**U.S. Fish and Wildlife Service**

**Asset Management Plan**

**June 7, 2006 Draft**

**Table of Contents**

[1. Service Mission, Organization Structure and Support
4](#service-mission-organization-structure-and-support)

[**1.1 Organization** 5](#organization)

[2. Bureau Strategic Goals and Linkage to DOI Goals, Mission and
Policies.
6](#bureau-strategic-goals-and-linkage-to-doi-goals-mission-and-policies.)

[3. Asset Inventory, Condition and Valuation
7](#asset-inventory-condition-and-valuation)

[**3.1 Leased Asset Inventory** 7](#leased-asset-inventory)

[**3.2 Annual and comprehensive condition assessments.**
7](#annual-and-comprehensive-condition-assessments.)

[**3.3 Frequency of updating inventory, percent of assets with FRPP
data.**
8](#frequency-of-updating-inventory-percent-of-assets-with-frpp-data.)

[**3.4 Frequency for updating the Current Replacement Value (CRV).**
8](#frequency-for-updating-the-current-replacement-value-crv.)

[**3.5 Average age ranges and Condition Index values for major asset
categories.**
10](#average-age-ranges-and-condition-index-values-for-major-asset-categories.)

[4. Asset Prioritization 11](#asset-prioritization)

[5. Bureau Governance / Decision making process for assets
12](#bureau-governance-decision-making-process-for-assets)

[**5.1 Integration opportunities, resource sharing, and co-location.**
12](#integration-opportunities-resource-sharing-and-co-location.)

[**5.2 Space Acquisition Strategies** 12](#space-acquisition-strategies)

[**5.3 Multi-year portfolio planning.**
13](#multi-year-portfolio-planning.)

[**5.4 Identifying Construction needs.**
14](#identifying-construction-needs.)

[**5.5 Project Management.** 17](#project-management.)

[6. Database support for asset management.
19](#database-support-for-asset-management.)

[7. Total Cost of Bureau Asset Management.
20](#total-cost-of-bureau-asset-management.)

[**7.1 What is required to properly sustain the portfolio over time?**
20](#what-is-required-to-properly-sustain-the-portfolio-over-time)

[**7.2 Planning, design and construction costs**
20](#planning-design-and-construction-costs)

[**7.3 Projected O&M costs** 20](#projected-om-costs)

[**7.4 Actual Operations and Maintenance costs.**
20](#actual-operations-and-maintenance-costs.)

[**7.5 What are the component renewal and replacement costs?**
21](#what-are-the-component-renewal-and-replacement-costs)

[**7.6 Investment strategies** 21](#investment-strategies)

[**7.7 Construction Appropriation** 23](#construction-appropriation)

[**7.8 Refuge public use Roads Funds.**
24](#refuge-public-use-roads-funds.)

[8. Disposition 25](#disposition)

[**8.1 What are the opportunities for disposal or engaging a partner to
cover O&M responsibilities?**
25](#what-are-the-opportunities-for-disposal-or-engaging-a-partner-to-cover-om-responsibilities)

[9. Environmental, Cultural Resources, Archeological, and Hazardous
Materials Compliance
26](#environmental-cultural-resources-archeological-and-hazardous-materials-compliance)

[**9.1 Historic and mission critical asset which should not be disposed
of.**
26](#historic-and-mission-critical-asset-which-should-not-be-disposed-of.)

[10. Program Management 27](#program-management)

[**10.1 How are assets affected by asset condition and programmatic
requirements?**
27](#how-are-assets-affected-by-asset-condition-and-programmatic-requirements)

[**10.2 Allocation of resources to repair, rehabilitate or replace high
priority assets.**
27](#allocation-of-resources-to-repair-rehabilitate-or-replace-high-priority-assets.)

[**10.3 Performance measure contribution to management and funding
decisions.**
27](#performance-measure-contribution-to-management-and-funding-decisions.)

[**10.4 Ensuring best value for investing in and managing assets.**
28](#ensuring-best-value-for-investing-in-and-managing-assets.)

[**10.5 Determining future use, needs or replacement of assets.**
28](#determining-future-use-needs-or-replacement-of-assets.)

[**10.6 Incorporating asset considerations into general planning
processes.**
28](#incorporating-asset-considerations-into-general-planning-processes.)

[**10.7 Linkage between today's asset investments and the out year
operational budget.**
29](#linkage-between-todays-asset-investments-and-the-out-year-operational-budget.)

[**10.8 5-10 year Operation, maintenance and replacement of the asset
portfolio.**
29](#year-operation-maintenance-and-replacement-of-the-asset-portfolio.)

[**10.9 Managing non-federally owned assets that are not part of the
DOI-AMP.**
29](#managing-non-federally-owned-assets-that-are-not-part-of-the-doi-amp.)

[**10.10 FWS strategies for implementing the Asset Management Program
and Plan.**
29](#fws-strategies-for-implementing-the-asset-management-program-and-plan.)

[**10.11 Executive Order 13287 "Preserve America"**
30](#executive-order-13287-preserve-america)

[**10.12 Executive Order 13148 Greening the Government.**
31](#executive-order-13148-greening-the-government.)

[**10.13 Opportunities for Legislative reforms.**
34](#opportunities-for-legislative-reforms.)

[11. Asset Management in the National Wildlife Refuge System
35](#asset-management-in-the-national-wildlife-refuge-system)

[12. Asset Management at the National Conservation Training Center.
42](#asset-management-at-the-national-conservation-training-center.)

[13. Asset Management in the National Fish Hatchery System
48](#asset-management-in-the-national-fish-hatchery-system)

[14. Fleet Asset Management Plan 55](#fleet-asset-management-plan)

**U.S. Fish and Wildlife Service**

**Asset Management Plan**

# 1. Service Mission, Organization Structure and Support

* The Service's mission is working with others to conserve, protect, and
enhance fish, wildlife, plants, and their habitats for the continuing
benefit of the American people.*

The Service manages the 96-million-acre National Wildlife Refuge System
(NWRS), which encompasses 545 National Wildlife Refuges (NWRs),
thousands of small wetlands, and other special management areas. It also
operates 69 National Fish Hatcheries, 64 fishery resource offices, and
81 ecological services field stations. The agency enforces Federal
wildlife laws, administers the Endangered Species Act, manages migratory
bird populations, restores nationally significant fisheries, conserves
and restores wildlife habitat such as wetlands, and helps foreign
governments with their conservation efforts. It also oversees the
Federal Assistance program that distributes hundreds of millions of
dollars in excise taxes on fishing and hunting equipment to state fish
and wildlife agencies.\
\
The Service has the privilege of being the primary agency responsible
for the protection, conservation, and renewal of these resources for
this and future generations. We accept this responsibility and challenge
with optimism and resolve to pass along to future generations of
stewards a fish and wildlife resource heritage that is stronger than
when it was entrusted to us.\
\
The Service employs approximately 10,000 permanent and temporary staff
and is supported by citizens volunteering approximately 1.4 million
hours. Although the Service is headquartered in Washington, D.C., over
90% of the workforce is located in communities across the nation at over
700 field stations supported by seven regional offices. The Service
continues to focus on building and maintaining relationships with a
broad array of stakeholders, including the states, tribes, community
groups, and other organizations due to our involvement at the community
level.

Most field stations are small offices with few staff. Many are located
in small towns or remote places to ensure proximity to the resources
they manage. Over 67% of field stations (451 locations) have less than
10 people assigned. This is a factor in asset management because many of
our field stations utilize small facilities. The service owns 434 office
buildings with a median size of 2,240 square feet, and owns only 15
office buildings over 10,000 square feet. The chart below provides
additional specifics

  ------------- ------------- ------------- ------------- ---------- --------
  Staff size    Number of     \% of total   Staff size    Number of  \% of
                field offices                             field      total
                                                          offices    

  1-3           169           25.26%        21-30         40         5.98%

  4-7           190           28.40%        31-40         14         2.09%

  8-10          92            13.75%        41-70         16         2.39%

  11-15         85            12.71%        71+           4          0.60%

  16-20         59            8.82%                                  
  ------------- ------------- ------------- ------------- ---------- --------

## **1.1 Organization**

As shown in the accompanying organization chart, (appendix 1) the
Directorate of the Service is comprised of the Director, two Deputy
Directors, and 11 Assistant Directors, all located in Washington, D.C.
There are seven Regional Directors and one Manager of Operations,
located throughout the U.S. The Service headquarters offices are located
in Washington, D.C. and Arlington, Virginia, with field units in Denver,
Colorado, and Shepherdstown, West Virginia.\
\
Regional Offices are located throughout the U.S. and are summarized
below

-   Region 1, located in Portland, Oregon, serves California, Hawaii,
    Idaho, Nevada, Oregon, and Washington, as well as the Trust
    Territories of the Pacific. (Region 1 also includes the
    California/Nevada Operations Office.)

-   Region 2, located in Albuquerque, New Mexico, serves Arizona, New
    Mexico, Oklahoma, and Texas.

-   Region 3, located in Ft. Snelling, Minnesota, serves Indiana,
    Illinois, Iowa, Michigan, Minnesota, Missouri, Ohio, and Wisconsin.

-   Region 4, located in Atlanta, Georgia, serves Alabama, Arkansas,
    Florida, Georgia, Kentucky, Louisiana, Mississippi, North Carolina,
    South Carolina, and Tennessee, as well as Puerto Rico and the Virgin
    Islands.

-   Region 5, located in Hadley, Massachusetts, serves Connecticut,
    Delaware, Maine, Massachusetts, Maryland, New Hampshire, New Jersey,
    New York, Pennsylvania, Rhode Island, Virginia, Vermont, West
    Virginia, and the District of Columbia.

-   Region 6, located in Denver, Colorado, serves Kansas, Montana, North
    Dakota, South Dakota, Nebraska, Colorado, Utah, and Wyoming.

-   Region 7, located in Anchorage, Alaska serves the entire state of
    Alaska.

The Service's Director has direct line authority over Service
headquarters and the seven regional offices. Assistant Directors provide
policy, program management, and administrative support to the Director.
Regional Directors guide policy and program implementation through their
field structures, and coordinate activities with Service partners.

Because of the Service mission, facilities are widely distributed
throughout all 50 states, and the Atlantic and Pacific territories.
Asset management and decision making activities are generally undertaken
at the local and Regional Office levels while the Washington
headquarters staff in the NWRS, NFHS, Division of Engineering (DEN)and
Division of Contracting and Facilities Management (CFM) provide
Service-wide policy, information systems management and reporting, and
facility program oversight relating to condition assessments, quarters
and lease management.

# 

# 

# 

# 2. Bureau Strategic Goals and Linkage to DOI Goals, Mission and Policies. 

The Department of the Interior's (DOI) Strategic Plan organizes the
Department\'s goals and Department-level performance measures into five
mission areas: Resource Protection, Resource Use, Recreation, Serving
Communities and Management Excellence. The Service's Operational Plan
directly aligns all program's long-term and annual performance goals and
measures with these mission areas. The Service is entrusted with the
protection, conservation, and recovery of threatened and endangered
species, migratory birds, some marine mammals, inter-jurisdictional and
other fisheries, their habitats, and stewardship of the NWRS. As such,
the Service will significantly contribute to the successful achievement
of the DOI's mission goals.

More specifically, the Service supports the following DOI end outcome
goals:

[Resource Protection]{.underline}: Improve the health of watersheds,
landscapes, and marine resources; sustain biological communities; and
protect cultural and natural heritage resources.

[Resource Use:]{.underline} Manage resources to promote responsible use
and sustain a dynamic economy. Although Resource Use is only
tangentially applicable to the activities performed by the Service and
the DOI Strategic Plan does not contain an applicable performance
measure, the Service does contribute through a collaborative
environmental consultation effort. In addition The Service supports
compatible economic uses lands in the National Wildlife Refuge System,
such as haying and grazing, when the use contributes to accomplishing
the purposes of the Refuge and the mission of the Refuge System.

[Recreation:]{.underline} Provide for a quality recreation experience,
including access, enjoyment of natural and cultural resources on DOI
managed, and partnered lands and waters.\
[Serving Communities:]{.underline} Protect lives and property and
improve fire management.

[Management Excellence]{.underline}: Manage the Department to be highly
skilled, accountable, modern, functionally integrated, citizen-centered,
and results-oriented.

Number range CHAPTERThe Operational Plan is the cornerstone of the
Service's performance and accountability infrastructure that will
generate comprehensive and meaningful performance information.
Instrumental in translating broad organizational goals is their linkage
to tactical field operations through identification of local-level
program measures. Local program measures cascade downward to direct
program field operations and results can then be rolled up and aligned
with the Service's strategies and goals. This performance infrastructure
can help maximize performance by linking the results the Service hopes
to achieve to the program approaches and resources that are necessary to
achieve those results. Consequently, the Service is better positioned to
deliver economical, efficient, and effective programs that can help
address the challenges facing natural resource management.

A copy of the Operational Plan can be found at:
<http://www.fws.gov/planning/abc/>. This Service website also has a link
to the DOI Strategic Plan, which is:
<http://www.doi.gov/gpra/strat_plan_fy2003_2008.pdf>

The Asset Management Plan's priorities are directly linked to the
Service's Operational Plan goals and measures.

