMeasuresandContinuousMonitoring ................................... 75 6.2.1 FRPCPerformanceMeasures ............................................................................................... 75 6.2.2 SpaceRequirementsandUtilizationRates........................................................................... 76
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6.2.3 AgencyWideToolsforContinousMonitoring .................................................................... 76
6.3 DisposalPerformanceMeasuresandContinuousMonitoring........................................ 78 6.3.1 FederalRealPropertyCouncilDisposalMeasures............................................................... 78 6.3.2 AgencySpecificMeasuresandUses ..................................................................................... 78
Section7 AcronymList ...................................................................................................................... 80
Section8 Attachments........................................................................................................................ 86
8.1 AgencyOrganizationalChart ............................................................................................... 86
8.2 AgencyRealPropertyCoreCompetencies......................................................................... 87
8.3 AgencyRealPropertyOrganizationalChart...................................................................... 88
8.4 DRAFTAgencyFY20082009StrategicPlan...................................................................... 88
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Section 1 Introduction This is the United States Department of Agriculture (USDA) Agricultural Research Service(ARS) Building Block Plan (BBP) supporting the USDA Asset Management Plan (AMP), asrequired byExecutiveOrder (E.O.) 13327, FederalReal PropertyAssetManagement.ThisplanisguidedbytheprinciplesoftheFederalRealPropertyCouncil(FRPC)establishedbyE.O.13327. The BBP documents the asis state of Asset Management within ARS, as well ascurrentinitiatives.ThisARSBBPisorganizedintoeightsectionsdescribedinTable1below.
SECTION CONTENTS
Section 1 An introduction and description of the approach, content of this plan, and focus areas for initiatives.
Section 2 ARS mission and its real property support in implementing its missions and strategic goals, its human capital and organizational structure, decision-making framework, owners objectives, appropriations and authorities, and to be areas for process initiatives.
Section 3 ARS acquisition planning for real property assets, development of the capital plan, identification of its prioritized acquisition list each fiscal year, measurement of the effectiveness of its acquisition results, key initiatives to improve financial management and acquisition performance, and to be areas for a 5-year Capital Planning and Repairs Plan.
Section 4 ARS operation of its real property assets, its inventory system, its Operations and Maintenance Plans, its Asset Business Plans (Facility Master Plans, etc.) and its periodic evaluation of assets.
Section 5 ARS disposal practices of unneeded real property assets, measures of the effectiveness of its redeployment actions and identified key initiatives to improve the pace of disposition as well as its ability to dispose of difficult, environmentally challenged properties. Lists of ARS recent disposals are provided as a frame of reference. Plans for disposals of assets in current and future years are attached.
Section 6 ARS performance measures and continuous monitoring.
Section 7 Acronym List
Section 8 This section contains documents that influence or better define ARS real property management, but are not policy. Examples are strategic plans, the most current 3-year rolling timeline, or mission statements and goals.
Table 1: Agricultural Research Service BBP Organization
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Background
ARSisUSDAsprincipalinhouseresearchagency.Itisoneofthefourcomponentagenciesofthe Research, Education, and Economics (REE) Mission Area. Congress first authorizedfederally supported agricultural research in the Organic Act of 1862, which established theUSDA.
InadditiontoARS,REEhasthreeotherAgencies:
CooperativeStateResearch,EducationandExtensionService(CSREES) EconomicResearchService(ERS) NationalAgriculturalStatisticsService(NASS)
InfulfillingtheREEMission,ARShasprimaryresponsibilityto:
Provideinitiativeandleadershipinagriculturalresearch Conduct research on broad regional and national agricultural and related
problems
ConductresearchinsupportofFederalactionandregulatoryagencies Provide technical expertise tomeetnational food, food safety, and environmental
emergencies
Serveasanagriculturalscienceresourcetotheexecutiveandlegislativebranches
ARS research activities are carried out at more than 105 domestic and 3 foreign researchlocations so that problems of regional, national, and international nature can be addressedunder themost favorableresearchenvironment.ManyARSactivitiesorprogramsare locatedon university campuses of landgrant colleges and State agricultural experiment stations toassurecooperationandinteractionwithStateanduniversityscientists.
Toaccomplishitsmission,theARSorganizationincludesapproximately:
1,000researchprojectswithin23nationalprograms 2,100scientists 6,000otheremployees 108totalresearchlocations $1.06billionfiscalyear2007budget
ARS research is organized into 23 National Programs. These programs serve to bringcoordination, communication, and empowerment to the more than 1200 research projects
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carriedoutbyARS.TheNationalProgramsfocusontherelevance,impact,andqualityofARSresearch.Thefourmajorcategoriesand23programsarelistedbelow.
Nutrition,FoodSafety/Quality
HumanNutrition FoodSafety(animalandplantproducts) QualityandUtilizationofAgriculturalProducts
AnimalProductionandProtection
FoodAnimalProduction AnimalHealth Veterinary,Medical,andUrbanEntomology Aquaculture
NaturalResourcesandSustainableAgriculturalSystems
WaterResourceManagement SoilResourceManagement AirQuality GlobalChange Rangeland,Pasture,andForages ManureandByproductUtilization IntegratedAgriculturalSystems WaterAvailabilityandWatershedManagement AgriculturalSystemCompetitivenessandSustainment BioenergyandEnergyAlternatives
CropProductionandProtection
PlantGeneticResources,GenomicsandGeneticImprovement PlantBiologicalandMolecularProcesses PlantDiseases CropProtectionandQuarantine
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CropProduction MethylBromideAlternatives
1.1 ARS Organization
Figure1:ARSOrganization
1.1.1 Administrator The ARS Administrator manages ARS. The ARS Administrator is responsible for all ARSactivities includingplanning, executing andbalancingprograms, anddeploying resources toachieveAgencyobjectives. TheARSAdministratorisresponsibleforformulatingARSpolicy,advising theDepartmentonpolicy relating tonationalagricultural researchmatters,and forcoordinatingARSplannedactivitieswithcooperatorsinthepublicandprivatesectorsaswellaswithotherFederalagencies thatareservedbyARS. TheAdministrator isalsoresponsibleforassessinggeneralprogramprogress,evaluatingbroadprogramareasforperformance,andforrepresentingARStotheUnderSecretary,REE,theSecretaryofAgriculture,andothersuchCabinetandsubCabinetlevelAdministratorswithwhomARSinteracts.
