Acknowledgements. Authors Elizabeth A. Dodson Rachel Duchak Deborah Getz Stephen A. Wolter

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3 Student Manual Asset Management Process Facility Management Software System March 2005 Completed in accordance with Sub Agreements 20 and 31 of the National Park Service Indiana University Cooperative Agreement CA Timothy Harvey Asset Management Program Team Leader National Park Service Elizabeth Dodson Training Manager WASO-PFMD National Park Service Stephen A. Wolter Executive Director Randy White Project Manager Christy McCormick Project Coordinator Eppley Institute for Parks & Public Lands Indiana University Research Park 500 N. Morton Street, Suite 100 Bloomington, IN This manual may not be duplicated without the permission of the Eppley Institute for Parks and Public Lands, acting on behalf of Indiana University. The National Park Service and federal agencies may duplicate it, providing appropriate written acknowledgement is given, for training and administrative purposes. No other state or local agency, university, contractor, or individual shall duplicate this manual with the permission of Indiana University.

4 Acknowledgements Authors Elizabeth A. Dodson Rachel Duchak Deborah Getz Stephen A. Wolter Contributing Eppley Institute Staff Christina McCormick Version Control Shawna Brynildssen Final Edit Christina Wahlert Editorial Assistance Matthew Berry Custom Graphics Contributors and Reviewers The following individuals assisted in content development and review of this manual and manuals published since Yvette Chavez Lisa Daffin Jenny Dems Stephen W. Hastings Mary Hazell Tom Hoots Tim Jarrell Meg Leffel Dan LeMay Steve Maass Debbie Mason Dayna McClure Todd Morgan

5 Student Manual AMP/FMSS Training Course Table of Contents Introduction to the Course and Workbook... page 1 Chapter One Foundations for the National Park Service s Facility Management Program Introduction...7 Facility Management Program...8 Stewardship and Accountability...10 Legislation, Regulations, and Directives...13 The Business of Facility Management...17 Chapter Two The Asset Management Process Understanding the Seven Components Introduction...25 Overview of the Asset Management Process...27 Mission...28 Needs Assessment...29 API Process...30 Inventory of Assets...34 Work Identification...39 Facility Condition Index...41 Work Planning...47 Work Performance...49 Evaluation...50 i

6 Chapter Three Introduction to The Facility Management Software System Introduction...57 FMSS Overview...58 FMSS Operational Practices...60 Navigation...66 Where to go for Help...80 Hierarchy of Location/Assets and Equipment/Features...81 Assets...86 Chapter Four Using the Facility Management Software System Introduction Labor Resources: Vendors, Tools, and Service Contracts Inventory Plans Preventive Maintenance Work Orders Purchasing Reports Logging On and Logging Off Resources Resources for Park Unit Implementation of the Asset Management Process Signature Security Matrix Sample FMSS Operational Practices FMSS Shortcut Keystrokes Asset Codes Required Equipment for FY Sample Timesheets Creating a Master PM and Routes Glossary Bibliography Index ii

7 Welcome! Introduction to the Course The Student Manual is written primarily as a support for students enrolled in the Asset Management Process/Facility Management Software System training course offered by the National Park Service (NPS). The manual also serves as an important resource. Although it is not a user s manual, it contains how-to information on the Facility Management Software System (FMSS) for students who have completed this course as well as for others who may be using the FMSS system after completing a locally provided course or an e-course. The Asset Management Process chapter of the Student Manual describes the NPS strategy for improving responsiveness, accountability, and management effectiveness. The tool that enables implementation of this strategy is the FMSS an integrated enterprise software system that is nationally based and locally managed by individual park units. This manual, and the course it supports, are resources for employee use of the FMSS. Introduction to the Student Manual The Student Manual is organized into four chapters and one Resources section. In each chapter you will find the following components: Chapter Purpose, Objectives, Key Terms, Topical Content, Review of Key Points, and Worksheets. Chapter Purpose (or, why this is important) Provides a summary of how the content in the chapter can be helpful to you as a part of your daily job. Objectives The objectives at the beginning of each chapter form a guide for learning. They identify the purpose for the chapter and summarize the information you should take away after you complete the chapter. Key Terms These are a listing of the key terms to look for as you review the course content. Each of the terms will be defined within the content of the chapter as well in the glossary at the end of this manual. The key terms will be easily identified by the key symbol in the left margin. March 2005 Page 1