# 3. Asset Inventory, Condition and Valuation

  -------------- --------------- ---------- -------------------- ----------- --------------- ----------------- -----
  **Asset        **Measure**     **Unit**   **Total Current      **Average   **Average       **Total O&M Cost  
  Category**                                Replacement Value**  Condition   Utilization**   (3)**             
                                                                 Index**                                       

  Owned          16,932,828.48   Sq. Ft.    \$2,118,611,523.85   87.5        2.11            \$28,405,836.87   
  buildings(1)                                                                                                 

  Linear Assets  21,900.02       Lane Miles \$8,258,433,850.85   88.72       n/a             \$7,428,762.30    
  (2)                                                                                                          

  Bridges        136,358.42      Sq. Yd.    \$181,811,743.73     87.04       n/a             \$469,601.76      

  All other      31,353 assets   \(3\)      \$6,841,478,988.06   91.56       n/a             \$29,898,982.55   
  structures (3)                                                                                               

  Non Steward    14,197.1936     Acres      n/a                  n/a         n/a             110,992.52        
  ship land                                                                                                    

  Totals                                    \$17,478,845,970                                 \$68,609,216.00   

  \(1\) Subset                                                                                                 
  of owned                                                                                                     
  buildings                                                                                                    
  where                                                                                                        
  utilization                                                                                                  
  data is                                                                                                      
  required 1,944                                                                                               
  assets have                                                                                                  
  total                                                                                                        
  utilization                                                                                                  
  score of 4105                                                                                                

  \(2\) 5303                                                                                                   
  assets                                                                                                       

  \(3\) Asset                                                                                                  
  measures on                                                                                                  
  other                                                                                                        
  structures                                                                                                   
  varies widely                                                                                                
  -------------- --------------- ---------- -------------------- ----------- --------------- ----------------- -----

Asset condition is measured using two different measures, facility
condition index or FCI and Condition Index or CI, both of which compare
the ratio of deferred maintenance to current replacement value.

FCI has been in Use in the Service since 1999 and is calculated using
the following equation.

Deferred Maintenance / Current Replacement Value. The calculation
results in a value between 0 and 1. The smaller the number, the better
the condition the asset is in. FCI is used to report asset condition for
GPRA in the Service's Strategic plan and Annual Operations Plan.

CI is calculated for submission to the Federal Real Property Profile
(FRPP). The equation is as follows

1- (Deferred Maintenance /Current Replacement Value) \*100= CI. This
calculation results in a number between 0 and 100 where 100 represents
an asset in perfect condition (no deferred maintenance) and a 0
represents an asset in the worst condition possible, where the deferred
maintenance is equal to or exceeds the current replacement value of the
asset. CI is used to report asset condition to the FRPP.

## 

## **3.1 Leased Asset Inventory**

The Service has 339 General Services Administration (GSA) and 137
non-GSA leases as of March 2006. These are tracked each month in reports
sent out to Regional and Washington personnel. The reports show the
total leases, square foot and cost changes, adjustments and pending
space requests. GSA leases for 2,243,933 square feet at \$48,068,777 per
year are mostly for office space, with the rest for storage space and
parking including security costs from the Department of Homeland
Security (DHS). Non-GSA leases cover 886,748 square feet at \$3,252,520
per year. They tend to be small, short-term and include more esoteric
types like housing, antennas, airplane hangars, boat docks, and cold
storage; as well as office, storage and parking.

## **3.2 Annual and comprehensive condition assessments.** 

Annual condition assessments are conducted each year on all buildings
and structures having a Current Replacement Value (CRV) greater than or
equal to \$5,000. The annual condition assessment coincides with real
property inventory updates which are typically conducted during June,
July and August. It is important to conduct the annual condition
assessment at a time when the asset is fully visible and accessible.
Comprehensive condition assessments (CCA) are conducted once every 5
years on all buildings and structures having a CRV greater than or equal
to \$50,000. In addition, the National Fish Hatchery System conducts
CCA's on all mission critical water management assets.

## **3.3 Frequency of updating inventory, percent of assets with FRPP data.**

Update of Service owned inventory is continuous as assets are acquired
or disposed of, and is governed by the Services' Property, Plant &
Equipment Manual.
<https://intranet.fws.gov/region9/engineering/PPEMARCH05/index.htm>
(This document is accessible only to Service employees but copies are
available by request.)

All assets in the Service Real Property Inventory had all data required
by the Federal Real Property Profile (FRPP). No waivers for exceptions
were required. Leasing data is updated monthly from GSA, DHS and
Regional data. All leases are part of the FRPP submission.

## **3.4 Frequency for updating the Current Replacement Value (CRV).** 

The total CRV of assets in the inventory (as last reported in the FRPP,
November 2005) is \$17,478,775,485. CRV is updated in a two-step
process. Step 1 is used to develop a replacement value; Step 2 is used
to keep that value current.

**3.4.1 Step 1 CRV for Non-Heritage Assets.**

This occurs during the comprehensive condition assessment process. CRV
is determined by trained personnel using one of the following three
methods.

-   Method 1: For recently constructed assets that still meet code
    requirements and have not undergone expansion or improvement to
    their original configuration, CRV will be a calculation involving an
    inflation adjustment to the acquisition cost of the asset. One
    example of the method of adding an inflation adjustment to the
    acquisition cost is to use the Construction Cost Indexes from the
    Engineering News Record (ENR-CCI) as an inflation adjustment. How
    ENR builds the Index: 200 hours of common labor at the 20-city
    average of common labor rates, plus 2,500 pounds of standard
    structural steel shapes at the mill price prior to 1996 and the
    fabricated 20-city price from 1996, plus 1.128 tons of Portland
    cement at the 20-city price, plus 1,088 board-ft of 2 x 4 lumber at
    the 20-city price. The ENR-CCI allows adjustment to previous years
    costs data by factors which are specifically determined based on
    construction material and labor costs which are averaged nationwide.

-   Method 2: For recently constructed assets that still meet code
    requirements and have not undergone expansion or improvement to
    their original configuration, but where actual acquisition cost is
    not available, CRV may be determined by performing a calculation
    involving an inflation adjustment to the recorded cost of a recently
    acquired asset with an identical asset type or (similar asset),
    comparable size, quality and capacity, in the same geographical
    location. For example, if a station recently replaced a single
    family home used for quarters by constructing new housing or
    purchasing manufactured housing, the inflation adjusted cost per
    square foot of the most recently constructed quarters could be used
    to determine CRV for other housing units at that same station. The
    same process could be applied to other common assets such as
    warehouse or garage space, water wells, fencing, comfort stations,
    docks and piers, boardwalks etc.

-   Method 3: In the absence of acquisition cost data, or when the
    acquisition cost of the building does not reflect current code
    requirements, a cost estimate or cost model shall be developed to
    replace the asset at existing size and functional capability using
    reference cost databases such as R.S. Means. The estimate or model
    shall consider the building construction type, user and use
    categories, quality level, buildings systems and or subsystems/
    components/ units, locality costs and local experience. The estimate
    must include costs of materials, labor, design, project management
    and administrative costs. Because accurate, valid cost estimating is
    complicated, agencies must provide required training to allow cost
    estimating tools to be used properly, or deploy simple to use cost
    estimating tools. When agencies are restricting development of cost
    estimates to architecture, engineering or facility management
    professionals, a range of tools are available. The Service is
    currently using cost estimating resources ranging from books from
    R.S. Means, Computerized tools such as RS Means Cost works or
    Timberline, both of which employ R.S. Means databases of both single
    items and assemblies made up of required building components to
    develop cost estimates. These methods require construction or repair
    estimating knowledge normally only possessed by maintenance and
    construction professionals.

**3.4.2 Step 1 CRV for Heritage Assets**

Heritage Assets have an intrinsic value beyond the basic cost of their
replacement that distinguishes them from non-heritage assets. Heritage
assets are also generally expected to be preserved indefinitely. In most
cases, the treatment of significant heritage assets is governed by
Historic Preservation programs, either through federal law, such as the
National Historic Preservation Act (NHPA) and the Archaeological
Resources Protection Act (ARPA).

For these assets, a CRV based on standard industry construction costs
will not accurately reflect the cost of replacing the asset using
historically accurate construction and renovation techniques. While it
is unlikely that a heritage asset could be replaced using new
construction techniques, renovation of heritage assets does occur
frequently and the use of a replacement in kind CRV estimate---one that
captures the costs associated with using historically accurate
construction techniques and materials---allows for recognition of the
increased costs associated with historically accurate construction
techniques. Recognition of these costs, in both the numerator and
denominator of the FCI, is necessary to ensure that the calculated FCI
for heritage assets is accurate and reflective of their unique intrinsic
value.

**3.4.3 Step 2** **(all assets)**

This occurs annually when updating the Service Real Property Inventory.
It is used to keep replacement value data current. All RPI records
contain a base replacement value (determined during the Comprehensive
Condition Assessment process described above) and a base year (year the
replacement value was determined). In order to keep that base
replacement value up to date to the current year, the base replacement
value is multiplied by a factor based on ENR-CCI data. This keeps all
replacement values accurate to the current year.

## **3.5 Average age ranges and Condition Index values for major asset categories.**

**3.5.1 Service Owned Assets**

+-----+------------------------+-------------------+-------+---------+
|     |                        | FY 2005\          | Av    | Average |
|     |                        | \# of\            | erage |         |
|     |                        | Constructed\      | Age   | Co      |
|     |                        | Assets\           |       | ndition |
|     |                        | **As reported in  |       | Index   |
|     |                        | the FRPP**        |       |         |
|     |                        |                   |       | 100=    |
|     |                        |                   |       | ex      |
|     |                        |                   |       | cellent |
|     |                        |                   |       |         |
|     |                        |                   |       | 0= bad  |
+-----+------------------------+-------------------+-------+---------+
|     | **Buildings**          |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Office                 | 434               | 33.48 | 82.06   |
| 510 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Schools                | 44                | 33.93 | 86.95   |
| 523 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Other Institutional    | 161               | 27.08 | 81.15   |
| 529 | Uses                   |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Family Housing         | 1,259             | 44.86 | 84.22   |
| 530 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Dorms/Barracks         | 143               | 30.84 | 82.88   |
| 531 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Warehouses             | 2,923             | 39.27 | 90.50   |
| 541 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Industrial             | 502               | 31.95 | 89.53   |
| 550 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Service                | 440               | 30.59 | 81.45   |
| 560 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Communication Sys      | 29                | 28.92 | 89.68   |
| 572 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Navigation & Traffic   | 17                | 98.75 | 95.82   |
| 573 | Aids                   |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | Labs                   | 180               | 27.43 | 96.41   |
| 574 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 3   | All Other              | 1,009             | 30.49 | 87.41   |
| 580 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
|     | **Total Buildings**    | **7,141**         | **36  |         |
|     |                        |                   | .98** |         |
+-----+------------------------+-------------------+-------+---------+
|     | **Structures**         |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Airfield Pavements     | 22                | 44.23 | 87.27   |
| 012 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Harbors & Ports        | 778               | 23.21 | 90.45   |
| 013 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Reclamation &          | 11,912            | 31.32 | 92.73   |
| 016 | Irrigation             |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Storage OTB            | 1,150             | 19.96 | 94.53   |
| 040 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Industrial OTB         | 993               | 41.08 | 78.63   |
| 050 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Parking Structures     | 3,935             | 27.77 | 89.79   |
| 066 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Utility Sys            | 4,120             | 27.9  | 93.2    |
| 071 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Commo Sys              | 251               | 17.92 | 94.52   |
| 072 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Navigation & Traffic   | 11                | 24.9  | 81.81   |
| 073 | Aids OTB               |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Recreational OTB       | 3                 | 64.5  | 100     |
| 075 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Roads & Bridges        | 6,115             | 41.94 | 88.50   |
| 076 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Railroads              | 3                 | 63.5  | 66.66   |
| 077 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Monuments & Memorials  | 125               | 62.05 | 95.28   |
| 078 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | All Other              | 8,038             | 25.45 | 91.01   |
| 080 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
| 4   | Weapons Ranges         | 10                | 25.7  | 90      |
| 082 |                        |                   |       |         |
+-----+------------------------+-------------------+-------+---------+
|     | **Total Structures**   | **37,466**        | **3   |         |
|     |                        |                   | 0.9** |         |
+-----+------------------------+-------------------+-------+---------+

**3.5.2 Leased Space Trends**

GSA leased space peaked in December 2004 at \$49,504,792, and the square
footage in May 2005 at 2,430,205. Non-GSA leases decreased from 140 to
137 within the last year, and square feet decreased 24,498, but costs
increased. This was due to a variety of factors, such as paying for
temporary replacement housing for employees displaced by hurricanes and
increases in lease renewal costs.

# 

# 4. Asset Prioritization

The Asset Priority Index (API) scoring for all Service assets is based
on a 100 point system as required by the DOI asset management plan. Two
separate scoring criteria categories, **Mission Dependency Rating
(MDR) - 80% and Asset Substitutability - 20%** are combined in order to
attain a final API score. Field station managers must enter a selection
for both mission criticality and substitutability to complete the API
for each asset record in the real property inventory. Field stations
completed assessment of all their assets mission criticality for the
first time in July 2005. API is directly correlated with an assets
mission dependency rating (required by the FRPP) as seen in the chart
below, both API and MDR indicates which asset groups are most important
to the Service mission. Assets in the Reclamation & Irrigation category
such as levees, dikes, water control structures are considered highest
priority (average MDR of 1.16), followed by industrial structures
(average MDR of 1.18) and industrial buildings (average MDR of 1.5),
which are typically buildings and structures associated with fish
production at National Fish Hatcheries.