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Thegeneralperformanceof research ismanagedon anationalbasis throughAreaDirectors(AD)attheeightAreaOfficesandtheDirectorattheNationalAgriculturalLibrary(NAL).Inplanning,budgeting,andmanagingtheoverallARSprogram,theAdministratorisassistedbythe:
NationalProgramStaff(NPS) BudgetandProgramManagementStaff(BPMS) AdministrativeandFinancialManagement(AFM)
1.1.2 Area Directors (AD); Director, NAL AreaDirectorsareresponsibleforlaboratoryandfieldimplementationofARSprogramsintheirrespectiveAreas,whichareconsistentwiththeAdministratorspoliciesandARSStrategicPlan.TheADlinemanagementincludesthefollowingresponsibilitiesto:
Directandexecuteapprovedprograms
Recruit,employ,evaluate,andmakethebestutilizationofARSscientists inkeepingwithnationalprogramneedsandrequirements
ParticipatewithNPSinplanningandconductingprogramreviewsandinexecutingrecommendationsresultingfromthem
Approveannualreports,andplanaswellaspositionresourcemanagementplans ParticipatewithNPS,throughtheARSBudgetBoard,indevelopingtheARSbudget MaintaincoordinationwithStateexperimentstationdirectors,regionalcouncils,and
otherindividualsandgroupsthathaveaninterestinagriculture
1.1.3 National Program Staff (NPS) NPSistheAdministratorschieftechnicaladvisersforthenationalresearchprograms.NPShasdirect responsibility for leadingbudgetdevelopment,coordination, review,andevaluationofARS national programs to ensure proper interaction, balance, and distribution of researchefforts focused upon national andmajor regional issues. NPS establishes longrange goals,strategicandoperationalplans,andprogrampriorities.NPSalsoplansandconductsprogramreviews; coordinates, monitors, and evaluates national and regional programs; maintainscoordinationwithscientists,administrators,thepublicandprivatecooperatorsonresearchandbudgetneeds;andprovides liaison services forAgencyprogramsbetweenARSandFederal,State,private,andpublicinteractions.
1.1.4 Budget and Program Management Staff (BPMS) BPMS is responsible for theadministrationofARSbudgetaryactivitiesand fundingpolicies.BPMSprovidesfunctionalleadershipinallaspectsoftheAgencysannualbudgetsubmission,
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providing justification to the Secretary of Agriculture, Office of Management and Budget(OMB),and to theCongressionalAppropriationsCommittees.Thisresponsibility includes theefficientstewardshipofappropriatedandcontributedfundsutilizedatmorethan107locationsand 62work sites, includingmaintenanceof its laboratories,buildings and facilities that arelocated across the United States and abroad. BPMS is the recognized authority on budgetformulation,presentation,executionandimplementation.
1.1.5 Administrative and Financial Management (AFM) AFM assists the ARS Administrator in establishing policies for the overall planning andadministrationofvariousprograms.AFMconductskeyassignmentsforallofARSandservesasanextensionoftheOfficeofAdministratortomanyoutsidepartiesengagedinprogramsofmutualinteresttoARS.AFMconsistsofthefollowingDivisions:HumanResources;FinancialManagement; Acquisition and Property; Extramural Agreements; Outreach, Diversity, andEqualOpportunity;andFacilities.TwodivisionsthatworkrealpropertyissuesareAcquisitionandProperty,andFacilities.
AcquisitionandPropertyDivision
The Acquisition and Property Division provides supply and services contracting includingfacilitysupportcontracts,purchasingandpersonalpropertysupporttoARS.
FacilitiesDivision(FD)
FacilitiesDivisionisresponsibleforallassetmanagementissuesofrealproperty.TheFacilitiesDivision delivers support and technical guidance for theARSmajor building program andprovidesexpertiseinengineeringprojectmanagement,architectengineering(AE)/constructioncontractmanagement,realproperty,spacemanagement,andsafety,health,andenvironmentalmanagement. End products include the construction of new and renovated ARS researchfacilities,ARSland/buildingacquisitionanddisposal,spacelayoutandofficerelocations,andasafeworkingenvironment.FDisresponsibleforthemanagementofover3,000buildingsand1500 structures and 400,000 acres of land, and in FY 2007FDmanaged approximately $1.35Billioninplanning,design,andconstructionactivity.
1.2 Real Property Organization RealpropertypolicyandoperationsarehandledbyAFMStaffinFDasnotedbelow. Section8.2and8.3providesmoredetailsandanorganizationchart,Figure11.
1.2.1 Facilities Division (FD) FD provides a variety of buildingrelated services to the REE Mission Area. FD performsfacilityengineeringandcontractingfunctionsforARSresearchfacilitieslocatedthroughouttheU.S.andoverseas.FDimplementsthemajordesignandconstructionprogramforARSprojects,with each projects design cost typically exceeding $100,000 and construction exceeding$1,000,000.SmallerprojectsaretypicallyexecutedattheArealevelbytheAreaOfficeEngineer(AOE). FDconsistsofengineering,contracting, realproperty (includingspacemanagement),
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and safety,health, and environmental functional areas. Specific roles and responsibilitiesofeachFDBrancharedefinedbelow.TheFDorganizationalchartisinSection8.1,Figure10.
1.2.2 Facilities Contracts Branch (FCB) FCB provides nationwide operational contracting support for large design and constructionprojects.This support includes: planning,bidding, cost andprice analysis, contracts award,administration, and closeout actions for construction and AE requirements. FCB providescoordination, technical advice, and support to Agency Program Managers on policyformulation, monitoring of construction programs and authorities, budgetary requirements,reporting, and management accountability for Agencywide facilities and constructionprograms.
1.2.3 Facilities Engineering Branch (FEB) FEB provides nationwide operational technical support for major design and constructionprojectsfromdevelopmentoftheProgramofRequirementstobeneficialoccupancyofafacility.This includes policy formulation, project budget and schedule forecasting, design criteriadevelopment, and execution of facilities project planning, design, and construction. FEBprovides technical support and consultation to Headquarters and field organizationalmanagement and operating personnel in order to fulfill facility requirements. This Branchcoordinatesproject implementationwithAE firms,contractors,programofficials, andotherARSentities.Inaddition,FEBensuresthatFederalfacilitiesmeetsatisfactorystandardsviathemodernization program. FEB also provides leadership and oversight for the ARS EnergyManagementProgram.
1.2.4 Ames Modernization Branch (AMB) AMBprovides engineeringprojectmanagement and contracting support for facilitiesdesignand construction requirements related to the $461 million Ames Modernization effort.Engineering support includes project budget and schedule forecasting, design criteriadevelopment, and the execution of facilities project planning,design, and construction fromproject inception tocompletion.Contractingsupportactivities includeplanning,bidding,costandpriceanalysis,contractaward,administration,andcloseoutactionsforconstructionandAErequirements.
1.2.5 Safety, Health, and Environmental Management Branch (SHEMB) SHEMB is responsible forplanning, organizing,monitoring and evaluating the occupationalsafety,health, and environmentalmanagementprograms to ensure that they respond to themission and program needs of the REE Agencies, comply with Federal, State, and localstatutoryand regulatorymandates,guidelines,andstandards,andare implementedwith theintent tohelpreduce thepotential forhuman,economic,andenvironmental lossesassociatedwithinjury,illness,andpropertydamage.
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1.2.6 Real Property Management Branch (RPMB) RPMBisresponsiblefortheacquisition,utilization,anddisposaloffederallyownedandleasedreal property in the custody and control ofREE agencies. ARSowned real property assetsincludemorethan14,000,000squarefeetinmorethan3,000buildingsonapproximately400,000acresoflandat107locationsand62worksites.REEagenciesoccupyover700,000squarefeetofoffice/laboratoryspaceat35GeneralServicesAdministration(GSA)leasedsitesnationwide.RPMB has operational responsibility for all land and facility acquisition by purchase, lease,transfer,donation,andexchange,aswellasalldisposalactions.