8 Topical Content Content is provided in each chapter and serves as the primary educational material. Some special things to look for include: Boxes contain case studies or other special information designed to help you understand important points. The computer monitor icon highlights computer keystrokes needed to input data into the FMSS. The notepad icon highlights information that should be written down and kept in a convenient place where you can refer to it after you return to your park. They generally indicate areas where decisions need to be made at the park level. The caution sign indicates that you should be careful to pay particular attention to the content, as it will have an impact on your success after you return to your park unit. The wrench indicates useful tools or tips that can be used within the software, including shortcuts or time-saving methods in the FMSS computer application. The globe with the mouse icon identifies Internet sites where you can find more information. Review of Key Points This section of each chapter provides you an opportunity to develop a list of the key points from each chapter. This information can then be utilized as a reminder of these key points after you return to your park and share the information with your co-workers. Worksheets Special worksheets have been developed to assist you through the course. These worksheets will appear throughout the chapter directly following related content. Resources In addition to worksheets and other materials in each chapter, the student manual provides resources and other information in support of the learning objectives. This information is located in the Resources section at the end of the manual. Page 2 March 2005

9 Learning the Facility Management Software System Understanding computers and their associated software programs is an acquired skill. Unless you grew up using them, you have likely discovered that there is always a learning curve when you are faced with developing new computer skills. Learning a complex computer program like the Facility Management Software System the NPS name for the commercial facility management program Maximo may not be easy because it is an interconnected and complex tool. The course is designed to reduce complexity, and encourage hands-on learning using practical examples. Remember, everyone else in this class is also learning this information for the first time, and your instructors were in the same position as you when they first learned this information. Be sure to take advantage of your instructors experience during the class and after the class concludes. As you confront your learning curve, you may find the following suggestions helpful: First, as with the development of any new skill, you must be committed to learning. Be open to what is being taught. Perseverance and a positive attitude will help you as you move through the class. Asking questions and practicing your new skills will help you learn this information quickly and thoroughly. You will eventually get it, particularly if you try to discover the answers to your own questions. What s in it for me? The Facility Management Software System is being implemented Servicewide to establish consistency across individual park units, particularly with identification of asset deficiencies. There are long-term benefits for you in learning this program well, such as identifying methods to streamline your operation (e.g., eliminating duplication of effort and reducing paperwork) as well as improving your level of confidence with planning and tracking work. By entering this information into a national database, you can also validate the effectiveness of facility management at the park unit at which you work, and your skills as a member of the facility management team. Since the NPS as a whole is a dynamic organization that constantly changes and evolves to face new challenges, you may find that you are being asked to learn new software programs from a range of NPS disciplines every year or every few years. In today s business environment, adapting to change is the norm rather than the exception. When you and your classmates learn this facility management software program, you are contributing positively to the demands of change from within and outside the NPS. Management Benefits from the FMSS The FMSS can be an excellent management tool that permits you to compare your expectations about your work and the reality of how that work was performed. This program allows you to justify your needs to supervisors, regardless of whether these needs are manifested as materials, people, or time. Through this database program, you can view a variety of captured data with a minimum of time spent on the computer, as well as interface with other programs, reduce the volume of paperwork to be completed, and simplify record keeping. March 2005 Page 3

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11 Chapter One Foundations for the National Park Service s Facility Management Program Introduction The Facility Management Program Stewardship and Accountability Legislation, Regulations, and Directives The Business of Facility Management March 2005 Page 5