+----+---------------+---------+---------+-------+----+------+------+
|    |               | FY      | Average | Av    | N  | Num  | Num  |
|    |               | 2005\   | API     | erage | um | as   | As   |
|    |               | \# of\  |         | mi    | as | sets | sets |
|    |               | Const   | 100=    | ssion | se | Miss | not  |
|    |               | ructed\ | most    | Depen | ts | D    | mis  |
|    |               | Assets\ | im      | dency | m  | epen | sion |
|    |               | (**     | portant | r     | is | dent | d    |
|    |               | FRPP)** |         | ating | si | not  | epen |
|    |               |         | 0=      |       | on | Crit | dent |
|    |               |         | least   | (     | cr | ical |      |
|    |               |         | im      | Range | it |      |      |
|    |               |         | portant | 1-3)  | ic |      |      |
|    |               |         |         |       | al |      |      |
+----+---------------+---------+---------+-------+----+------+------+
|    | **Buildings** |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Office        | 434     | 74.62   | 1.6   | 2  | 205  | 29   |
| 10 |               |         |         |       | 00 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Schools       | 44      | 68.86   | 1.9   | 6  | 36   | 2    |
| 23 |               |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Other         | 161     | 64.96   | 1.84  | 46 | 94   | 21   |
| 29 | Institutional |         |         |       |    |      |      |
|    | Uses          |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Family        | 1,259   | 54.21   | 1.95  | 3  | 694  | 257  |
| 30 | Housing       |         |         |       | 08 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | D             | 143     | 56.50   | 1.9   | 44 | 70   | 29   |
| 31 | orms/Barracks |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Warehouses    | 2,923   | 52.18   | 2.01  | 4  | 1    | 490  |
| 41 |               |         |         |       | 53 | ,980 |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Industrial    | 502     | [78.31] | [1    | 3  | 152  | 50   |
| 50 |               |         | {.mark} | .5]{. | 00 |      |      |
|    |               |         |         | mark} |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Service       | 440     | 71.75   | 1.73  | 1  | 262  | 30   |
| 60 |               |         |         |       | 48 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Communication | 29      | 65.17   | 1.76  | 13 | 10   | 6    |
| 72 | Sys           |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Navigation &  | 17      | 46.47   | 2.23  | 1  | 11   | 5    |
| 73 | Traffic Aids  |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | Labs          | 180     | 42.69   | 2.08  | 23 | 119  | 38   |
| 74 |               |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 35 | All Other     | 1,009   | 50.34   | 2.02  | 1  | 684  | 176  |
| 80 |               |         |         |       | 49 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
|    | **Total       | **      |         | **1   | *  | *    | *    |
|    | Buildings**   | 7,141** |         | .92** | *1 | *4,3 | *1,1 |
|    |               |         |         |       | ,6 | 17** | 33** |
|    |               |         |         |       | 91 |      |      |
|    |               |         |         |       | ** |      |      |
+----+---------------+---------+---------+-------+----+------+------+
|    | *             |         |         |       |    |      |      |
|    | *Structures** |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Airfield      | 22      | 39.09   | 2.27  | 5  | 6    | 11   |
| 12 | Pavements     |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Harbors &     | 778     | 63.22   | 1.92  | 99 | 33   | 646  |
| 13 | Ports         |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Reclamation & | 11,912  | [93.18] | [1.   | 10 | 1    | 156  |
| 16 | Irrigation    |         | {.mark} | 16]{. | ,0 | ,699 |      |
|    |               |         |         | mark} | 57 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Storage OTB   | 1,150   | 69.61   | 1.70  | 4  | 627  | 90   |
| 40 |               |         |         |       | 33 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Industrial    | 993     | [90.86] | [1.   | 8  | 101  | 41   |
| 50 | OTB           |         | {.mark} | 18]{. | 51 |      |      |
|    |               |         |         | mark} |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Parking       | 3,935   | 61.90   | 1.92  | 4  | 3    | 123  |
| 66 | Structures    |         |         |       | 03 | ,409 |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Utility Sys   | 4,120   | 75.68   | 1.57  | 2  | 1    | 349  |
| 71 |               |         |         |       | ,1 | ,651 |      |
|    |               |         |         |       | 20 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Communication | 251     | 70.83   | 1.73  | 95 | 130  | 26   |
| 72 | Systems       |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Navigation &  | 11      | 69.54   | 1.72  | 4  | 6    | 1    |
| 73 | Traffic Aids  |         |         |       |    |      |      |
|    | OTB           |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Recreational  | 3       | 50      | 2     | 1  | 1    | 1    |
| 75 | OTB           |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Roads &       | 6,115   | 74.26   | 1.67  | 2  | 3    | 152  |
| 76 | Bridges       |         |         |       | ,1 | ,849 |      |
|    |               |         |         |       | 14 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Railroads     | 3       | 18.33   | 2.66  | 0  | 1    | 2    |
| 77 |               |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Monuments &   | 125     | 19.28   | 2.6   | 6  | 37   | 82   |
| 78 | Memorials     |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | All Other     | 8,038   | 73.98   | 1.65  | 3  | 4    | 380  |
| 80 |               |         |         |       | ,1 | ,470 |      |
|    |               |         |         |       | 88 |      |      |
+----+---------------+---------+---------+-------+----+------+------+
| 40 | Weapons       | 10      | 49      | 2.1   | 1  | 7    | 2    |
| 82 | Ranges        |         |         |       |    |      |      |
+----+---------------+---------+---------+-------+----+------+------+
|    | **Total       | **3     |         | **1   | ** | **   | *    |
|    | Structures**  | 7,466** |         | .52** | 19 | 16,6 | *1,4 |
|    |               |         |         |       | ,3 | 40** | 49** |
|    |               |         |         |       | 77 |      |      |
|    |               |         |         |       | ** |      |      |
+----+---------------+---------+---------+-------+----+------+------+

*[Highlighted categories are those with highest average API and mission
dependency ratings.]{.mark}*

# 

# 5. Bureau Governance / Decision making process for assets

Service Asset management priorities are directly linked to the Service
mission and strategic plan goals. As such, asset management decisions
are based on input from field station managers, Regional asset
management experts and national program managers who are familiar with
the resource management impacts that result from asset investment
decisions. Asset management information is stored in the Service Asset
Maintenance Management System (SAMMS) a tailored version of Maximo.
Maximo is an asset based, work order driven, commercial software package
used for maintenance management.

## **5.1 Integration opportunities, resource sharing, and co-location.**

Integration of Service offices is extensive. There are over 1,550
organizations identified in the Service, but through substantial use of
collocation, there are only 723 places that the Service maintains
offices. This is done to save money through consolidation of leases and
sharing of resources, improve communication between Service programs,
and provide enhanced customer service. For instance, Ecological Services
offices are often co-located with NWR or NFH staff. Over 75% of the
leased square feet and costs are in offices shared with two or more
programs. The others are mostly small law enforcement offices that need
to be at border crossings, airports and ports, or in temporary
locations. Examples of co-location with other entities include:

-   Desert NWR Complex, (NV) is co-located with Bureau of Land
    Management and Forest Service (USFS),

-   Service Staff at Tijuana Slough NWR(CA) are located in California
    state facilities,

-   Susquehenna River Fishery Coordinators Office(PA) is co-located with
    the State of Pennsylvania,

-   Whittlesey Creek NWR (WI) is co-located with the National Park
    Service(NPS), USFS and Wisconsin state in a USFS building,

-   Big Oaks NWR (IN) staff are located in an Army-owned building on the
    Jefferson Proving Ground,

-   Detroit River International Wildlife Refuge staff are located on a
    U.S. Environmental Protection Agency Research station,

-   Corpus Christ (TX) Ecological Services Field office is co-located
    with US Geological Survey (USGS) staff in a building owned by Texas
    A&M University.

-   The Big Muddy National Fish and Wildlife Refuge (MO) is co-located
    with USGS staff in a USGS Science center.

## **5.2 Space Acquisition Strategies**

How does the Service determine whether to construct a new asset, lease,
or provide a service or function at another location? The Service
considers co-location opportunities, cost, mission, availability of
space in proximity to mission need, and security requirements. In the
event that the project expenditure is greater than \$10 million, an
Office of Management and Budget (OMB) exhibit 300 form is prepared. A
300 completes a life-cycle analysis of each project, evaluates a number
of alternatives to development and proposes a most effective business
case for the project.

**5.2.1 Constructing Assets**

Major asset investment decisions which require an OMB exhibit 300
(expenditures greater than \$10 million dollars) are guided by the
Capital Planning Investment Control (CPIC) process through the
Investment Review Board (IRB). In addition, all projects included in the
Construction Appropriation list are reviewed and prioritized by the IRB.
Smaller investment decisions are made through preparation of the
Service's 5-Year Deferred Maintenance and Capital Improvement Plan with
input from the Regional offices and National program headquarters. The
IRB also reviews and approves each annual update of the Service's 5-year
construction plan to ensure that it includes the Service's highest
priority projects, given available funding.

**5.2.2 Leasing Assets**

A User Pay system was set up at the beginning of Fiscal Year 2005 which
allocated each GSA lease by organization and sub-activity code. These
allocations are charged back to the occupying program. This has resulted
in the cost of GSA leased space peaking in December 2004 at
\$49,504,792, and the square footage in May 2005 at 2,430,205. Cost
changes for FY 2005 resulting from square foot changes are tracked in a
consolidated cumulative spreadsheet. Through a combination of providing
timely data and applying cost accounting by charging Programs for their
proportion of leased space, managers have the tools and incentive to
reduce their space costs. Programs have analyzed this information to
make significant ongoing progress in reducing their leased space costs.
Pending leased space requests are approved at the Regional and
Washington office levels. They are reported in OMB Exhibit 54, the
leased space budget. No new requests have been submitted since July
2005, and several previous requests have been withdrawn*.*

## **5.3 Multi-year portfolio planning.** 

How are proposed projects / acquisitions ranked in the plan, what new
priorities such as new mission, or programmatic changes that impact
resource needs have been identified?

Asset investment decisions involve four types of projects: 1) deferred
maintenance, 2) small visitor facility enhancements, 3) larger
construction, rehabilitation and capital improvements and 4) refuge
public use road projects. Deferred maintenance is funded by the Resource
Management appropriation. Visitor facility enhancements are funded by
either the Resource Management or the Construction appropriation. Large
construction is funded by the Construction appropriation. Road projects
are funded via the Surface Transportation Act (23 USC) and is
administered by the Federal Lands Highway Division of the Federal
Highway Administration in cooperation with the NWRS. Project selection
and implementation are handled differently for each project type. The
Deferred maintenance and Construction portions of the plan are
prioritized using input from Regions, and National program managers.
Both plans are prioritized to ensure that scarce resources are invested
wisely to ensure that the Service mission and Strategic Plan goals are
met. Small visitor facility enhancement projects are identified in both
the deferred maintenance and construction project lists and funded using
both resource management and construction appropriation funds.

Refuge public use roads investment needs are identified during the
condition assessment process by the Federal Highway Administrations
public lands division.

**5.3.1 Identifying Deferred Maintenance Projects**

Deferred maintenance projects are created using work orders from SAMMS.
This process groups existing deferred maintenance needs documented
through condition assessments into projects focusing on the
rehabilitation or renewal of a single asset.

**5.3.2 Prioritizing DM projects**

Projects are prioritized according to DOI budget guidance attachment G
which considers health and safety factors, resource protection and
compliance or other deferred maintenance needs. Projects are scored
using a standard algorithm, and all project scores are included in
SAMMS. Project selection for the deferred maintenance portion of the
plan is managed within each Region. In addition to attachment G, project
prioritization guidelines, regions also consider API and the effect on
the assets FCI and Service Mission prioritization such as recovery of
endangered species, mitigation responsibilities for Federal water
activities, or other political issues brought into the formulation of
the yearly list.

**5.3.3 Identifying Visitor Facility Enhancement (VFE) Projects.**

VFE projects are identified by regions using work orders in SAMMS for a
restricted set of asset types that are commonly used by visitors such
as, boardwalks, kiosks, visitor contact stations etc. The project work
orders are generated by the annual and comprehensive condition
assessment processes.

**5.3.4 Prioritizing Visitor Facility Enhancement Projects**

Allocation of funds occurs based on a formula which considers each
regions actual visitation, and number of Refuges that are open to
visitation. Regions prioritize these projects to improve the visitor's
experience.

**5.3.5 Prioritizing Public Use Roads Projects**

Regions prioritize these projects to serve public users of these roads
and to improve the regions road asset condition index.

## **5.4 Identifying Construction needs.** 

The Service maintains a consolidated database on the construction needs
for the following programs having assets: the NWRS, the NFHS, Migratory
Birds (MB), Endangered Species (ES), the National Conservation Training
Center (NCTC) and Law Enforcement (LE). "Construction project" refers
only to projects proposed for the Construction appropriation.
Construction projects are added to the database based on a number of
factors including: political interest, API, DOI Rank, changing
programmatic needs, emergencies and asset condition, (e.g. FCI and dam,
bridge and seismic cyclical inspection findings).

**5.4.1 Preparing the 5-Year Construction Plan.**

Every year, as part of the budget process, the Service updates the
current Construction Plan by adding a new out-year. Each February the
Regions and programs each nominate two or more high priority projects.
Washington Office program staff representing the NWRS, NFHS, MB, LE, ES
and Engineering review nominations and based on a variety of priority
tools, e.g. DOI ranking, asset condition as defined by the FCI, API,
mission/programmatic needs and funding targets, and select projects for
insertion in the new year of the 5-Year Construction Plan. The Service
does not select construction projects based on programmatic or regional
targets. Projects are selected based on Service-wide needs, importance
and available funding.