It is thepolicy ofARS to efficiently and effectivelymanageARSoccupied space in order toachievethemostcustomerfriendlyfacilities,whileensuringeffectiveandefficientcoordinationofeffortandsharingofresourceswithnonfederalpartners.Inordertoaccomplishthis,ARSiscommitted to greater management control and accountability at all levels for real propertyassets.Whenplanningaspaceaction,firstconsiderationwillbegiventoARSownedfacilitiesand/or leased space under the control of USDA agencies in the area that meets programrequirements.Next considerationwillbegiven toother federallycontrolled space thatmeetsprogramrequirements.ItisARSpolicytohouseoperationsinfacilitiesthatfullycomplywithall applicable rules and regulations pertaining to accessibility for the disabled, and is to beimplementedwheneverenteringintoaneworexpandedGSAassignment,neworsupersedingARSlease,spacereductionaction,orotherspaceaction.
1.3 Six Areas of Focus EffectivemanagementofrealpropertyassetsisofimmenseimportancetoaDepartmentlikeUSDAwithsuchlargeanddiversifiedrealpropertyholdings.TheresearchanddraftingofthisBuildingBlockPlans (BBPs)has led to the identificationofsixareasof focus foraugmentingARSs real propertymanagement goals, policies, tools, and processes that are critical to thefutureofrealpropertymanagementwithintheAgency.Section2.7detailsspecificobjectivesinsupportofeachfocusarea.Thesesixcriticalfocusareasare:
1.3.1 Real Property Management Organization. ARS has and will continue to engage the stakeholders at the strategic and tactical levelsthroughout the Agency to allow for a responsive real property management organization.Through the strengthened leadershipof theOfficeof theDirector,FacilitiesDivisionand theinvolvementoftheAFM leadershipandADs,ARSwillfacilitateeffectivecommunicationandmanagementoversightofrealpropertyactivitiesandperformance.
1.3.2 Real Property Planning and Budgeting Activities. Effectiveplanningprocessesare the foundation foreffectiveassetmanagementand form thebasisforaccountabilityandjustifiablebudgetrequests.ARSisworkingtoimproveintegrationofbudgetandplanningproceduresspecificallyrelatedtorealproperty.
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1.3.3 Utilization of Inventory Data in Decision Making. OnceARShas fully implemented the system anddata collection requirements for theFRPCmandatory inventory data elements, the Agency will possess an even greater wealth ofinformation on its real property assets. To effectively leverage this information in decisionmaking,ARSwillcontinue toupdate theCorporatePropertyAutomated InformationSystem(CPAIS)toprovideaccurateinformationtosupportdecisionmakingbyUSDAassetmanagers.
1.3.4 Performance Measures and Continuous Monitoring. Performancemeasuredatasupports informeddecisionmakingregardingrealpropertyassets.ARS continues toupdate the FRPC FirstTierPerformanceMeasures for each asset andwillincludeanynewperformancemeasuresas theyare introduced.ARSwillutilizeperformancemeasuredatainassetdecisionsattheAgencylevelwithmonitoringandoversight.
1.3.5 Asset Inspection and Condition Index (CI). Routineasset inspectionandknowing theconditionofassets isakeycomponent toeffectiveplanning and budgeting for real property assets and mitigates health and safety risks. Inadditiontotheexistingrequirementforafiveyearphysicalinventory,ARShascontractedoutthe inspection process for facility condition, and todate approximately 40 percent of thebuilding inventory is complete. These inspectionsaredetailed forbuilding componentsandestimatedeferredmaintenance,which iskey in calculatingCI. The remaining inventoryhasbeenestimatedwithmodelsbuiltfromtheinspections.
1.3.6 Divestment of Unneeded Assets. Inaneraofshrinkingbudgets,itismoreimportantthanevertoensurethattheAgencyisonlyinvesting in and supporting assets that are necessary to supporting its mission. ARScontinuouslyreviewstheperformanceofitsassetstoidentifyopportunitiestorightsizetherealpropertyassetportfolio.
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Section 2 Support of Agency Missions and Strategic Goals Investment,operational,anddisposaldecisionsneed tobe integratedwithandsupportiveofcoremission activities to effectivelymanage and optimize realproperty assets. To facilitateintegratingrealpropertyassetmanagementdecisionswithAgencymissions,twoelementsareneededaclearunderstandingoftheAgencysmissionthatdrivestheallocationanduseofallavailable resources (human capital, physical capital, financial capital and technology/informationcapital)andaneffectivedecisionmakingframework.ThissectiondiscussesARSmission,humancapital,anddecisionmakingframework.
2.1 Agency Mission ThemissionofARS is todevelopnewknowledge and technologyneeded to solve technicalagriculturalproblems ofbroad scope andhighnationalpriority. Through its research,ARSaimstoensureadequateavailabilityofhighquality,safefoodandotheragriculturalproducts,tosustainaviableandcompetitive foodandagriculturaleconomy, toenhancequalityof lifeand economic opportunity for rural citizens and society as a whole, to maintain a qualityenvironmentandnaturalresourcebase,andtoprovideaccesstoagriculturalinformation
ARSworks toward solutionsbypursuing scientific solutions to agriculturalproblems.Oftenthisresearchisunlikelytohavethecommercialinterestnecessaryforprivateindustrytodotheresearch. Therefore, ARS scientists frequently collaborate with research partners fromuniversities,companies,otherorganizationsandothercountries.
ARSprovidesthescientificandinformationservicesneededtosupportmuchofUSDAsworkin addition to other Federal agencies such as the Department of State, the Department ofEnergy,theDepartmentofHealthandHumanServices,theNationalInstituteofHealth,Foodand Drug Administration, the Office of the U.S. Trade Representative, the Department ofHomeland Security, the Environmental Protection Agency (EPA), and some parts theDepartmentofDefense(DOD)andtheDepartmentoftheInterior(DOI).
E.O.13327,FederalRealPropertyAssetManagementestablishestheframeworkfor improveduseandmanagementofrealpropertyowned,leased,ormanagedbytheFederalGovernment.ItisthepolicyoftheUSDA,ARStopromotetheefficientandeconomicaluseoftheAgencysrealproperty assets and to assuremanagement accountability for implementingFederal realpropertymanagementreforms.
Based on this policy, ARS recognizes the importance of real property resources throughincreased management attention, the establishment of clear goals and objectives, improvedpolicies and levels of accountability, and other appropriate action.As the foundation of the
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Agencys realpropertyassetmanagementprogram, the following strategicobjectiveswillbeusedforrealpropertymanagementimprovement:
Objective1:Agencysholdingssupportagencymissionsandstrategicgoalsandobjectives.
Objective2:MaximizefacilityutilizationandcollocateAreaoperationswhenpossible.
Objective3:AccuratelyinventoryanddescriberealpropertyassetsusingCPAIS.