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13 INTRODUCTION Chapter Purpose This chapter will introduce and explain the components that comprise the Facility Management Program. An awareness and understanding of how the Facility Management Program works will help you make connections between abstract facility management concepts such as stewardship, accountability, and the Asset Management Process and the practical application of these concepts in the Facility Management Software System. This chapter is divided into four sections: The Facility Management Program Stewardship and Accountability Regulations and Standards The Business of Facility Management Objectives After completing this chapter, participants should be able to: Define the key terms. Understand the impact that stewardship and accountability have on the Asset Management Process. Explain the benefits of being proactive versus reactive regarding maintenance. Identify key regulations and standards relating to maintenance personnel. Understand the general impact that current regulations and standards have on the creation of the Asset Management Process. Identify the key components of a park business plan. Discuss how business plans can be helpful in parks. Key Terms Some key terms, such as these listed below, are defined in this chapter to emphasize their importance in a specific section; other terms may be defined in the Glossary, which is located in the Resources section of this manual. accountability General Management Plan Asset Management Process f March 2005 Page 7

14 THE FACILITY MANAGEMENT PROGRAM The Facility Management Program is a five-part program that facilitates the management of assets to meet their expected life cycles. It combines to create an interrelated grouping of business activities that, when followed, result in the effective management of assets within the NPS. The Facility Management Program consists of management systems and supporting computer software for planning, organizing, directing, and controlling park maintenance. The Facility Management Program was created to address some of the following issues regarding National Park Service assets: Aging facilities that require renovation New space and technology requirements Changing and evolving facility standards (accessibility & environmental) Maximizing limited resources Disposal of excess assets or assets that are insignificant to the mission of the park Figure 1: The NPS Facility Management Program Page 8 March 2005

15 There are five components of the Facility Management Program: Legislation, Regulations, and Directives are the guidelines and requirements mandated by Congress, the Executive Branch through the Department of Interior, and others that create the legal framework for facility management in the NPS. The Asset Management Process is a process that provides the framework for managing assets and doing business within the National Park Service (NPS). The Asset Management Process will be discussed in detail in Chapter Two. The Facility Management Software System (FMSS) is the software package that is used by the NPS to facilitate stewardship and accountability within individual parks, as well as Servicewide. The FMSS will be discussed in detail in Chapters Three and Four. The Facility Management Program Training is being implemented strategically to help ensure that NPS employees embrace the facility management reforms inherent in the Asset Management Process and as required by Director s Order No. 80. This training program also ensures that the standards of the NPS are in-line with industry standards. Another goal of the training program is to teach the practical, uniform application of the software for all levels of the NPS, as well as the consistent use of the software as a management tool. The Facility Management Program Communication Strategy is a tool to inform internal and external stakeholders about the benefits and status of the Facility Management Program Servicewide. Detailed information relevant to policy, procedures, and other facets of park facility management operations is shared through this component. The Interconnection of the Facility Management Program Components These five components of the Facility Management Program are interrelated, as illustrated by Figure 1. Legislation, regulations, and directives have compelled the NPS to establish the Asset Management Process. The Facility Management Software System (FMSS) allows NPS personnel to implement the Asset Management Process. NPS personnel learn how to use the FMSS and the Asset Management Process as well as other industry standards by participating in Facility Management Program Training such as this course. Finally, as increasing numbers of NPS personnel become proficient in using the FMSS through training, this will result in improvements with inter- and intra-park communication concerning the maintenance of park assets and features. This Facility Management Program Communication Strategy also helps park units and the NPS as a whole to address the issue of the Servicewide backlog of deferred maintenance and to be responsible to stakeholders. March 2005 Page 9