**5.4.2 Project proposals undergo Capital Planning and Investment
Control (CPIC) Review**.

The Service's Construction program is guided by the CPIC process. Major
components of CPIC include: the Service IRB that reviews and approves
recommended projects, preparation/update of Capital Asset Plans (300s)
that provides a life-cycle business case for projects having
construction expenditures over \$10 million, and project close-out
procedures after construction is completed. CPIC procedures provide
guidance on project selection, justification, and project management
through design and construction. Updated 300s provide data on changes in
individual project's cost and schedule. Specific CPIC procedures are
discussed throughout this Plan.

**5.4.3 Bureau Investment Review Board (IRB)**.

The Bureau IRB reviews and approves all updates to the 5-year
Construction Plan and any accompanying Exhibit 300s. The IRB has adopted
the following business rules to help guide plan changes and additions:

-   The Construction Plan represents the needs for the entire Service
    and therefore may include projects required by: LE,MB, ES, NFHS and
    the NWRS. The DEN in its dam, bridge and seismic safety program
    management role, also makes funding and project selection
    recommendations relating to these project areas.

-   Projects funded and begun in a prior year are funded prior to
    funding new projects.

-   Planning and design funds are typically requested in one year;
    construction funds the next year. Depending on the size of the
    construction request and funding targets established by the OMB and
    DOI, most construction is funded in no more than two fiscal years.

-   When feasible, new projects should follow the DOI ranking system
    which gives priority to projects having a significant health and
    safety component.

-   The Service does not seek additional funding in the President's
    request for projects initially funded via Congressional add-on.

-   In order to minimize unforeseen changes to the Plan, the Service
    does not seek additional funding for under-estimated projects. In
    such cases, funding is secured from other sources or the project
    scope is reduced to compensate for the estimate error.

Once approved, the 5-Year Construction Plan and any new supporting
Exhibit 300s are forwarded to the Director for approval and sent to DOI.

**5.4.4 What decision tools does the bureau use in the planning and
design phase of asset construction/ acquisition?**

The Service recognizes that facility planning, design and construction
management on more complex construction, rehabilitation, deferred
maintenance, force-account repairs and demolition projects must be
completed by experienced architects, engineers or other design
professionals with documented training and experience. The Service
strives to ensure that Service assets are designed, constructed,
repaired and maintained to meet or exceed life-safety, environmental,
accessibility and other federal facilities design, construction and
operational requirements. Facilities design and construction guidance
are contained in the Service manual, sections 360 FW1,2,3 and 4.

**5.4.5 Qualified Engineering Review and Approval**

So as to meet these facility development goals, the Service requires
that "non-exempt construction projects" (see definitions below) undergo
a mandatory, formal qualified engineering review prior to purchasing
materials or soliciting for construction services. Reviews are completed
by the Regional Engineer or the Chief, Division of Engineering. Project
definitions include:

**5.4.5.1 Non-exempt Construction Projects.** Non-exempt construction
projects include life-safety, environmental, fire protection, building
code compliance or structural integrity issues. Final designs for all
non-exempt construction projects must undergo a Qualified Engineering
Review and Approval prior to procuring construction materials or
services. Project types include: buildings; mechanical, electrical and
plumbing systems (MEP); dam, bridge and seismic safety projects;
environmental projects involving remediation and regulatory compliance
(e.g., asbestos and lead based paint); structural design of walls,
columns, foundations, abutments and below-grade structures; marine
projects such as shoreline protection, access channels and bulkheads;
and public roadways and intersections**.**

**5.4.5.2 Exempt Construction Projects.** Exempt construction projects
**do not** include life-safety, environmental, fire protection, building
code compliance or structural integrity issues. Final designs for exempt
construction projects do not need to undergo a Qualified Engineering
Review and Approval. Examples of exempt construction projects include:
low-head water control structures; minor earthwork projects; roofing,
siding, window and door replacements; road repaving/repair projects that
do not involve substantial change to alignment and drainage; signage;
fencing; exterior public-use facilities such as kiosks and trails;
pre-fabricated storage sheds; and renovations to building interiors that
do not involve structural modification or changes to MEP systems.

## **5.5 Project Management.** 

The Regional Engineering Offices (REN) are responsible for managing the
planning and design for all non-exempt construction projects. Dam
remediation projects are assigned to the Division of Engineering. The
REN and Division of Engineering are staffed with facility design experts
acquainted with Architectural and Engineering (A/E) and construction
contracting procedures, are Contracting Officer's Representatives, and
are familiar with the codes and regulations that all federal facilities
must meet. Areas of expertise include but are not limited to: project
management, facility design, construction, A/E contract management,
Americans with Disabilities Act (ADA), sustainability, life safety code
and environmental compliance. To aid in delivery of well-designed,
construct-able projects, the Service adopted the Project Management
Planning system in 2001. Major elements of this system included greater
use of A/E consultants, training in A/E contract management and use of
the Project Management Plan (PMP). A PMP is required for all
Construction and Deferred Maintenance projects valued at greater than
\$500,000. It identifies the project team, scope, plan, target cost, and
target schedule. This document is reviewed and signed by the Project
Team, as well as senior management having a vested interest in the
project's outcomes. The PMP is updated throughout the life of the
project and re-signed by all parties whenever there is a major project
change, (e.g. changes to project scope, cost or schedule).

**5.5.1Value Engineering**

All projects having a construction cost of more than \$1 million are
value engineered at approximately the 35% design milestone to identify
potential design or construction savings. The Division of Engineering
maintains records on suggested savings, adopted savings and return on
investment for each study. This requirement may be waived for projects
contracted via design/ build procedures if project goals are met and the
REN and project sponsor carefully document the design modifications and
cost savings achieved during design phase. (see 360 FW3, Value
Engineering)

**5.5.2 CPIC**

An updated Exhibit 300 and intermediate quarterly updates are submitted
to the Department for all Construction projects valued at greater than
\$10M. These CPIC submittals capture key PMP project cost, expenditures
and schedule variances.

**5.5.3 Use of Standardized Facility Designs**

In 2002, the Service developed site adaptable facility designs for:
housing, offices, maintenance and storage buildings and comfort stations
and in 2003, a design guide for kiosks. Computer aided design and
drafting (CADD) design drawings and specifications are available. In
2006, the Service developed the NWRS Standard Facility Conceptual
Designs for seven various sized office/visitor center buildings. The
focus of this effort is to reduce design costs and help standardize
facility design throughout the Service. This suite of building designs
is expected to be adopted for the Service and be distributed under a
memo from the Director encouraging all new office/visitor centers to use
these designs. Site adaptable facility designs and the Kiosk Design
Guide can be accessed by Service employees at
<https://intranet.fws.gov/region9/engineering> .

**5.5.4Design/Build Contracts**

In recent years, the Service has begun using more design/build
contracts. These contracts reduce need for in-house facility design
staff and thereby reduce design costs and result in reduced construction
cost due to the close collaboration that occurs between those designing
and constructing the facility.

**5.5.5 How does your bureau manage construction of an asset?**

The Service's construction management program is contained in the
Service Manual (360 FW 4) and the Construction Inspection Handbook. The
Service utilizes Field Inspectors for smaller, less sophisticated
construction projects and full-time Construction Inspectors for larger
projects. Inspector experience, education and job requirements are laid
out in the resources noted above. Information and training materials for
field staff assisting as construction inspectors may be found at
<https://intranet.fws.gov/region9/engineering/>

**5.5.6 Status of Construction Project**s

The Division of Engineering assigns distinct project numbers to each
funded Construction project. Information on fund status, obligations and
expenditures for each project is tracked in real-time (24 hour delay)
via the Data-Mart/FFS system. A Status of Engineering Projects report is
submitted to Congress twice a year on Construction Appropriation
projects. The Division of Engineering maintains records on the
government estimate, bid, ongoing fund status and final construction
cost for all Construction projects.

**5.5.7 Project Evaluation**

As part of the CPIC process, after a Construction project is completed,
it is evaluated. Evaluation is particularly important for buildings.
Users are asked to evaluate the buildings commissioning, comfort,
warranty issues, design/construction quality, etc. Findings and
lessons-learned are shared throughout the engineering community.
Evaluation forms may be found on the Division of Engineering Web page at
<https://intranet.fws.gov/region9/engineering/> under the tab
"Performance Measures"

# 

# 6. Database support for asset management.

The Financial and Business Management System (FBMS) and the Service
Asset Maintenance Management System (SAMMS) are two important tools that
facilitate modern asset management practices. As the FBMS is not
functional yet, asset management decision making processes in the
Service are supported by the Federal Financial System (FFS), the Real
Property Inventory (RPI), the Personal Property Management System (PPMS)
the Service's Energy database, and SAMMS. These systems are used for
project cost accounting, property inventory and energy consumption
reporting requirements including audit compliance and submissions of
required reports such as the FRPP.

The FBMS and SAMMS will contribute to asset management by ensuring that
uniform information on the asset portfolio is available to guide
decision making processes. FBMS primary contribution will be to
inventory assets and track actual asset investment on both owned and
leased assets for financial accounting purposes as well as providing
information for the Federal Real Property Profile (FRPP). SAMMS is used
to document a wide range of asset maintenance management information
from the asset condition assessment process and its findings such as
repair needs, component renewal, and asset replacement recommendations,
to preventive maintenance activities and capital improvement
requirements. SAMMS documents asset needs using work orders, each of
which is related to a specific asset in the inventory. SAMMS also
contributes to asset management by tracking annual facility Operations
and Maintenance (O&M) costs by asset.

The most important links between FBMS and SAMMS address the transfer of
financial information such as funds expended from the FBMS to the SAMMS
work orders and passage of asset condition information from SAMMS to
FBMS. Another important link between FBMS and SAMMS is that FBMS will
include the real property inventory, without which SAMMS cannot function
at all.

# 7. Total Cost of Bureau Asset Management.

## **7.1 What is required to properly sustain the portfolio over time?** 

Sustainment costs for assets must include costs to plan, design,
construct, operate, maintain, recapitalize and dispose*.*

## **7.2 Planning, design and construction costs** 

These costs are normally considered only when the asset has had a
comprehensive condition assessment and the recommended action is
replacement. In those cases the costs of planning, design and
construction are funded by including a project in the 5 year deferred
maintenance and construction plan.

## **7.3 Projected O&M costs**

The Service has only been collecting actual annual O&M cost at the asset
level for one year, and O&M cost projections or modeling tools have not
yet been developed. The Service believes O&M cost projection modeling
should be a DOI wide effort and is willing to participate and contribute
to this effort.

## 

## **7.4 Actual Operations and Maintenance costs.**

  ------------------------------------------ ----------- ----------- -------------
  **Asset Class**                            **count**   **average   **2005 Total
                                                         API**       O/M costs**

  Water Management                           11,494      93.43       \$9,636,066

  Roads                                      5,833       74.73       \$7,690,769

  Trails, signs, fencing, boardwalks/        7,622       75.21       \$7,667,294
  observation towers, campgrounds                                    

  Office Buildings                           369         74.62       \$6,253,788

  Visitor Center/ Contact stations           138         64.96       \$4,553,817

  Utility Systems/wells                      2,845       73.33       \$3,864,406

  Single Family Housing                      1,018       56.22       \$3,634,203

  Storage buildings                          2,549       51.67       \$2,777,313

  Shop buildings                             368         72.77       \$2,668,369

  Parking                                    3,763       62.42       \$2,432,375

  Housing-barracks/dorms                     137         56.64       \$1,399,689

  Environmental Ed Center                    40          69          \$1,226,992

  Other buildings                            901         49.88       \$1,209,459

  Laboratories                               153         35.59       \$584,752

  Docks                                      764         63.37       \$534,071

  Fuel, water grain storage                  975         69.47       \$475,568

  Telecommunication towers                   227         69.89       \$305,492

  Pump houses/ well houses                   191         64.84       \$222,733

  Airstrips                                  22          39.09       \$122,350
  ------------------------------------------ ----------- ----------- -------------

Determining preventive maintenance costs (both planned costs and actual
costs) is a growth area for the Service. Implementation of SAMMS allows
planning costs and scheduling for preventive maintenance activities and
reporting of actual preventive maintenance costs. This change of
business practices requires learning on the part of field station
managers to use the PM capabilities of SAMMS, as well as a business
culture change, to begin doing something they have not done before.
Preventive maintenance information in SAMMS is inadequate at this time
to determine what average preventive maintenance costs are. The Service
will be developing a preventive maintenance cost estimating tool to
improve development of PM work order planned costs, which can then be
compared with actual PM costs.

**7.4.1 How do O&M requirements compare to actual O&M costs in terms of
required level of service?**

This is an asset management growth area due to absence of information on
O&M requirements. The service began collecting actual O&M costs at the
asset level for the first time in FY 2005 based on the guidance in the
DOI asset management plan. This will continue in 2006 but the
information collection techniques have been modified to capture asset
O&M costs using work orders in SAMMS. The Service will be working on a
model to estimate annual O&M costs for different types of assets. Until
this model is developed, we will not be able to perform a reliable
comparison of planned O&M costs to actual O&M costs.