Objective4:Useperformancemeasuresaspartoftheassetmanagementdecisionprocess.
Objective 5: Employ lifecycle costbenefit analysis in the real property decision makingprocess.
Objective6:Provideappropriatelevelsofinvestment.
Objective7:Disposeofunneededassets.
Objective 8: Use appropriate public and commercial benchmarks and best practices toimproveassetmanagement.
Objective9:Advancecustomersatisfaction.
Objective10:Provideforsafe,secure,andhealthyworkplaces.
ARSoperationsandrealestateactivitiesaregovernedbytheARSStrategicPlan(FY2003FY2007), developed in accordance with the Government Performance and Results Actrequirements.InstructuringtheStrategicPlan,ARScarefullycrafteditsobjectives,performancemeasures(PM),andactionablestrategiestoaddressalloftheapplicablestatutoryprovisionsinthePurposesofAgriculturalResearch,Extension,andEducationasamendedbyPub.L.104127,TitleVIII,Sec.801,Apr.4,1996,110Stat.1156.TheFY2008FY2009AFMStrategic
2.1.1 Real Property Organization Mission TheARSmissionissupportedbytherealpropertymissionsinceland,facilitiesandservicesarefundamental components of ARS. ARS supports and researches a wide variety of plants,animals and environmental factors that coexist in the agricultural system, many requiringhighlyspecializedconditionsandfacilitiesinordertoproperlyconductexperiments.
ARSowned real property assets include over 14 million square feet in more than 3,000buildings on approximately 400,000 acres of land at 108 locations of which there are threeinternationallocationsandoneterritorylocation.REEagenciesoccupyover1.2millionsquarefeetoffederally leasedspacenationwide. IntheWashingtonMetropolitanAreaalone,RPMBmanagesover500,000squarefeetoffederallyownedandleasedofficespaceatsevenseparatelocations.Onsite staffprovides recommendations for spaceassignmentandutilization;officedesignandlayout;systemfurnitureacquisition;officerelocationcoordination;spacealteration,repair,andmaintenance;andphysicalsecurity.
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TheARSStrategicPlan (20032007)ihas twentythreeperformancegoals.Goal6 contains thefollowingManagementInitiativethatcapturestherelationshipbetweenARScoremissionandtherealpropertymission.
ProvideadequatefederalfacilitiesrequiredtosupporttheresearchmissionofARS.ARSresearch needs are the driving force behind the construction and renovation ofARSfacilities. To maintain and enhance ARS capability to meet the needs of Americanagricultureforboth foreignanddomesticconsumptionrequiresa largeanddiverseinventoryof laboratoriesandsupport facilities.MostARSresearch facilitieshavebeendesigned for a lifespan of approximately 30 years.Once the facility has reached thismilestone, the infrastructureelectrical,heating,andventilationsystemsisgenerallyinadequate to meet current safety standards and equipment demands of modernscientificprograms.Significantinvestmentisneededtoeitherreplaceormodernizethefacilitytomeettheneedsoftheresearch.
Thereareseveralspecificrealpropertygoals thatare integral to theARSAFMStrategicPlanincludingthefollowing.
AFMStrategicOutcome4:Stewardship (acquisition,maintenance,anddisposal)ofREERealPropertyassetseffectivelysupportsandenhancestheREEMissionArea.
Goal4.1:EnhancetheprotectionandwellbeingoftheworkforceandREEassets.
Goal4.2:DevelopandimplementaRealPropertyAssetManagementprogram.
Goal4.3:Exerciseproperstewardshipofenvironment,natural,andenergyresourcesasdefinedbyE.O.13148GreeningtheGovernmentthroughLeadershipinEnvironmentalManagement.
Goal4.4:REERealPropertyassetsaremodernizedandreplacedtomeetmissionrequirements.
Goal4.5:Integrateassetmanagementprinciplesintoagencydecisionmaking.
2.2 Human Capital and Organization Infrastructure TheARSfieldorganizationiscomprisedofeightAreasandtheNAL.TheHumanCapital(HC)Plan iscriticaltoensuringthattheREEworkforce iscapableofprovidingeffective leadershiponfood,agriculture,research,resourcesandrelated issues. ThepurposeoftheARSHCPlan(FY2003FY2007)iiistohelpmanagersmakesmartinvestmentsinthecurrentandfutureARSworkforce.Thisplanestablishesaframeworkofpoliciesandpracticesthatwillguideeffortsinmeetingworkforceneeds. It is thesinglesource forperformanceexpectations, time linesandmeasures. The ARS HC Plan Development Team was established in February 2003. TeammembersincludedhumanresourcesprofessionalsandonerepresentativefromeachoftheARSagencies.
ARSagencieshavebeenveryactiveinstrivingtohireandretainqualityemployees.Eachoftheagencieshasaprofessionalrecruitmentplanwhichbestservesitsneeds.ARStakesintoaccount
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theresultsofskillsgapanalysestohelpidentifyfuturerecruitmentneedsandthetypeofskillsetsneeded formissioncriticalaswellas for technical,administrative,andclericalpositions.Hiring benefits and programs, such as superior qualification appointments, recruitmentincentives, relocation bonuses, student loan repayments, career intern programs and otherinitiatives,havebeenusedtohelprecruitandretaintalent.ARSalsoplanstocontinuetopushfor changes in government hiring regulations to foster more streamlined hiring and jobclassificationprocesses.TheFarmSecurityandRuralInvestmentActof2002establishedwithinUSDA a special category for distinguished worldclass scientists called the Senior ScientificResearchService (SSRS). ThisprogrambenefitsARSandERS,allowingUSDAsSecretary torecruit,appointandpayworldclass research scientists. TheSSRS isaimedatboostingARScompetitiveabilitytoattractandretainhighcaliberresearchscientists.
2.2.1 Real Property Human Capital and Organization Infrastructure FD provides a variety ofAssetManagement services to theUSDAsREEMissionArea; seesection 8.1, 8.2, and 8.3 for more details and organizational charts, Figure 10 and 11. Theorganizationdeliversoperationalsupportand technicalguidanceservices in theareasof realpropertyacquisition,design,construction,operationanddisposaltohelpcreateefficient,safe,andeffectiveenvironments.
Agency traininganddevelopmentprograms strengthen realproperty core competenciesandraiseawarenessof the importanceofapplicable industry trendsandbestpractices. Trainingmaybeobtainedonlineorthroughtraditionalinstructionwithvarioustradeschools,colleges,associationsandvendors,suchasManagementConcepts,Inc.,BuildingOwnersandManagersAssociation,theUniversityofWisconsin,theAmericanInstituteofRealEstateAppraisersandtheInternationalRightofWayAssociation.Thesecourses/conferencesmustbeintheapprovedareasofspecializedtrainingtoperformcertaintasks,suchasappraisals,marketsurveys,leasemanagement and negotiations, constructionmanagement, building and facilitymanagementandhistoricpreservation.