16 Asset-Based Systems are the Norm in the Facility Management Industry The FMSS is an asset-based system. An asset is real or personal property that the NPS desires to track and manage as a distinct entity. It may be a physical structure or a grouping of structures, land features, or other tangible property that have a specific service or function such as a farm, cemetery, campground, marina, or sewage plant. Basing the NPS facility maintenance system on assets is far more effective than basing it on activities because it supports decision-making based on asset condition and importance rather than work activity. It also relays more thorough information to decision makers. Incidentally, this is a practice that is standard across the facility management industry. Consider the following example comparing an activity-based system and an asset-based system. If maintenance employee Pat Maxwell enters Collected 150 bags of trash, into an activity-based facility management system, what does this tell Pat s supervisor? This activity-based entry doesn t indicate that most cans were ¾ empty or that Pat still has 100 cans to empty. Rather, if the facility management system is asset-based, and Pat indicates that trash has been collected from all park areas except Jenny Lake campground a high-use site then both Pat and Pat s supervisor have a better sense of how to approach trash removal in an efficient, timely manner that better supports the needs of the public. In this course, you will read some selections from two documents that evaluate the current state of federal facility management: Stewardship of Federal Facilities and Committing to the Cost of Ownership. Both of these documents advocate for an asset-based approach to facility management to increase a federal organization s responsibility for the assets that it owns. STEWARDSHIP AND ACCOUNTABILITY Stewardship and accountability are of fundamental importance to the National Park Service as it pursues its mission to protect and preserve the unique resources located in the National Parks. These two concepts are also central to industry standards for facility management and current business planning trends. Therefore, the concepts of stewardship and accountability must be understood and embraced by any park unit that undertakes the development of a business plan. Stewardship is the recognition and acceptance that the ownership of facilities requires the vision, resolve, experience, and expertise to ensure that resources are allocated effectively to sustain the investment. Accountability is the obligation to report, explain, or justify to primary stakeholders. Page 10 March 2005

17 Keep these terms in mind as you read the example on the next page. Consider the following questions as you read. What are the lessons to be learned from this example? How could better accountability have improved this situation? What recommendations do you have for preventing a similar situation from occurring within your park? Learning from the Past: The National Visitor Center In the early 1970s, the Regional Director for the National Capital Region was very politically savvy and knew how to respond to the phone calls he received from members of Congress with complaints about the potholes in the George Washington Parkway, grass that needed to be mowed at some memorial, etc. The Park Service was given Union Station in downtown D.C. just a couple of blocks away from the Capitol building. Since trains were viewed as a thing of the past, the old train building was designated as a National Visitor Center where people could get information about all the National Park Service areas around the D.C. Metro area. They could also pick up park brochures for any other area of the National Park System at this location and plan their trips. The National Visitor Center was to be operational in time for the 1976 Bicentennial celebration. However, there was a problem. Union Station had been built in the 1890s and was a huge building with marble floors, marble columns and a very large, tall central atrium. Whenever it rained, the maintenance folks would put out an army of white pickle buckets to catch all the water that leaked from the roof. As a result, the Regional Director was called before a Congressional appropriations sub-committee and asked how much it would take to fix the roof at the National Visitor Center. He told them it would take $1 million. No one is sure how he arrived at this amount, but it sounded like enough at the time. Congress added the $1 million as a line item to the budget so the money would be dedicated to fixing the National Visitor Center roof. The maintenance personnel worked on the roof, but each time it rained the pickle buckets would have to be brought out to catch the water from the leaks in the roof. The Regional Director was again called in front of the appropriations sub-committee about the leaking roof. He explained that when the workers got up on the roof and started working, they found more problems that had been previously unknown. The members of Congress understood how that could happen, so they asked the Regional Director how much he thought he needed to finish the job. He asked for and received $10 million. Over a period of seven years, the same Regional Director appeared before the same subcommittee numerous times. The result was an expenditure of just over $90 million to fix the roof. What was the final result? After nearly 10 years and over $90 million, the federal government took this building away from the National Park Service because there was no accountability for how much money it took to operate and maintain, and no credible information on what repairs were needed and how work was performed. It was at this time that Congress passed the requirement that led the NPS to the Maintenance Management System (MMS), a precursor to the Facility Management Software System (FMSS) now used by the NPS. March 2005 Page 11