## **7.5 What are the component renewal and replacement costs?** 

This is an asset management growth area for the Service. The SAMMS
database is structured to capture component renewal using work orders
identified specifically for that purpose. Identifying component renewal
needs in advance was not originally a component of the condition
assessment process. It has been identified as a planned output of the
condition assessment process for the second round of assessments,
starting in FY 2007. Currently this question cannot be answered due to
low numbers of component renewal work orders.

## **7.6 Investment strategies** 

## 

What investment strategies will be employed to manage the accumulation
of deferred maintenance and meet operations and maintenance needs? The
Service has three funding sources available to maintain assets, Resource
Management Construction, and Refuge Public use roads funds.

**7.6.1 Resource Management Appropriation**

> 7.6.1.1 Annual Maintenance funds. Annual maintenance funds are not
> project specific rather they are used to perform preventive
> maintenance, inspections and required repairs during the year they are
> required. Annual maintenance funds are expended at the discretion of
> Regional and field station managers. This is to ensure that funds use
> is prioritized locally on mission critical assets that must be
> maintained to accomplish the Service's mission. By ensuring that these
> types of activities are funded and take place, deferred maintenance on
> critical assets is reduced or prevented.
>
> **7.6.1.2 Deferred Maintenance Funds.**
>
> The Service has policy in place to ensure that appropriated funds in
> the Deferred Maintenance category are used for deferred maintenance
> projects. This is accomplished by using controls that ensure that each
> project funded with deferred maintenance includes a maximum of 25%
> capital improvement.

![](media/image1.wmf)

**7.6.1.3 Frequency of and approach to updating deferred maintenance
costs.**

Deferred maintenance costs are updated during the comprehensive
condition assessment process. A written deficiency cost estimate is done
and saved as an attached document in SAMMS. Closure of work orders when
work is completed is one trigger that updates deferred maintenance
costs. Both Comprehensive and Annual condition assessments which result
in closure of completed work orders assist in this process.

**7.6.1.4 Updating of costs in plans.**

The Service is working out a methodology to keep DM project costs
up-to-date using SAMMS data and Crystal Reports. Accurate cost
forecasting is important to ensure that projects are adequately funded
for the year that they are planned for. This accuracy helps ensure that
projects are accomplished on schedule and with as little variance in
projected cost as possible.

**7.6.1.5 Three-year deferred maintenance cost trends.**

Deferred Maintenance backlog reported in CFO audit (billions of dollars)

  ----------------------------------- -----------------------------------
  Year                                DM estimate

  2002                                1.1-1.5

  2003                                1.0-1.4

  2004                                1.3-1.7

  2005                                1.7-2.3
  ----------------------------------- -----------------------------------

> ![](media/image2.wmf)

The Service Deferred maintenance backlog has increased significantly
since 2002. Increases are due to:

-   Inflation and additional deferred maintenance due to flat or
    decreasing annual maintenance appropriations.

-   Implementing the Service's condition assessment program which has
    resulted in the addition of new findings.

-   Completion of a detailed road inventory by the Federal Highway
    Administration

-   Increased real property asset portfolio as a result of land
    acquisitions.

-   Natural disaster damages, such as hurricanes.

-   Increased water discharge treatment standards at National Fish
    Hatcheries.

## **7.7 Construction Appropriation** 

Construction funds are used to repair or replace large, expensive assets
where project complexity requires IRB participation and multiple year
efforts are the norm. Construction funding is also used to provide core
engineering services, the bridge, dam and seismic safety programs, the
environmental compliance management program, and aircraft replacement.

**7.7.1 Frequency of and approach to updating construction project
costs**

As part of the annual update of the 5-year construction plan, all
construction projects are reviewed and updated. Project scope and
construction costs including planning, design, construction management,
permits, site development, utilities, facility construction, furniture
fixtures & equipment, and contingencies are validated. Costs for all
projects contained in the Plan are price-leveled, using Engineering News
Record (ENR-CCI) inflation adjustments, to the mid-point of the current
Plan's budget year. In each subsequent year, all projects in the Plan
are price leveled to reflect follow-on inflationary increases.

## **7.8 Refuge public use Roads Funds.** 

A five year plan for refuge public use roads is prepared to address
deferred maintenance and capital improvement needs specifically related
to public use roads. Projects are funded by appropriations from the
Highway Trust Fund.

**7.8.1 Frequency of and approach to updating public use roads project
costs.**

The Federal Highway Administration conducts condition assessments of
public use roads and determines repair and replacement costs every three
years. Updated cost estimates are used to prepare white papers for the
transportation bill reauthorization. Updated cost information is also
included in SAMMS work orders to ensure that five year plan costs remain
accurate.

# 

# 8. Disposition

One critical process which occurs during the annual condition assessment
is identification of excess and surplus real property. The responsible
project leader should enter "yes" into the "excess" or "vacant" data
fields to identify assets which may be candidates for disposal. The
Service must dispose of surplus real property in the most economical
manner, which is consistent with the best interest of the Government.
Prior to the disposition, a determination must be received from the GSA
that there is no longer a Federal need or requirement for the excess
real property. The *Certificate of Unserviceable Property, DI 103a*, is
used to document this determination. After this determination is made,
the Service may make the real property available for acquisition by
State and local governments and nonprofit institutions, sale by public
advertising, negotiated sale, or other disposal method. Except for
disposals specifically authorized by special legislation, disposals of
real property must be made only under the authority of the *Federal
Property and Administrative Services Act of 1949*. The administrator of
General Services can evaluate, on a case-by-case basis, the disposal
provisions of any other law to determine consistency with the authority
conveyed by the Act. Based on a highest and best use analysis, the
Service may make surplus real property available to State and local
governments and certain nonprofit institutions at up to a 100% public
benefit discount. Examples of public benefit purpose are: education,
parks and recreation, historic monuments and wildlife conservation. The
implementing regulations for these conveyances are found in *41 CFR
102-75*. For real property which has no commercial value or for which
the estimated cost of continued care exceeds the estimated proceeds, the
Service may abandon, destroy or donate Service owned improvements on
real property. The Certificate of Unserviceable Property, DI 103a, must
be completed and properly processed. A Service official who is not
directly accountable for the property can make a determination. The
Service must not abandon or destroy improvements until after it has
given public notice of the action. After the appropriate disposal action
has been concluded, the property should be removed from the RPI by the
Regional Budget & Finance Officer. The date of the disposal action must
be included on the record as well as a description of the disposal.

Most disposals are demolition or replacement and most assets have little
or no residual value. Many assets are located on government owned land,
and that cost to remove asset off Service lands may exceed the asset's
value. The Service's real property inventory does not track residual
value for accounting purposes. The financial system is the only source
of information for determining what receipts are collected from asset
disposals. All receipts from disposals of Service property are returned
to the Service and are available for operations and maintenance
activities.

## **8.1 What are the opportunities for disposal or engaging a partner to cover O&M responsibilities?** 

Opportunities for disposal are acted upon when disposal costs are low or
when they reduce O&M costs associated with an underutilized or non
critical asset. The best opportunities for partnerships to cover O&M
costs are occasional concession opportunities which are inherently
non-governmental. Most Service owned facilities are located on NWRS/
NFHS land with inherent governmental conservation mission. Uses must be
compatible with the purposes for which the refuge was established and
the purpose for which the land was acquired. Economic uses must also
contribute to the purposes for which the refuge was established.

# 9. Environmental, Cultural Resources, Archeological, and Hazardous Materials Compliance 

Disposals require compliance with environmental, cultural resources, and
environmental laws, regulations, and policies. These include, but are
not limited to the National Environmental Policy Act (NEPA); Executive
Order 11988 Floodplain Management; Executive Order 11990 Protection of
Wetlands; Executive Order 13287 Preserve America; the Comprehensive
Environmental Response, Compensation, and Liability Act (CERCLA); the
National Historic Preservation Act, the Native American Graves
Protection and Repatriation Act, and the various other cultural
resources acts and executive orders which are in effect at the time of
the disposal.

## **9.1 Historic and mission critical asset which should not be disposed of.**

A total of 22,090 of 44,748 assets (49.3%) were identified as "1"
(mission critical) in mission dependency data field or are identified as
historical assets. Of these 22090, 29 assets are identified as
Historical status 1 (National Historic Landmark), 176 assets are
identified as Historical status 2 (National Register Listed) and 1,481
assets are identified as Historical status 3 (National Register
Eligible).

According to the Draft DOI manual chapter on asset Disposal: All
disposal candidates with a historical status of national historic
landmark, national register listed, national register eligible or not
evaluated, should be evaluated by the bureau/office historic
preservation officer against National Historic Preservation Act Section
106 criteria to ensure consideration of potential adverse effects. At a
minimum, the following actions shall be taken:

-   The bureau/office Historic Preservation Office or designate shall be
    part of the historic preservation compliance review process.
    Identify the appropriate State Historic Preservation Officer/Tribal
    Historic Preservation Officer for consultation.

-   Assess adverse effects: if there is no adverse effect, the process
    proceeds as planned. If potential adverse effects are identified, a
    process begins to document ways to avoid, minimize, or mitigate the
    adverse effects. This is a detailed process that is well documented
    in 36 CFR Part 800 that implements Section 106 of the National
    Historic Preservation Act.

-   Return the asset to the disposition process or proceed with selected
    alternative, using Section 110 of the Act, which contains specific
    instructions for disposing of historic properties.

.

# 10. Program Management

## **10.1 How are assets affected by asset condition and programmatic requirements?**

Maintenance of leased assets is normally the responsibility of the
landlord. If maintenance is inadequate to ensure appropriate asset
condition, the space users can be relocated.

There should be a relationship between asset investment, asset FCI and
Asset API. The Service's strategic plan goals are designed to ensure
that high API assets have FCI measured to ensure that our most important
assets are maintained in good condition.

## **10.2 Allocation of resources to repair, rehabilitate or replace high priority assets.**

**10.2.1 Construction Appropriation**

Construction dollars are allocated based on a combination of FCI, DOI
Rank, condition scores for dam, bridge and seismic safety projects, as
well as political pressures and programmatic need.

**10.2.2 Resource Management Appropriation**

-   **Annual Maintenance** NWRS Annual maintenance funds are distributed
    to the regions based on their % of asset replacement value (CRV) and
    Hatchery maintenance funds are distributed based on each regions %
    of Hatchery operations.

-   **Deferred Maintenance** NWRS Deferred maintenance funding is
    allocated by each region's percentage of the deferred maintenance
    backlog. Regional Managers balance complex competing demands of
    safety, the Service and NWRS mission of resource protection and
    management, and political factors.

**10.2.3 Public use roads**

Funds are distributed to regions according to each regions relative
need. The relative needs are established from Service inventory data
(refuge road mileage, area of parking facilities and bridges, the
condition of roads and bridges, the amount of visitation, and traffic
safety) Only a small portion of this funding comes to the Service in
cash for program management costs, the remaining funds are used by FHWA
to do Service projects.

## **10.3 Performance measure contribution to management and funding decisions.**

In accordance with the DOI asset management plan, FCI "before" and FCI
"after" is included in our 5 year plan document. Other measures include
Mission Dependency (asset Priority Index), utilization and annual O&M
costs. These performance measures and inherent improvement upon their
baselines is considered by regions when prioritizing and executing
projects.

**10.3.1 Integration of FRPC performance measures with FBMS and SAMMS.**

FCI is already integrated with our facility maintenance management
system (SAMMS), as SAMMS is our source for our deferred maintenance
backlog, the numerator of FCI. Our calculation of annual O&M costs is
planned to come from SAMMS for 2006. This is our first year using work
orders in SAMMS to determine each assets annual O&M costs in this
manner. Utilization and Mission dependency are currently collected in
our real property inventory and this database is scheduled to be
replaced by FBMS. We intend to maintain these performance measures in
FBMS at that time.

## **10.4 Ensuring best value for investing in and managing assets.**

Scarce resources combined with regional oversight ensure that funds are
spent wisely. Regional peer review of five year plan projects ensures
their validity. The CPIC process requires an updated Exhibit 300 to be
submitted to the Department annually and intermediate updates quarterly
for all Construction projects valued at greater than \$10M. These CPIC
submittals capture key PMP project cost and schedule variances and are
submitted to the Department. In addition, the Service has begun use of
site adaptable designs. In 2002, the Service developed site adaptable
facility designs for: housing, offices, maintenance and storage
buildings and comfort stations and in 2003, a design guide for kiosks.
CADD design drawings and specifications are available. Additionally, in
2006, the Service developed standardized building floor plans for seven
various-sized office/visitor center buildings. The focus of this effort
is to reduce design costs and help standardize facility design
throughout the Service.

To ensure best value for leased assets, programs are charged for the
proportionate space they occupy in a lease. This helps ensure that only
the amount of space that is needed, is leased. Because of this, GSA
lease costs have decreased substantially since the user pay cost
accounting system was established in FY 2005.

## **10.5 Determining future use, needs or replacement of assets.**

For owned assets, the service considers asset condition, historic
preservation requirements where applicable, as well as staff space
requirements, the location of the asset and its proximity to the Service
mission, its ability to serve visitors and resolution of environmental
liability.

For leased assets, pending space requests have been approved at the
Regional and Washington office levels. They are reported in OMB Exhibit
54, the leased space budget. No new requests have been submitted since
July 2005, and several previous requests have been withdrawn*.*

## 

## **10.6 Incorporating asset considerations into general planning processes.**

Asset management performance measures are integrated into our budget
request. Comprehensive conservation plans for National Wildlife Refuges
include asset management issues and considerations.