RPMBisresponsibleforallfederallyownedandleasedrealpropertyinthecustodyandcontrolofARSagenciesonanationwidebasis. RPMBhasoperationalresponsibility forall landandfacilityacquisitionsbypurchase,lease,transfer,donation,andexchange,aswellasalldisposalactions.TheoversightresponsibilitiesofRPMBincludeinventorydatatrackingandreportingusing theCPAIS. RPMB is also responsible for issuing outgrants (i.e. easements, rightsofways,mineralleases,andrevocablepermits),utilizingrealpropertyassets,andcomplyingwithFederal,State,andlocallawsthatgovernthemanagementofFederallandandfacilities,suchasNationalEnvironmentalPolicyActof1969(NEPA),theNationalHistoricPreservationAct,theEndangeredSpeciesAct,andE.O.13327.
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RPMB Headquarters Realty Specialists typically administer the acquisition of real property,longterm leasing (ten years or greater), disposals/location closures, as well as assurecompliance with Federal programs and policies. At the Area Office level, real propertyresponsibilities include administering shortterm leases (e.g. under 10 years), easements,revocable permits, assignment and use of quarters, and CPAIS data entry and informationmanagement.
RPMB has onsite Space Management Specialists in the National Capital Region (NCR) toprovide recommendations for space assignment and utilization; office design and layout;system furniture acquisition; office relocation coordination; space alteration, repair, andmaintenance;andphysicalsecurity.
ARealEstateWarrantOfficer (REWO)hasbeenappointed insevenof theeightAreaOfficeswithresponsibilityforrealpropertymanagementfortheirrespectiveAreas.FiveoftheAreashaveRealtySpecialistsservingasREWOs. OneAreahasaSupervisoryProcurementAnalystwho serves as the REWO with a Realty Assistant providing support. In another Area, aSupervisoryProcurementAnalystservesastheREWO.TheBeltsvilleAreahasatotalofthreeRealtyPropertySpecialistpositionsandoneRealPropertyAssistantposition.OfthethreeRealPropertyOfficers(RPOs),twohaveREWOdelegation.
RealPropertypersonnelwithintheAreaandHeadquartersOfficespossessabroadbackgroundof skillsandabilities related to theirknowledgeof realestateacquisition, realestate finance,facilities design and construction, building and facilities operations and maintenance, anddispositions. Realty Specialists must be familiar with appraisal principles, theories andpractices,aswellas typesandconditionsofownership/leases. Theymusthave theability toanalyze and resolve problems in very complex or controversial real estate transactions. Inaddition,RPWOsmusthaveknowledgeoflaws,regulations,ExecutiveOrders,decisionsoftheGeneral Council of the Department, GSA, and the Comptroller General relative to theacquisition,exchange,utilization,management,anddisposalofrealpropertyassets.
2.2.2 Training for Real Property Human Capital AIndividualDevelopmentPlan(IDP)iiileadsARSpersonneldowntheroadtosuccesstomeettheir immediate and longterm goals. The IDP is a training and development tool to helporganizeplansto learnnewskills,acquireadditionalknowledgeorsharpencurrentexpertise.At aminimum, once a year, the employee andhis/her supervisormeet todiscussproposedgoalsandaccomplishmentsandtodevelopanIDP.Thismeetinggivesboththeopportunitytosetobjectivesandplanlearningexperiencesthatwillsupporttheemployeesdevelopment.
Agoalissomethingpertinenttotheemployeesworkorcareerthatisworthwhiletopursuetoimproveormaster some skill thatwillhelp theemployee in their current job,give them theability toperformanew responsibility in theirpresentposition,orprepare them fora future
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assignment.Thegoalistoberealistic,challengingandachievable.TheARSFDiscommittedtoprovidingongoingeducationtoitspersonnel.
2.3 Real Property Lease Authorities TheprocesstoacquireordisposeofrealpropertyisdelegatedtothefieldwiththeexceptionofLevel IIAuthority. Level IIAuthority typically requires personnelwith higherwarrants toexecute the transaction. REWOpersonnelwith awarrantdesignation leveldescribedbelowhavethefollowingauthorities:
LevelIAuthority:
Yeartoyearleasingwithanetannualrentallessthanorequalto$50,000 Tenyear firm term space leasing with a net annual rental less than or equal to
$50,000
Revocablepermitswitha fairmarketvalueor fairmarketrentalvalue less thanorequalto$50,000
Buildingdisposalwithafairmarketvaluelessthanorequalto$50,000.LevelIIAuthority:
Yeartoyearleasingwithanetannualrentallessthanorequalto$500,000 Tenyear firm term space leasing with a net annual rental less than or equal to
$500,000
Revocablepermitswitha fairmarketvalueor fairmarketrentalvalue less thanorequalto$50,000
EachREWOorRPOisresponsiblewithintheirrespectiveAreafor:
Obtaining, executing and administering the above real estate agreements andmakingthenecessarydeterminationsandfindingsinamannerwhichsafeguardstheoverallinterestsoftheU.S.
Obtaining all necessary approvals for these agreements and complying withapplicablelaws,regulations,andPoliciesandProcedures.
Assuringthatfundsforpaymentofrealestateobligationsareavailable. Exercisingcare,skillandjudgmentforREWOactions. Personallysigningallagreementsandassociatedmodificationsoramendments. Monitoringandreviewinganyperformancerequiredonthepartoflessors,grantees,
etc.
Initiating any appropriate action necessary to properly assure satisfactory lessorperformance.
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Table2highlightstheRealPropertyDelegationAuthorityfromGSA.ThetablerepresentswhohastheultimateresponsibilityandwhetherornottheDelegationcanberedelegated.
Reference Activity ARSDelegation
ERSDelegation
CSREESDelegation
NASSDelegation
ReDelegate?
2.RealProperty
a.PurchaseofLand Administrator n/a n/a n/a No
b.LongTermLeaseforLandand/orBuildings(10yeasorless)
RPMB,FD n/a n/a n/a No
c.ShortTermLeaseforLandand/orBuildings(10yearsorless)
RPMB,FD n/a n/a n/a Yes,REWO
d.BuildingDisposal(FairMarketValue(FMV)over$50,000)
GSA n/a n/a n/a No
e.BuildingDisposal(FMV)$50,000orless
RPMB,FD n/a n/a n/a Yes,upto$50,000redelegatedtoREWO
f.EasementsandRightsofWays
RPMB,FD n/a n/a n/a Yes,REWO
P&P245.1AnnualAppropriations(landpurchase)
P&P241.2
P&P244.0
g.RevocablePermits RPMB,FD n/a n/a n/a Yes,REWO
Table2:DelegationofAuthorityforRealPropertyChart
2.4 Owner's Objectives TheARSownershipobjective,withrespecttofederallyownedrealpropertyinthecustodyandcontrolofARS,istohelpguidetheAgencytowardsfulfillingitscoremissionofresearch.TheobjectivesarecapturedintheAFMStrategicOutcome4forrealpropertygoals:
ProvideandenhancetheprotectionandwellbeingoftheworkforceandARSassets. Exerciseproperstewardshipofrealpropertyassets. Exercise proper stewardship of environmental, natural resources, and energy
resources.