18 WORKSHEET Stewardship and Accountability Stewardship Recognition and acceptance that ownership of facilities requires the vision, resolve, experience, and expertise to ensure that resources are allocated effectively to sustain the investment. Accountability The obligations to report, explain, or justify to primary stakeholders. As you ve seen, stewardship and accountability are of fundamental importance to the NPS as it pursues its mission. Take a few minutes to think about how these concepts apply to you and your park by answering the following questions. 1. Name something you could change or improve to demonstrate better stewardship within your park. 2. How could you increase your work group s accountability to your park? Page 12 March 2005

19 LEGISLATION, REGULATIONS, AND DIRECTIVES Stewardship and accountability are important mission-driven concepts related to protecting and preserving assets in National Parks, but these concepts are only part of the picture. Over the years, stakeholders including Congress and the general public have demanded increased accountability from the National Park Service in the form of legislation, regulations, and directives. Since the 1980s, the NPS has been asked to better demonstrate stewardship and accountability for its assets through these legislated regulations, and directives. The following legislation, regulations, and directives were created to support and encourage stewardship and accountability with regard to NPS assets. Note how these regulations and directives are specifically addressed by the Asset Management Process and the FMSS. The 1984 Amendment to the Volunteers in the Parks Act of 1969 (PL ) specifically required development of a maintenance management system for the National Park Service, beginning in The law further defined a maintenance management system as containing a work load inventory of assets, a description of work standards, a work program and performance budget for maintenance, work schedules, work and task functions that can record actual labor, equipment, and material costs, and reporting functions for analysis purposes. Relevance to the FMSS: The Maintenance Management System (MMS), launched in the 1980s, was the first attempt to address this directive. Today, the Servicewide implementation of FMSS (a more powerful and advanced facility management tracking program than MMS) continues to address this congressional directive. In addition to the Amendment to the Volunteers in the Parks Act, another federally mandated directive that promotes stewardship and accountability throughout the NPS system is Standard No. 6, issued by the Federal Accounting Standards Advisory Board. Issued in June 1996, Standard No. 6 established accounting standards for federally owned property and deferred maintenance costs. The National Park Service is required to meet this federal standard, including documentation of assets, use of life cycle costs, and costs of any deferred maintenance. Relevance to the FMSS: Standard No. 6 offers specific details about what NPS staff should be tracking and managing through the FMSS program. Similarly, the 1993 Government Performance and Results Act (GPRA) addressed government performance and accountability issues. The GPRA was enacted to improve the confidence of the American people in government and increase federal program effectiveness, accountability, service delivery, and public policy and decision-making. The GPRA applies to all park units, Servicewide; conversely, planning at each individual park unit should meet the national requirements of the GPRA. Relevance to the FMSS: The AMP and FMSS are planning tools that allow a park unit to implement the general and longer time frame actions conceptualized in the General Management Plan, as well as strategic and park performance goals. The FMSS will allow parks to begin long-range planning, as well as identify strategic goals and track performance targets for park operations. March 2005 Page 13