## **10.7 Linkage between today's asset investments and the out year operational budget.** 

Exhibit 54, the leased space budget includes projected lease changes for
the next three Fiscal years. Exhibit 300 provides a thorough business
case for each construction project with expenditures of over \$10
million and includes, among other topics: alternative methods of
development e.g. leasing, how the project will be managed during design
and construction; and a life-cycle cost analysis that includes
operations, maintenance and disposal costs associated with the project.
The Service IRB reviews and approves Exhibit 300s before they are placed
in the Service 5-Year Construction Plan. There is no other linkage
between proposed construction and out-year O&M requirements, and this
represents an asset management growth opportunity.

## **10.8 5-10 year Operation, maintenance and replacement of the asset portfolio.**

The Service will use the Construction, Resource Management and Public
use roads Appropriations to the fullest extent of available funding to
operate, maintain, and replace its asset portfolio over the next 5 - 10
years. Addressing the backlog of health and safety projects at Service
facilities would take significantly more resources than are currently
available in five years. The Department's current 5-year deferred
maintenance and capital improvement planning system continues to stress
human health and safety needs. Within this context and in accordance
with funding targets established by the OMB and the Department, the
Service is addressing the highest priority critical health and safety
needs Service-wide. Also included in the plan are projects to address
aircraft safety, critical resource protection, water management, consent
decrees, compliance issues, and visitor enhancement projects that
directly address the Refuge System's conservation mission in its second
century.

## **10.9 Managing non-federally owned assets that are not part of the DOI-AMP.** 

Non-Federally owned assets are identified by acquisition type in the
real property inventory. These include assets that are leased or Service
managed but not service owned. There are 949 assets in these categories
(representing 2% of total inventory with total CRV of approximately
\$611 million) These assets are included in the FRPP submission and are
managed in the same way that Service owned asset investments are.

## **10.10 FWS strategies for implementing the Asset Management Program and Plan.**

Asset management processes in the Service have historically been field
station centered. Continued use of SAMMS and the annual and
comprehensive condition assessment processes ensure that mission
critical needs are reported on by the personnel most familiar with the
resource management situation to be addressed.

Strategies to implement the AMP include:

-   Use of the API tool by field station managers to prioritize assets
    based on their contribution to mission is one method of implementing
    a progressive asset management program

-   Determination of planned costs for facility maintenance, operations
    and preventive maintenance activities

-   Provide training to field station staff and involve Regions in
    development of asset management tools and processes and give
    feedback to local asset managers in the form of useful reports about
    performance measures and asset management activities.

## **10.11 Executive Order 13287 "Preserve America"**

Executive Order 13287---"Preserve America" requires Federal agencies to:

-   Preserve America\'s heritage by actively advancing the protection,
    enhancement, and contemporary use of the historic properties owned
    by the Federal Government;

-   Promote intergovernmental cooperation and partnerships for the
    preservation and use of historic properties;

-   Recognize and manage federal historic properties as assets that can
    support department and agency missions while contributing to the
    vitality and economic well-being of the Nation\'s communities and
    fostering a broader appreciation for the development of the United
    States and its underlying values.

The EO directs federal agencies in general to become better stewards of
their historic properties. It takes into account all historic
properties, including collections, regardless of NRHP status. All of the
properties the Service identified in its Preserve America report are
also managed by our current cultural resources program. The Service
cultural resource program is described in detail in the following
document.

<http://historicpreservation.fws.gov/preserveAmerica/pdfs/FWS_Protecting_Habitat.pdf>

Service heritage assets including National Historic Landmarks and those
listed or eligible for the National Register of Historic Places, are
important assets to the Service. Their protection and preservation is
required by various laws including the National Historic Preservation
Act and the Archaeological Resources Protection Act as well as EO 13287
\"Preserve America." These statutes are applicable to all Federal
agencies regardless of mission and illustrate the importance and
intrinsic value of these assets to the Federal government. For the
Service in particular, however, these assets represent components, in
some cases integral components, of the habitat that many Refuges and
Hatcheries are charged with preserving. The Wildlife Refuge System
Improvement Act of 1997 draws special attention to this point in its
inclusion of cultural resource and heritage asset data for the
formulation of Comprehensive Conservation Plans for Refuges.
Additionally, heritage assets form an important part of education and/or
interpretation programs conducted on Refuges. The Wildlife Refuge System
Improvement Act of 1997 mentions the importance of education and
interpretation to increasing visitation to Refuges and influencing
attitudes about resources. Many of the concepts we seek to educate
visitors on can be greatly clarified by using a heritage asset related
example. Additionally, the success of so many Refuge programs are tied
to partnerships and community involvement and the National Wildlife
Refuge System Volunteer and Community Partnerships act of 1998
encourages the use of heritage assets for partnering purposes. Heritage
assets are intriguing to many groups for their historical value and can
offer a way to begin a dialogue with a partnering organization.
Similarly, many Refuges have close ties with Native Americans who
definitely place importance on heritage and the preservation of the
physical manifestations of history.

The first step to compliance is identifying which assets are subject to
EO 13287. To do this, Service Regional Historic Preservation Officers
(HPO's) participate in asset management by reviewing the Service RPI,
for assets with historical status, especially those multi-use assets,
and cross-reference with Regional Historic Preservation data on assets
that are or have potential for serving as Preserve America properties.
HPO's can include an explanation that notes the status of the asset(s)
as a Preserve America property or its potential as one, in a special
field in the RPI Database called the "HPO Notes".

**10.11.1 Protection, enhancement and contemporary use of historic
properties.**

HPO\'s provide consultation on historic preservation requirements and
project management assistance when necessary, for maintenance projects
affecting historic assets. The Service has engaged the National Park
Service as a partner on several occasions in order to ensure that staff
with relevant historical knowledge, are available to conduct condition
assessments of historic assets. All Preserve America properties are
considered Heritage Assets as well. As a Federal agency, Historic
preservation efforts begin with adherence to the National Historic
Preservation Act. In particular NHPA Section 106 requires Federal
agencies to take into account the effects of their undertakings on
historic properties, and afford the [Advisory Council on Historic
Preservation](http://www.achp.gov/aboutachp.html) a reasonable
opportunity to comment. Section 106 requires agencies to identify
historic properties, assess adverse affects and resolve adverse affects.
Compliance with Section 106 often identifies opportunities to preserve,
conserve and use historical assets. Additionally, partnerships that we
have with Tribes and Friends groups allows for more work to be done to
historic properties that results in better management of historic
assets. Most historic assets that are preserved by the Service are used
to enhance educational programs. Some examples are below.

1\. Preservation of buildings from the Chesser Island Homestead
(Okefenokee Refuge) is incorporated into visitor attractions on the
Refuge.

2\. Historic cabins at Kenai NWR are used as educational assets as well
as used by travelers to the Refuge (they have been renovated and opened
to public use).

3\. The historic cabin at Mingo NWR has recently been preserved and
maintained through assistance from the local Friends Group who sees the
cabin as a direct link to their ancestors. They have worked with the
Refuge the preserve the cabin

4\. Matagorda Island Lighthouse (Aransas NWR) was renovated by a Friends
organization with assistance from the Service and the State of Texas. It
is now used for tours and educational programs.

5\. Rehabilitation of the Jack Longstreet Cabin on Ash Meadows NWR in
southwestern Nevada has been completed. The project which was funded by
a grant from the Southern Nevada Public Lands Management Act (SNPLMA),
revitalized the stone cabin which was originally built in 1896.

## **10.12 Executive Order 13148 Greening the Government.**

How will the Service incorporate planning and management requirements
for Executive order 13148 "Greening the Government" through Leadership
in Environmental Management, April 21, 2000? This Executive Order
mandates environmental management and environmental compliance programs
that emphasize pollution prevention and reduce the use of toxic
chemicals. It requires implementation of an Environmental Management
System (EMS) for improving environmental performance.

**10.12.1 Environmental Management Systems.**

In accordance with the Executive Order, the Service employs an EMS to
review its facilities. An EMS is a systematic, documented approach that
ensures environmental activities are sustainable, well-planned and
managed at the field station level. The implementation of EMS requires
development of an Environmental Management Plan (EMP), which identifies
environmental aspects and impacts to daily operations. The plan includes
greening, energy conservation, transportation efficiency, pollution
prevention, recycling, and environmental compliance considerations. It
is a proactive approach to environmental stewardship. It is a continual
cycle of planning, implementing, reviewing and improving the processes
and actions that an organization undertakes to meet its business and
environmental goals. The Service's goal is to attain continuous
environmental improvement and achieve full compliance with all
environmental laws and regulations. As part of the EMS process, the
Service conducts environmental compliance audits at Service facilities.
Although the frequency of audits varies according to the type and size
of the facility, all facilities within a Region must be audited every 5
years or earlier. Findings will be drafted within 30 days after the
completion of the formal and informal audits, and upon receipt of the
report, the facility has 60 days to develop corrective actions for each
of the regulatory, management practice, and required practice findings.
The facility will submit a report to the Region 12 months after the
finalization of the report detailing the status of corrective actions.
Formal follow-ups are required at every 12-month period after the
initial audit until all corrective actions are completed.  All findings
are documented and tracked in the national database. Protocols in the
Environmental Auditing Handbook are for management of air emissions,
drinking water, hazardous materials, hazardous waste, pesticides,
petroleum oils, and lubricants (POL), solid waste, special pollutants,
Underground Storage Tanks (USTs), wastewater, and greening.

In addition, no asset management strategy is complete without
considering Executive Order 13123, "Greening the Government through
Efficient Energy Management" (June 3, 1999). It calls for Federal
agencies to improve the energy efficiency of their buildings, promote
the use of renewable energy, and reduce greenhouse gas emissions
associated with energy use in their buildings, among other
energy‑related requirements. It also directs the Department of Energy to
work with other Federal agencies to develop a variety of guidance,
criteria, tools, and other information to assist agencies in
implementing the provisions of the Order. Through life‑cycle
cost‑effective energy measures, each agency shall meet goals for
greenhouse gases reduction, energy efficiency improvement, renewable
energy, petroleum fuel reduction, and water conservation. The Service
funds energy efficiency projects primarily through the Resource
Management appropriation

**10.12.2 "Greening" the Service's asset management program. -- Guidance
Documents**

**10.12.2.1 Memorandum of Understanding.**

On January 24, 2006, the Deputy Secretary signed the Memorandum of
Understanding (MOU) that commits the Department to federal leadership in
the design, construction, and operation of High Performance and
Sustainable Buildings. In accordance with the Energy Policy Act of 2005,
and other Executive Orders, the MOU contains implementation of common
strategies for planning, acquiring, designing, building, operating, and
maintaining such buildings in an energy efficient and sustainable manner
that strives to achieve a balance that will realize high standards of
living, wider sharing of life's amenities, maximum attainable reuse and
recycling of deplete-able resources, in an economically viable manner,
consistent with Department and Service missions. Use of life cycle
concepts, consensus-based standards, and performance measurement and
verification methods that utilize good science that lead to sustainable
buildings are encouraged.

The Service will incorporate planning and management requirements to
follow a common set of established sustainable guiding principles for
integrated design, energy performance, water conservation, indoor
environmental quality, and materials aimed at helping Federal agencies
and organizations:

\- Reduce the total ownership cost of facilities;

\- Improve energy efficiency and water conservation;

\- Provide safe, healthy, and productive built environments; and

\- Promote sustainable environmental stewardship.

The guiding principles include:

\(1\) Employ integrated design principles, such as integrated planning
and design and total building commissioning practices.

\(2\) Optimize Energy Performance for energy efficiency to meet energy
reduction targets and reduce costs, including measurement and
verification.

\(3\) Protect and conserve both indoor and outdoor water.

\(4\) Enhance indoor environmental quality though proper ventilation and
thermal comfort, moisture control, day lighting, use of low-emitting
materials, and protection of indoor air quality during construction.

\(5\) Reduce the environmental impact of materials, including use of
products with high recycled content (both EPA-designated and others),
bio-based content for USDA-designated products, recycling and salvage of
site-related construction waste, and elimination of the use of ozone
depleting compounds during and after construction.

**10.12.2.2 Service Policy for Energy Management**

Service policy for energy management is being revised to accommodate the
requirements of the Energy Policy Act of 2005 and the MOU. However it
will focus on acquisition of lower utility costs, use of Demand Side
Energy Management Services offered by electric utilities and other
energy service providers, energy and water audits for Service
facilities, sustainable design of buildings, implementation of cost
effective energy and water conservation opportunities, development of
renewable energy sources, fuel switching, use of standby power devices,
and energy conservation in vehicles. In addition, it will address
electrical load reduction measures during power emergencies.

**10.12.2.3 Director's Order No. 144**

This Directors Order establishes the policy for "greening" the Service.
The Order provides a framework for other decisions that may involve
environmental evaluations where no stand-alone order exists, and builds
on successful proactive initiatives that have been implemented at
Regional Offices and field stations to create a systematic approach to
this issue.

## **10.13 Opportunities for Legislative reforms.** 

What opportunities for legislative reforms would aide the bureau's asset
management program? Are there legislation or administration mandates
that create challenges? Legislation direction that would allow the
Service to require total environmental cleanup and removal of all
un-necessary former military assets from Base Realignment And Closure
Commission (BRAC) transfer properties prior to transfer of land to the
Service.

Define the impact on the portfolio or individual asset and suggested
remedies and reforms.