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A major part of this stewardship is inventory data tracking and reporting using CPAIS,enabling managers to access information on real property resources that are in use and/oravailabletofurtherARSmissiongoals.RPMBiscommittedtoprovidinghighqualityrealestatemanagement support services to its customers. RPMB Realty Specialists provide advice,guidanceandsupport,aswellasadministerrealestateactivitiesforARSnationwide.Activitiesincludeacquisitionbypurchaseor lease,anddisposalofrealproperty;developmentofARSwide policy and procedures for real property, and other management activities, such asinventorydatatrackinginCPAIS.
2.5 Appropriations and Authorizations For managing construction, major and minor repair/renovation, and maintenance of ARSfacilities, the Agency has three funding sources. The Buildings and Facilities (B&F)appropriationsarelineitemappropriationsmadebyCongresseachyearfortheconstructionofnewfacilitiesormajorrepairandrenovationofexistingfacilities.Inaddition,ARSreceivesanannualappropriation for theRepairandMaintenance (R&M)ofexisting facilities. The thirdsource is fromresearchprogram fundingand isused for theoperationandmaintenance,andconstructionoflimited,smallresearchfacilitiestosupporttheindividualprograms.TheAppropriationsActprovidesARSitsannualB&F,R&M,andprogramappropriationsandupdatesARSauthorizationswhennecessary.There is alsoHazardousWasteCleanup (HWC) funds used forResourceConservation andRecoveryAct(RCRA)(42UnitedStatesCode(U.S.C.)6901)andComprehensiveEnvironmentalResponse,Compensation,andLiabilityAct (CERCLA) (42U.S.C.9601)actions. TheAreassubmit RCRA and CERCLA projects, ARS determines the most critical HWC projects tosupport,andtheDepartmentprovidesARSaHWCbudgetfortheseprojectsafterreviewingallUSDAAgencyneeds. The R&M, program funds, and HWC funds are allocated via the ARS Annual ResourceManagement Plan (ARMP)/High Priority Requirements List (HPRL) process. To assurenationalleadershipanddirectionofARSresearch,theAgencyenhancesprogramaccountabilitythrough themanagementof such resources assets as salary lapse,minor construction, repairandmaintenanceandenergyretrofitfunds,fulltimeequivalency(FTE),etc.TheARMP/HPRLprocessisastructured,disciplinedapproachtoestablishtheframeworkforintegratedresourceplanning.ARMP/HPRLsubmissionsfromtheAreasareduethefirstquarterofthefiscalyear,thenboththeAdministratorandhisstaff,andsomeoftheAFMDivisions(includingFD)eachconduct reviews on the submissions. The reviews are typically completed during the firstquarterofthefiscalyear,andafterCongresshaspassedbudgetforUSDA,ARS.
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2.5.1 Funding Sources B&FFunding:These fundsareappropriatedbyCongress foruseonspecificprojects. Language in theARSrequestorintheappropriationwilllimittheuseofthefunding.Asanexample,ifARSrequestsfunding for construction, the appropriation in response to that request cannot be used fordesign.TheB&FfundingdoesnotexpireattheendofthefiscalyearandremainsavailablefortheprojectuntilobligatedorredirectedtoanotherprojectbyCongress.B&Ffundscannotbesupplementedfromanotherfundsource.Forexample,R&MfundscannotbemixedwithB&Ffundsorprogramfundstomakeupaprojectfundingshortfall.
R&MFunding:
R&M fundsare receivedbyARS inannualappropriations fromCongress. Theseareannualfunds which expire on September 30th of the appropriations year and, therefore, must beobligatedbycontractpriortothatdate. Theintentofthesefundsistokeepfixedassetsinanacceptableconditiontoprovideacceptableserviceandtoachievesitsexpectedlife;andincludesworkneededtomeet laws,regulations,codesandother legaldirectionas longastheoriginalintentorpurposeofthefixedassetisnotchanged.Generally,ARSreceivesabout$14millionannuallyunder thisappropriation. $7million isdistributed to theAreas through theARMPprocess for theAreas to execute smallermaintenance and repair efforts. The remaining $7million is retained byHeadquarters and distributed by theAdministrator for use on largerrenovation,modernization,projects.Ingeneral,theR&Mfundingcannotbeusedtoaddusablesquarefootagetoafacility. Insome instances, itcanbeusedforadditionalmechanicalspacewhich is required as a result of bringing heating, ventilation, and air conditioning (HVAC)systemsuptocurrentstandards.
Program(Base)Funding:These are funds appropriated to the research programs throughoutARS. The locations arerequired to set aside four percent (4%) of these funds annually for the sustainment of theirfacilities.Ifexcessprogramfundsareavailabletoaresearchunitasaresultofsalarylapseorothermeans,theprogramfundingcanbeusedtoconstructnewfacilitiesundertheUnlimitedSmallBuilding(USB),TenSmallBuilding(TSB),Headhouse/Greenhouse(HH/GH)authorities,andformiscellaneousnonbuildingtypeconstructioni.e.fencing,etc. Inaddition,Areasandlocationsuseprogramfundstopayforoperationandmaintenancecostsofrealpropertyassets.HWCFunding:ThesefundsmustbeusedforRCRAandCERCLAactions.Theserequirementsentailremoval,remedial,orpreremedialactivitiesconsistentwiththeintentofthefunds.ToqualifyforHWCfunding,aprojectmustrequireaminimumof$25,000.Examplesofrequirementswhichqualifyfor the funds are underground storage tank removals, site investigations, remedialinvestigation/feasibilitystudies,monitoringwell installationandsampling,soilsampling,andremoval actions. Examples of requirements that are not eligible for HWC funds includeenvironmental audits, facility permitting, asbestos removal, routine disposal of wastes, andpaymentoffinesandpenalties.
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Areas request HWC funding during the annual HWC budget request process. The processnormally takesplace inMarch/April. Inaddition to theDepartmentalbudget request,AreasmustutilizetheARMPprocessforrequestingHWCfunding.OnlyprojectsmeetingeligibilityrequirementsdefinedbyDepartmentalguidancewillbeconsideredforfunding.Approvalsarebasedon theavailabilityof funds,priorities in relation toothercompetingprojects,noticeofviolations fromStateorFederalagencies, consentagreementswithStateorFederalagencies,andstatutorydatesforcompliance. It is imperativethatfundsareobligated inthefiscalyeartheyarereceived.Fundingmustbeplannedandmanagedtopreventacarryoverintothenextfiscalyear.
2.5.2 ARS Appropriations Act Under 7U.S.C. 2250,USDA is authorized to construct, alter, and repair such buildings andotherpublicimprovementsasmaybenecessarytocarryoutitsauthorizedworkprovidedthatnobuildingorimprovementisconstructedoralteredinexcessoflimitationsprescribedintheapplicableappropriation.