20 The most recently established directive for facility management in the NPS brings all the previous regulations together. In the near future, the NPS Director will issue Director s Order 80, the National Park Service Facility Management Program. This Director s Order lists the needs assessment as a critical function of the NPS and states: The National Park Service intent is to construct, operate, and maintain physical assets only in cases where those assets are vital to meeting the mission of the national park unit the asset is to serve. Facilities will only be constructed, operated, and maintained only when they further NPS mission: provide for the protection and/or preservation of park resources; enable essential visitor services; support critical operations or functions in the park units; and improve the visitor experience (or where absence of those facilities would substantially decrease the ability of the National Park Service to meet its mission). In order to determine whether facilities are necessary, the National Park Service will perform regular needs assessments on all built facilities in national park units. Facilities Needs is the step in the NPS Asset Management Process that identifies the existing and future need of facilities owned and/or maintained by the NPS. Director s Order 80 outlines how the NPS should be doing business, explains what the NPS should track, and provides assurance that the NPS is addressing previous legislation. The order links federal regulations and standards for facilities management to the mission of the National Park Service. It defines terms, establishes standard processes and protocols, and sets the stage for standardized management of park facilities throughout the NPS. However, Director s Order 80 does much more than this. The true importance of Director s Order 80 is linked to the need for park managers, facility managers, supervisors, and maintenance employees to understand the importance of sustainable, defensible, and quality facility management processes in order to meet the mission of the National Park Service, since the mission of the National Park Service should be the ultimate deciding factor in how we manage facilities that support park operations. Director s Order 80 can help park employees ensure that decisions made about facilities at their individual parks reflect and enhance the mission of the NPS. After all, the facilities within National Parks are only important or appropriate when they serve to protect and preserve park resources and provide enhanced visitor experiences. Director s Order 80 provides the transition from general federal facilities regulations to the specific actions and practices that park personnel need to take to ensure that the park s facilities truly enhance the park s ability to meet its mission. Implementation of a needs assessment program in the form of the Asset Management Process and the FMSS not only helps you to be a more responsible steward of your park unit s assets, but it also helps you to address your responsibilities that are outlined in the congressionally mandated laws and policies discussed in this section. Relevance to the FMSS: Director s Order 80 establishes the process for performing needs assessments on NPS assets; this process is streamlined through the use of the FMSS. The FMSS is based on the requirements of DO80 that are reflected in the Asset Management Process Page 14 March 2005

21 National Park Service Management Policies In addition to the legislation, regulations, and directives discussed above, the NPS Management Policies support and reinforce the use of the Asset Management Process and the FMSS. These management policies include park unit General Management Plans and the implementation of strategic, park performance, and other park unit plans. Each park unit has a General Management Plan that serves as a long-range, overall blueprint for park development. Included in the General Management Plan are all aspects of park operations, including visitor services; maintenance and development of assets such as trails, roads, buildings, etc.; and resource protection analysis. Resource issues such as endangered or threatened species, threatened cultural resources, and known hazard areas are also discussed in the General Management Plan. Development of a General Management Plan for a park unit is a highly visible and public process involving many months or even years of study as well as public meetings and significant public review. The General Management Plan provides a long-range framework for park improvements, new facilities, additional programs, and activities over a long time period. Other planning in the park unit including strategic planning, performance planning and more action-oriented planning like PMIS and work planning in the AMP model must be in step with the park unit s General Management Plan. Generally speaking, most park unit General Management Plans plan for a 20-year time frame. Strategic planning and goal formulation for a park unit, is based on the four mission stewardship goals of the National Park Service that have been approved by the Director and the National Leadership Council: Preserve park resources Provide for the public enjoyment and visitor experience of parks Strengthen and preserve natural and cultural resources and enhance recreational opportunities managed by partners Ensure organizational effectiveness Each park must analyze its own strategic goals along with the General Management Plan and other planning documents or efforts at the park to develop a set of strategic goals specific to the park unit that can be achieved in a five-year time frame. This allows NPS strategic goals and the park unit s General Management Plan to be put into action as initiative and timing allow. Park performance planning is based on the park unit s strategic plan. This process combines strategic and performance goals into an action plan for the park unit. These levels of planning, starting with national strategic goals, make the NPS responsive both to national leadership priorities in strategic planning, long-range planning in the General Management Plan and opportunities that may present themselves to park units. The annual park performance plan (formerly GRPA plans) emphasizes accountability and progress in an annual planning process. Park performance plans for each park unit are roughly based on a three-year time frame, but are much more detailed in regard to accountability and performance. March 2005 Page 15