As a result of transfer of former military lands, over \$150 Million in
deferred maintenance has been identified for transferred buildings and
structures.

# 11. Asset Management in the National Wildlife Refuge System

**Mission**

The mission of the System is to administer a national network of lands
and waters for the conservation, management, and where appropriate,
restoration of the fish, wildlife and plant resources and their habitats
within the United States for the benefit of present and future
generations of Americans.

**Goals of the National Wildlife Refuge System**

a\. To fulfill our statutory duty to achieve refuge purpose(s) and
further the System mission.

b\. Conserve, restore where appropriate, and enhance all species of
fish, wildlife, and plants that are endangered or threatened with
becoming endangered.

c\. Perpetuate migratory bird, inter-jurisdictional fish, and marine
mammal populations.

d\. Conserve a diversity of fish, wildlife, and plants.

e\. Conserve and restore, where appropriate, representative ecosystems
of the United States, including the ecological processes characteristic
of those ecosystems.

f\. To foster understanding and instill appreciation of fish, wildlife,
and plants, and their conservation, by providing the public with safe,
high-quality, and compatible wildlife-dependent public use. Such use
includes hunting, fishing, wildlife observation and photography, and
environmental education and interpretation.

**Description of NWRS land holdings and their impact on facility
management:** The NWRS owns over 96 million acres of lands and waters
and is the federal governments third largest land assemblage. The System
is widely dispersed geographically and field stations are scattered
throughout the U. S. and associated island territories. Lands are
devoted to conservation of fish, wildlife, and plants and generally are
environmentally sensitive. With a history of waterfowl management
figuring prominently in early land acquisition, many land holdings are
low lying areas along major rivers or in coastal zones. Management of
wetland impoundments occurs at many locations and facility operations
and management are considerably influenced by presence of wetlands and
susceptibility to hurricane and flood damages. Active management of
lands to provide habitats favorable to fish and wildlife also is a major
influence on the types of assets needed. This active management of about
3.75 million acres of habitat each year has two impacts on
facilities: 1) dikes, levees and associated water control structures are
needed to manage wetland impoundments; and 2) a wide array of
agricultural and construction equipment is regularly used on refuges
resulting in the need for support infrastructure such as maintenance
buildings. In addition, wildlife dependent public recreation has a major
influence on facility infrastructure needs.

The NWRS as a system of lands is not mature. Land holdings continue to
grow as evidenced by the addition of about 2 million acres of land to
the NWRS between FY 2000 and FY 2005. Continued land acquisition has
resulted in a modest increase in our asset portfolio; however, a larger
factor is that many lands that were required throughout our history have
never been sufficiently developed to enable effective delivery of the
NWRS mission which includes dual components of conserving fish,
wildlife, and plants; and providing associated public recreation.

There is considerable demand to expand visitor facilities, offices, and
logistical support facilities such as maintenance/shop buildings. The
Refuge System has focused its funding on taking care of existing
facilities and has had only limited facility expansions underway. The
strategy for visitor facilities is to keep them modest and to favor
small scale facilities such as trails, boardwalks, kiosks, boat ramps,
and photo blinds over major facilities such as visitor centers.

**Organization Structure:**

**National** -- At the bureau wide level, Deputy Director Marshall Jones
is the Senior Real Property Officer for the Service. The Assistant
Director for the National Wildlife Refuge System serves on the DOI Asset
Management Team and has the overall lead for coordinating asset
management activities within the various programs within the Fish and
Wildlife Service. Within the Refuge System itself, the overall
responsibility for managing the Refuge System's portfolio of assets is
through the Assistant Director for the National Wildlife Refuge System.
Ten staff at the central headquarters office coordinate preparation of
all planning, budgeting, and reporting materials and manage the Service
Asset and Maintenance Management System, the Fish and Wildlife Service's
application of the commercial maintenance management software,
MAXIMO^TM^. One of these ten individuals manages the heavy equipment
program to include safety training for operators, budgeting, and
consolidated purchasing. There is also one national coordinator
responsible for all interactions with the Department of Transportation
programs. Work is carried out in coordination with the National Fish
Hatchery System, Engineering, Contracting, and other Service
organizations to assure consistency in approach.

**Regional** -- Within Refuge budgets, about twenty-four positions are
dedicated at the Regional level to coordinate overall facility and
equipment management efforts. Each of the seven Regional offices has an
asset management coordinator, a heavy equipment coordinator, and a
condition assessment coordinator. The three largest Regions have a
second condition assessment coordinator responsible for completing
comprehensive assessments of condition of facility assets greater than
\$50,000 in value. In addition, each Region has a Roads Coordinator who
is responsible for transportation project planning and implementation.

**Field Stations** - Refuge System field stations are widely dispersed
geographically and staff sizes are small. About 95% of the 582 field
units (545 refuges and 37 wetland management districts) contain facility
assets that require maintenance; nearly all have need for use of
vehicles or other mobile equipment such as construction or agricultural
equipment to effectively manage these lands and waters. In addition to
owning or managing the lands and waters of the System, the NWRS owns
over 40,000 facility assets valued at over \$16 billion and about 14,000
mobile equipment assets valued at \$0.5 billion for a combined facility
and equipment infrastructure valued at \$16.5 billion.

Within the overall NWRS workforce, there are about 640 FTEs physically
located on field stations whose primary responsibility is to maintain
facility and equipment assets. The table below indicates the size of
maintenance staffs (expressed as FTEs) at refuge field stations in FY
2006. A total of 55% of NWRS field units have no maintenance staff; at
these locations a refuge manager or biologist normally assumes
maintenance duties as a collateral duty. A total of 28% of field
stations have from 1 to 3 maintenance FTEs and only 15% of field
stations have 3 or more maintenance FTEs.

  ------------------------------------ ---------------- ------------------
  **NWRS Field Stations with ....**    **No. Field      **Percent of
                                       Stations**       Stations**

  10 to 14 maintenance FTEs            5                0.9%

  5 to 8.5 maintenance FTEs            21               3.6%

  3 to 4.9 maintenance FTEs            61               10.5%

  2 to 2.9 FTEs                        75               12.9%

  1 to 1.9 FTEs                        89               15.3%

  .5 FTEs                              8                1.4%

  Stations with other staff but no     135              23.2%
  maintenance staff                                     

  Stations completely unstaffed        188              32.3%

  Total                                582              100%
  ------------------------------------ ---------------- ------------------

Because of small staff size and diverse responsibilities, Refuge System
field station personnel are often generalists that carry out a
multiplicity of functions. Responsibilities of maintenance staff vary
considerably from location to location and usually include some level of
operational activities such as manipulating wildlife habitats, posting
boundary signs, controlling invasive species, and assisting with a
number of other operational activities. On average, a maintenance worker
within the Refuge System devotes only about 60% of their time to true
maintenance functions with the remaining 40% of duties being operational
in character.

Setting aside the operational functions performed by maintenance staff
leaves an effective workforce of about 380 FTEs (60% of 640) to conduct
the hands-on maintenance of the NWRS facility and equipment
infrastructure. Averaging these FTEs across the entire portfolio of
assets would indicate that each individual working full time in a true
maintenance function (no operational duties) would need to maintain more
than 100 facility assets collectively valued at over \$42 million as
well as maintain more than 35 items of equipment collectively valued at
over \$1.4 million. Using an average figure such as the preceding may
not provide precise insight into the situation at an individual
location; however, it does illuminate the fact that the job of
maintaining the facility and equipment infrastructure of the NWRS is
large and that existing staffing levels are woefully inadequate.

**Program Management**

NWRS Strategic plan goals and metrics. The metrics listed below help
determine whether investments are being made in assets which serve the
mission of the NWRS, as well as its visiting public.

-   The condition of conservation and biological research facilities, as
    measured by the FCI.

-   The condition of cultural and natural heritage facilities as
    measured by the FCI

-   The condition of recreation assets as measured by the FCI

-   The condition of buildings as measured by the FCI

-   The condition of other structures (roads, dams, parking areas,
    bridges, utilities, etc.) as measured by the FCI

Status of NWRS Facility Assets (Sept. 30, 2005)

+-------------+-------+----------+------+-------------+-------------+---+
|             | **Def |          | **   |             |             |   |
|             | erred |          | Faci |             |             |   |
|             | Proje |          | lity |             |             |   |
|             | cts** |          | Inv  |             |             |   |
|             |       |          | ento |             |             |   |
|             |       |          | ry** |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| **          | **\#  | **DM     | **\# | **Current   | **FCI**     |   |
| Maintenance | Proje | cost     | Asse | Replacement |             |   |
| Category    | cts** | (\       | ts** | Value       | *           |   |
| (NWRS       |       | $000s)** |      | (\$000s)**  | *1-(DM/CRV) |   |
| Strategic   |       |          |      |             | \* 100**    |   |
| Plan)**     |       |          |      |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Conserv     | 1,587 | 264,206  | 11   | 4,369,651   | 94          |   |
| ation/Water |       |          | ,973 |             |             |   |
| Management  |       |          |      |             |             |   |
| Facilities  |       |          |      |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Histor      | 57    | 13,956   | 297  | 102,363     | 86          |   |
| ic/Heritage |       |          |      |             |             |   |
| Facilities  |       |          |      |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Visitor     | 427   | 23,638   | 3    | 270,695     | 92          |   |
| Facilities  |       |          | ,151 |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Buildings   | 1,461 | 196,328  | 5    | 1,692,761   | 88          |   |
|             |       |          | ,926 |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Public      | 2,049 | 624,990  | 6    | 5,098,547   | 88          |   |
| Roads,      |       |          | ,513 |             |             |   |
| Bridges,    |       |          |      |             |             |   |
| Parking     |       |          |      |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Adm         | 785   | 172,549  | 3    | 3,592,887   | 96          |   |
| inistrative |       |          | ,060 |             |             |   |
| Roads,      |       |          |      |             |             |   |
| Bridges,    |       |          |      |             |             |   |
| Parking     |       |          |      |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| Other       | 1,010 | 80,315   | 9    | 839,360     | 91          |   |
| Structures  |       |          | ,244 |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+
| **TOTAL**   | **7,  | **\$1,3  | **   | **\$1       | **92**      |   |
|             | 376** | 75,981** | 40,1 | 5,966,263** |             |   |
|             |       |          | 64** |             |             |   |
+-------------+-------+----------+------+-------------+-------------+---+

The percentage of projects on each asset type in the deferred
maintenance five-year plan is a good indicator of the commitment to
meeting strategic plan goals. The Service is investing in asset types
that directly affect our mission outcome and our strategic plan goals.

  -------------------------------------- ------- --------- ---------- --------
  Number of projects in 5 year deferred                               
  maintenance plan by asset type use                                  

  Asset                                  Type    Average   Number     \% of
                                         use     API       projects   plan

  Water management facilities            4016    93.18     354        25.52%

  Kiosks, observation towers,            4080    73.98     313        22.57%
  boardwalks, campgrounds, trails,                                    
  fencing.                                                            

  Roads                                  4076    74.26     176        12.69%

  Housing                                3530    54.21     104        7.50%

  Storage buildings                      3541    52.18     103        7.43%

  Utilities                              4071    75.68     77         5.55%

  Shops                                  3560    71.75     45         3.24%

  Office space                           3510    74.62     43         3.10%

  Parking                                4066    61.9      41         2.96%

  Other buildings                        3580    50.34     35         2.52%

  Docks                                  4013    63.22     32         2.31%

  Visitor centers/contact stations       3529    64.96     18         1.30%

  Storage                                4040    69.61     14         1.01%
  -------------------------------------- ------- --------- ---------- --------

**Asset Inventory, Prioritization,Valuation and Condition.**

The most important asset classes (based on API) for the NWRS are listed
in the table below in order of asset priority.

+-------------------------+-------+-------+--------------+-----------+
| Asset Group             | Num   | Av    | Total CRV    | Average   |
|                         | A     | erage | (\$)         | Condition |
|                         | ssets | API   |              | Index     |
|                         |       |       |              |           |
|                         |       |       |              | 100= Good |
|                         |       |       |              |           |
|                         |       |       |              | 0=Bad     |
+-------------------------+-------+-------+--------------+-----------+
| Fish Ladders/screens    | 43    | 95    | 8,231,064    | 86        |
+-------------------------+-------+-------+--------------+-----------+
| Water Mgmt Facilities   | 1     | 93    | 4            | 93        |
|                         | 1,494 |       | ,225,414,929 |           |
+-------------------------+-------+-------+--------------+-----------+
| Trails, signs, fencing, | 7,622 | 75    | 809,910,306  | 91        |
| boardwalks/ observation |       |       |              |           |
| towers, campgrounds     |       |       |              |           |
+-------------------------+-------+-------+--------------+-----------+
| Roads                   | 5,833 | 75    | 8            | 89        |
|                         |       |       | ,326,799,716 |           |
+-------------------------+-------+-------+--------------+-----------+
| Office Buildings        | 369   | 75    | 233,291,635  | 83        |
+-------------------------+-------+-------+--------------+-----------+
| Shops                   | 368   | 73    | 194,742,683  | 82        |
+-------------------------+-------+-------+--------------+-----------+
| Telecommunications      | 227   | 70    | 9,682,831    | 97        |
| towers                  |       |       |              |           |
+-------------------------+-------+-------+--------------+-----------+
| Fuel/water/grain        | 975   | 69    | 71,512,976   | 95        |
| storage                 |       |       |              |           |
+-------------------------+-------+-------+--------------+-----------+
| Env Ed Centers          | 40    | 69    | 49,705,932   | 88        |
+-------------------------+-------+-------+--------------+-----------+
| Comm Buildings          | 29    | 65    | 3,316,458    | 90        |
+-------------------------+-------+-------+--------------+-----------+
| Visitor Centers         | 138   | 64    | 211,838,032  | 83        |
| /Contact stations       |       |       |              |           |
+-------------------------+-------+-------+--------------+-----------+

**Annual O&M Costs of Assets**

Annual O&M costs by asset class are listed below. For the Refuge System,
largest O&M costs are related to four categories of assets: 1) those
that preserve, create or allow management of habitat, 2) those that
provide access for management or visitation purposes, 3) recreation
assets, and 4) office buildings. Costs indicated below are constrained
by existing budgets and may not represent operation at full capacity.