Theappropriationstatutes,specifically41U.S.C.11,requirethatnocontractorpurchaseshallbemadeunlessitisunderanappropriationadequatetoitsfulfillment.Thismandatesthattheexpenditureofanappropriationwillresult inanendproduct (facility)whichcanbeused forthe intended purpose.Congress has been specific in its intent that any construction projectprovideforthecompletionofafullyfunctionalfacilitythatcanbeturnedovertoresearcherstobeginwork immediately.Roadsandmajorequipment items that formanessentialpartof thelaboratoryshouldbeincludedinthebudgetandconsideredanintegralpartofausablefacility.
Through the budget process,Congress passes an appropriation billwhich is enacted by thePresident. Appropriationsmaybe annual ornoyear.An annual appropriation isvalid andavailable for one fiscal year and must be obligated in the same fiscal year in which theappropriation ismade available.A noyear appropriation remains available for obligationandexpenditurefromthefiscalyearoftheappropriationuntilthespendingpurposehasbeenachieved.NoyearappropriationscannotbecommingledwithannualappropriationsorotherfundswithoutaspecificCongressionalauthorization.
The annual ARS appropriation provisions concerning construction authorizations andlimitationsmayvarywiththepassageofeachannualARSAppropriationAct.Accordingly,theapplicableappropriation languagemustbe checkedona casebycasebasisbeforeobligatinganyfunds.
TheannualARSAppropriationAct istypicallysimilartothefollowingparagraph.ThedollarlimitationscontainedinthisparagraphreflectFY2006levelsandmaychangeeachyear.
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Appropriationshereundershallbeavailablepursuant to7U.S.C.2250 forconstruction,alteration,andrepairofbuildingsandimprovements,butunlessotherwiseprovided,thecostofconstructinganyonebuildingshallnotexceed$375,000,exceptforheadhousesorgreenhouses,whichshallbelimitedto$1,200,000,andexceptfortensmallbuildingstobeconstructedorimprovedatacostnottoexceed$750,000,andthecostofalteringanyonebuilding during the fiscal year shall not exceed 10 percent of the current replacementvalueofthebuilding,or$375,000,whicheverisgreater
This language in theannualAppropriationsActconstitutesCongressionalauthority toobtainconstruction within these specified categories; but, Congress does not provide additionalfundingwiththeseconstructionauthorizations.
Currently,theannualAppropriationActspecifiesthatthelimitationsonalterationscontainedintheActdonotapplytomodernizationandreplacementoffacilitiesatBeltsville,Maryland.ThecurrentActalsoprovidesfundingfortheR&Mprogram.
ARS Construction Authorizationsiv 2.5.3 This section discusses the various ARS construction programs or construction projectsauthorized in the annual ARS appropriation, and the specific requirements for thoseprograms/projects. In order to align with the Departments 3Year Rolling Timeline, theprogramsaredividedintothreecategoriesCapitalImprovements,R&M,andPurchaseLand.
CapitalImprovementsCapitalimprovementsaretheconstruction,installation,orassemblyofanewfixedasset,orthesignificantalteration,expansion,orextensiononanexistingfixedassetthatis$25,000ormoreandaccommodatesachange inpurpose,oran increase incapacity,orextends theuseful life.The erection of a building, structure or facility, including the installation of equipment, sitepreparation, landscaping, associated roads, parking, environmental mitigation and utilities,whichprovidesspaceorcapacitynotpreviouslyavailable.Itincludesfreestandingstructures,additionalwingsorfloors,enclosedcourtyardsorentryways,andanyothermeanstoprovideusable program space that did not previously exist (excluding temporary facilities). It alsoincludescompletereplacementofanexistingassetwiththesamesize,capacityandfunctionastheprevious asset. Other examplesof capital improvements areworkon a spillway for thepurposeofincreasingthesizeofthereservoir,addingbikelanesonaroad/bridgeorwideningorpavingshouldersonaroad. Projects that fallunder thisauthorityareUSB,TSB,HH/GH,Ten Percent Alteration (TPA), Modernization, Miscellaneous Construction, and MajorConstruction.
ForUSB,TSB,HH/GH,andTPAAreaofficesmustobtainapproval fromheadquarters tousetheconstructionauthoritiesfornewsmallbuildingsoralterationstoexistingfacilitiesexpectedtoexceed$25,000.useoftheseauthoritiesmustbebasedonsoundprogramneed,andexistingfacilitiesshouldbethefirstoptioninvestigatedwhentheneedisvalidated.Onlywhenexisting
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facilities are inadequate to accommodate the program will construction authorities berequested. The details of using construction authorities is outlined inARS Bulletin 08200,FacilitiesConstructionAuthoritiesthatwaslastupdatedinDecember2007.
USBAuthority:Thisisaconstructionauthoritytodesignandconstructanunlimitednumberofsmall buildings at a costnot to exceed the authorized limitation identified in the applicableannualAppropriationActlanguage.Eachbuildingmustservetofurtherenhance,pursue,andconductimmediateresearchprogramneeds.
Example:Thisincludeschemicalstoragebuildings,animalshelters,andotherstoragebuildings.
Funding:Annualbase funding isused for thisconstructionprogram.TheAreamustprovidethe funds.TheADs reserve or locate appropriation increases. The funds are identified andapprovedduringtheARMP)/HPRLprocess.
The appropriation limitation for USB may change (increase or decrease) with each annualAppropriation Act. The funding limitation includes the combined costs of both design andconstruction.
TSBAuthority:This isaconstructionauthority todesignandconstructor improvenotmorethan TSB at an individual cost not to exceed the authorized limitation identified in theapplicable annual Appropriation Act language. Each building or addition to an existingbuildingmustservetofurtherenhance,pursue,andconductARSimmediateresearchprogramneeds.
Example:Thisincludeslargerscalechemicalorfeedstoragebuildingsoranimalspaces.
Funding:Annualbasefunding isusedforthisconstructionprogram. TheAreamustprovidethe funds foreachAgencyapprovedTSBslot.The fundsare identifiedandapprovedduringtheARMP/HPRLprocess.
The appropriation limitation for eachTSB slotmay change (increase ordecrease)with eachannualAppropriationAct.The funding limitation includes thecombinedcostsofbothdesignandconstruction.
HH/GH Authority: This is a construction authority to design and construct an unlimitednumberofheadhousesand/orgreenhousesata costnot toexceed theauthorized limitationidentifiedintheapplicableannualAppropriationActlanguage.
Example:Aheadhouse is abuilding constructed at the endof agreenhouse to support theresearchconductedinthegreenhouse.
Funding:Annualbasefundingisnormallyusedforthisconstructionprogram.TheAreamustprovidethefunds.ThefundsareidentifiedandapprovedduringtheARMP/HPRLprocess.
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Theappropriation limitation forHH/GHmaychange (increaseordecrease)witheachannualAppropriation Act. The funding limitation includes the combined costs of both design andconstruction.
TPAAuthority: This isaconstructionauthority todesignandconstructanalteration toanyoneARSbuildingatacostnot toexceed10percentof thebuilding replacementvalueor thedollar limitationspecified in theapplicableAnnualAppropriationact language,whichever islarger.
Example:Analteration isachangeor substitutionwithin the superficial limitsofanexistingstructure, including remodeling or renovation of existing space, and converting vacant orabandoned interiorbuildingspace tousablespace. Analterationdoesnotaddusablesquarefootagetoanexistingfacility.
Funding: Annualbasefunding isusedforthisconstructionprogram.TheAreamustprovidethefunds.ThefundsareidentifiedandapprovedduringtheARMP/HPRLprocess.
The appropriation limitation for TPA may change (increase or decrease) with each annualAppropriation Act. The funding limitation includes the combined costs of both design andconstruction.TheAreamustobtainapprovaloftheproposedprojectfromHeadquartersiftheprojectcostisexpectedtoexceed$25,000.
Modernization:ThisprogramisanamalgamationoftheTPAandR&Mconstructionprogramsintendedtoenhancedeterioratingfacilitiesorutilitysystemsonalargescale,prioritybasis(i.e.,million dollar packages). Facility modernization planning enables ARS to prioritize majorfacilityrenovationlocations.PriorityresearchlocationsareidentifiedbyNPSandapprovedbytheAdministrator. Theobjectiveoftheplan isnottoexpandorbuildnewARSfacilities;butinstead to correct, improve, or upgrade existing facilities to current standards on a prioritybasis.
BecausesuchprojectsmayinvolvetheuseofR&Mfunds,whicharenotsubjecttoastatutorylimitation,andTPAfunds,whicharesubjecttoastatutorylimitation,eachelementoftheworkmustbeclassifiedappropriately,andthecostsmustbechargedproperly,toensurethatthereisnoviolationofthestatutorylimitationundertheTPAauthorization.
Funding: A specific level of R&M (annual appropriations) funding is set aside for thisconstructionprogramintheannualAppropriationsActandisusedtofundtheR&Mportionofmodernizationprograms.TheTPAportionsofmodernizationprogramsarefundedwithbasefundsratherthanR&Mfunds.
Example: Large scalemodernization of an entirewing of a laboratory facility or large scalereplacementofapowerplant.
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MiscellaneousConstruction:Thisisaconstructioncategorytodesignandconstructnewnonbuildingtypefacilities.Thiscategoryisnotusedforreplacement,repairormaintenanceofnonbuildingtypefacilities.
Funding: Annualbasefunding isusedforthisconstructionprogram.TheAreamustprovidethefunds.ThefundsareidentifiedandapprovedduringtheARMP/HPRLprocess.
There isno cost limitation specified for this construction category,other than the amountoffundingavailable.
Obligationsaremadeusingbasefunds.
Example:Miscellaneousconstruction includesprojectswhichdonot fall intoanyof theotherconstruction authorization categories. Miscellaneous construction includes the building ofstructures such as roads, dams, bridges, wells, fences, feedlots, irrigation systems, andwindmills.
MajorConstruction:vThis isa constructionprogram for thedesignand constructionofnewmajor facilitiesor renovation (modernization)of existingmajor facilities. Thevalueof theseprojectsgenerallyexceeds$1million.
Since the costs of such projects usually exceed the limitations of the other constructionauthorizationsabove,eachmajorprojectmustbe funded fromanappropriation that ismadeavailablespecificallyforsuchpurposes.
Generally,theseappropriationsarespecifiedundertheBuildingsandFacilitiesheadingoftheannualAppropriationAct.
The specific annual Appropriation Act language will specify whether the appropriation(limitation)isforplanning,design,construction,oracombinationthereof.Allcostsincurredformajor projects are chargeable to this appropriation. These appropriations may not besupplemented (augmented) from other funding sources, unless specifically authorized byCongress.
R&MR&M is the act of keeping fixed assets in an acceptable condition. It includes preventativemaintenance, normal repairs, replacement of parts and structural components, and otheractivitiestopreserveafixedassetsothatitcontinuestoprovideacceptableserviceandachievesitsexpectedlife.Repairandmaintenanceexcludesactivitiesaimedatexpandingthecapacityofanassetorotherwiseupgrading it toserveneedsdifferent from,orsignificantlygreater thanthoseoriginally intended (From theFederalAccounting StandardsAdvisoryBoard #6 1998).Maintenanceincludesworkneededtomeetlaws,regulations,codesandotherlegaldirectionaslongas theoriginal intentorpurposeof the fixedasset isnot changed. Also includesworkperformed to bring an asset up to present environmental standards or correction of safetyproblems.
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Funding:Annualfundingisusuallyusedforthisprogram.TheR&MprogramisabudgetlineitemwhichissubmittedannuallytoCongressaspartoftheannualARSbudgetrequest.Thisisanationalprogrammanaged forARSbyAFMand implementedbyeachAreaandFD. TheAreasubmitsR&MprojectstoAFM,FMDandFDforfundingconsiderationviaARMP/HPRL.TheAreamayalsofundtheseprojects.Therearenolimitationsotherthanavailablefunding.
Examples:
HVAC/Electrical/PlumbingSystemReplacement RoofReplacement BuildingEnvelopeRepairand/orMaintenance SiteUtilitySystemReplacement/Repair/Maintenance FireProtectionInstallation/Replacement FumeHoodReplacement/CorrectionofAirFlowDeficiency RoadPaving(SitePedestrianandVehicularCirculation) CorrectionofSiteDrainage OtherLifeSafetySystemsInstallation/Replacement
PurchaseLandCongresshastoapprovealllandacquisitionsover$100.OnceARSreceivesauthority,theAreaOffice,incoordinationwiththeLocation,identifiesthefundingsourceandforwardsarequesttoinitiatetheacquisitionprocesstotheRPMB.Fundingmaybereceivedbyappropriationorthroughprogramordiscretionaryfunds
2.6 To Be Decision-Making Process USDA has recognized the need to adopt a more consistent, structured, performancebased,integratedplanningprocess across all of its agencies to better enable theAgency to overseemanagement of theARS assetportfolio. In order tomeet thisgoal,ARSwill implement theDepartments policy which is currently being written as the USDA Real Property CapitalPlanningandInvestmentControl(CPIC)Instructions.
ARS has several initiatives ongoing, and has been aggressive in implementing AssetManagementinthelastfewyears.AccomplishmentswerepublishedinGSAsBestPracticesSpecialEdition2007.
2.6.1 Real Property Asset Management Review Boards AcriticalprocessrequirementforassetmanagementwillbetheeightAreaRealPropertyAssetManagement Review Boards(AMRBs), theNALAMRB, and theARS Real PropertyAMRB,
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These boards will decide which capital investments should be recommended for fundingconsideration.
ARSwill establishAMRBs at theAgency level to review the investmentportfolio andmakedecisions usingmultiyear plans and investment business case documents. Table 3 belowdepictstheboardsauthorities.
Investment Type Project Value
Required Documentation
Review Authority (levels of review as noted)
Approval Authority)
Major $10 million or High Risk
Facilities Division will prepare: Capital Asset Plan (Office of Management and Budget (OMB) Exhibit 300)
(1) Area AMRB (initial) (2) ARS AMRB (intermediate) (3) Departmental AMRB (Pre final) (4) Budget and Performance Integration Board (BPIB)(Final)
Secretary
Significant
General Services Administration (GSA) prospectus level to