  ---------------------------- ----------- -------------------- ----------------
  **Type use**                 **count**   **Sum CRV**          **Sum OM costs**

  Water Management             11494       \$4,225,414,928.86   \$9,636,066.81

  Roads                        5833        \$8,326,799,715.86   \$7,690,769.04

  Trails, signs, fencing,      7622        \$809,910,306.44     \$7,667,294.62
  boardwalks/ observation                                       
  towers, campgrounds                                           

  Office Buildings             369         \$233,291,634.55     \$6,253,788.04

  Visitor Center/ Contact      138         \$211,838,032.05     \$4,553,817.30
  stations                                                      

  Utility Systems/wells        2845        \$279,176,115.69     \$3,864,406.39

  Single Family Housing        1018        \$250,708,469.00     \$3,634,203.68

  Storage buildings            2549        \$414,713,156.90     \$2,777,313.70

  Shop buildings               368         \$194,742,682.47     \$2,668,369.42

  Parking                      3763        \$393,227,840.00     \$2,432,375.91

  Housing-barracks/dorms       137         \$95,828,626.91      \$1,399,689.81
  ---------------------------- ----------- -------------------- ----------------

**Asset Management Budgets**

The Refuge System budget for FY 2006 that is applied to operation and
maintenance of facility assets is described in the table below:

  ------------------ ---------------------------------- ------------------
  Budget             FY 06 Amount (\$000s)              \% of portfolio
                                                        CRV

  Annual O&M\*       51,088                             0.3%

  Deferred           44,146                             0.3%
  Maintenance                                           
  Projects                                              

  Transportation     29,000                             0.2%
  Funds                                                 

  Construction       8,169                              0.1%
  Projects                                              

  Total              132,403                            0.9%
  ------------------ ---------------------------------- ------------------

\* Based on 60% of wage grade workforce plus \$22.986 million for annual
maintenance

The NWRS has a line item in its budget called Visitor Facility
Enhancements (VFE). The purpose of this appropriation is to direct funds
to projects which result in maintenance or construction of assets which
directly serve visitors engaged in Wildlife Dependent Recreation on
NWR's. The current funding is \$1.0 million; however, this funding is
proposed to be discontinued in FY 2007.

Visitation for wildlife dependent recreation is a significant driver for
asset O&M needs and costs.

[Year]{.underline} [Total Visitation]{.underline}

2000 36,510,587

2001 37,355,968

2002 37,723,491

2003 39,580,020

2004 39,847,108

2005 37,591,435

![](media/image3.wmf)

# 12. Asset Management at the National Conservation Training Center.

The National Conservation Training Center (NCTC) is government owned by
the U.S. Fish and Wildlife Service, located along the Potomac River near
Shepherdstown, West Virginia. The property was purchased in 1992 and
constructions build-out completed in 1997.

This 532.56 acre, 17 building site (51 real properties) has a total of
433,792 sq. ft. and one of Interior's best examples of "green" building
construction.

The aesthetic building design fits the scale and character of the
adjacent historic farm. The project met a number of other siting goals
such as: maximum energy efficiency, increased biodiversity on the site;
new meadows; enhanced woodlands (and no net loss of trees); reinforced
hedgerows; preserved view corridors, and demonstration farming. The
Center uses passive solar energy design, the lowest life-cycle
Heating/Ventilation/Air Conditioning system with no chlorofluorocarbons,
energy-efficient lighting, "super insulation", use of recycled materials
selected for sustainability, and use of materials that would result in
no indoor air quality problems.

Archeological surveys and studies protected cultural resources
(prehistoric artifacts, Native American encampments, homestead sites
from the 18^th^ and 19^th^ centuries, and two cemeteries were found).
The popular facility is actively used and has already earned a
reputation of providing qualify education to a variety of government,
business and conservation professionals from over 80 other organizations
from a dozen countries. Though it is not FWS's largest holding, it is
unique in that it is the Service's first facility dedicated to training.

The NCTC's mission is to conserve fish, wildlife, plants, and their
habitats through leadership in: training and developing USFWS employees
and the broader conservation community; enhancing education and outreach
to engage the public as partners in conservation; fostering
collaboration among diverse interests, and preserving and sharing the
history of the USFWS and the American conservation legacy.

The NCTC employs approximately 125 Federal employees and 100 contractors
to manage the variety of External Affairs program needs such as
conservation training, leadership programs, public education and
outreach, photography and video production, satellite and other distance
learning systems, National historian and curator heritage team,
scientific integrity and research library programs, and the plethora of
facilities operations and maintenance functions to manage the grounds,
buildings, guests, and program goals. Although the NCTC program is
established organizationally as a field station and contained within one
site specific location, staff continually play a vital National and
Departmental role in efforts such as human capital planning or
e-government solutions.

The NCTC's four lodge buildings can occupy up to 226 guests per night.
The annual average guest nights are 35,000. The majority of usage is on
weekdays, but the center is also open on some weekends. The primary
occupants are U.S. Fish and Wildlife Service, Department of Interior and
DOI bureaus, non-government conservation agencies, and other government
agencies. The following graph depicts the occupancy breakout.

![](media/image4.wmf){width="4.6715277777777775in"
height="2.7993055555555557in"}

To manage the uniqueness of the NCTC program, coordination of the annual
budget justifications and submittals are line itemed independently from
other Service programs. Until 2001, NCTC did not receive separate
maintenance funding. Coupled with inflation, the annual maintenance
costs are rising as the center ages and the annual maintenance funding
received since 2001 has been a necessity to manage growing corrective
repair requirements. The appropriations language also allows for a
receipts account to collect conference, room and board, tuition, and
video production fees from non-FWS customers where in turn the receipt
proceeds help supplement the annual maintenance and capital improvement
outlay requirements. This receipts account is a best business practice
of how government entities can help offset their own operating and
maintenance expenses and the collected fees have been a vital part of
NCTC's ability to meet their increasing cost demands.

The Service manages real property assets by categorizing first by
program, then region, and finally by field station location. The NCTC is
unique in this as they are a separate program and only one location.
There is not a requirement to compare or manage across multiple regions
and locations for example, on all roads, buildings of historical
significance, or deferred maintenance listings. NCTC's maintenance
funding is designated to cover the comprehensive list of all buildings,
grounds, and structures. The priorities for funding certain maintenance
projects are established collectively by the NCTC Chief Facility
Engineer and directorate.

Maintenance projects are prioritized by

> 1\) safety and urgency (i.e. active flooding of entire floor of a
> building, site wide power outage),
>
> 2\) mission aligned cost and labor covered within existing maintenance
> contract (carpentry, HVAC, boilers, waste water),
>
> 3\) total damage scope and costs increased if repair delayed (mortar
> crumbling in outside stairs, asphalt)
>
> 4\) funding availability and mission priorities (instructional
> buildings, waste water/water treatment plant, central plant)

The majority of maintenance tasks are completed by the onsite Operations
and Maintenance contractor as repairs are needed or at least within the
given year funded. However, as years move forward, NCTC is experiencing
both an increase in the cost to repair as well as the increased amount
of repairs required to maintain the current state of the facility. Work
orders are gradually increasing with the age of the facility.

The Operations and Maintenance contractor cost was 1.5 million dollars
in fiscal year 2005. With this they employ 22 staff members comprised of
project manager, engineer, maintenance scheduler, general maintenance
workers, electrician, plumber, carpenter, materials handler/specialist,
and HVAC technicians to manage the majority of corrective, emergency,
and preventative maintenance projects of the facility. NCTC has
self-sustaining capabilities such as generator backup, commons cafeteria
with kitchen and several days of food supply, onsite lodging guest
rooms, wells, waste water and water treatment plants. In these regards,
NCTC is deemed its own community. Maintenance and security personnel are
on duty 24 hours a day and every day of the year.

Future O&M costs are derived from two sources. One is the statistical
data that can be pulled from the actual Maximo database and the second
is the overall maintenance percentage levels against individual asset
replacement value. The actual database lists all the real property
assets, motor vehicles, and corresponding equipment such as VAV's,
elevators, pumps, and boilers. Each of the assets and equipment has
their associated preventive maintenance requirements linked in the
database. It's under the O&M contractor's responsibility to identify the
complete replacement of asset components, equipment inspection and
licensing, or the resulting end of the components life cycle each
contract year.

The NCTC O&M contractor has been running Maximo since 1998 where the
maintenance scheduler inputs, manages, and assigns work orders to the
O&M staff, the warehouse specialist manages the large warehouse supply
store room and purchase orders, and the project manager and engineer
manage the overall labor costs and governmental reporting requirements.

The following table is a synopsis of NCTC's real property assets. The
FY05 maintenance costs column totaling \$576,410 is based upon 13,667
actual work orders from FY05. This excludes operating, grounds keeping,
capital improvement, construction, utility, inspections, overhead, and
project management, etc. costs.

  ---- ---------------- --------- ------------- ------ -------- -------- ------------- -----------
       Asset            Acquire   Acquired Cost Type   Size     Unit     Curr Repl     FY05 Maint
                        Date                                             Value         Costs

  1    Commons Dining   1997      10,340,750    35     38,000   Sq. Ft.  13,190,865    73,353

  2    Central Plant    1997      12,104,622    40     4,746    Sq. Ft.  13,644,845    45,303

  3    Daycare          1997      2,157,333     35     3,958    Sq. Ft.  4,251,977     5,000

  4    Entry Auditorium 1997      10,196,722    35     32,223   Sq. Ft.  8,521,577     32,262

  5    Aldo Leopold     1997      7,349,020     35     30,547   Sq. Ft.  9,251,992     37,959
       Lodge                                                                           

  6    Rachel Carson    1997      7,265,330     35     29,000   Sq. Ft.  8,962,868     39,681
       Lodge                                                                           

  7    Ding Darling     1999      5,964,005     35     29,000   Sq. Ft.  6,906,000     42,089
       Lodge                                                                           

  8    Murie Lodge      2003      10,151,059    35     34,461   Sq. Ft.  10,600,732    22,801

  9    Instructional    1997      12,978,090    35     60,573   Sq. Ft.  7,629,766     41,499
       East                                                                            

  10   Instructional    1997      12,035,669    35     48,095   Sq. Ft.  8,181,857     33,628
       West                                                                            

  11   Training         1997      10,595,234    35     38,490   Sq. Ft.  5,534,786     30,450
       Laboratories                                                                    

  12   Education        1997      5,179,653     35     9,066    Sq. Ft.  2,891,248     12,011
       Outreach                                                                        

  13   Physical         1997      3,124,974     35     20,963   Sq. Ft.  3,369,000     13,697
       Training                                                                        

  14   Material         1997      5,316,073     35     24,183   Sq. Ft.  5,204,245     20,801
       Production                                                                      

  15   Support Services 1997      5,369,042     35     22,998   Sq. Ft.  16,176,959    34,218

  16   Water Treatment  1997      1,686,558     40     4,355    Sq. Ft.  1,734,748     13,695

  17   Waste Water      1997      2,406,421     40     1,640    Sq. Ft.  694,724       51,331

                                                                                       

  18   Guard Station    1999      70,130        35     80       Sq. Ft.  92,080        4,051

  19   Guard House 3    CWIP      0             35              Sq. Ft.  0             0

  20   Recycle Shed     1997      304,534       35     3,096    Sq. Ft.  941,694       100

  21   Barn (located on 1992                    35     2,000    Sq. Ft.  28,775        104
       property at time                                                                
       of purchase)                                                                    

  22   Hazardous        2000      13,135        35     63       Sq. Ft.  14,727        100
       Materials                                                                       
       Storage Building                                                                

  23   Underground      1997      1,296,593     40     1        Ea       575,500       2,864
       Tunnel                                                                          

  24   Memorial Court   2000      49,250        40     1        Numb     55,219        2,815
       Yard                                                                            

  25   Fuel Depot       1999      44,834        40     1        Ea       51,604        100

  26   Boat Ramp        1997      52,781        40     1        Ea       78,268        100

                                                                                       

  27   Entry Gate       1997      22,410        40     2        Ea       24,171        5,382

  28   Site Trail       1997      371,825       40     26,400   Length   270,485       4,116

  29   Wire Perimeter   1997      113,809       40     13500    Ln. Ft.  172,650       100
       Fence                                                                           

  30   Pedestrian       1997      700,434       40     330      Ln .Ft.  287,750       200
       Bridge                                                                          

                                                                                       

  31   Entry Road       1993      438,610       40     .26      Ln. Mi.  258,975       343

  32   Campus Road      1997      630,556       40     .83      Ln Mi    969,035       343

  33   Water Treatment  1997      293,595       40     .68      Ln Mi    195,670       343
       Access Road                                                                     

  34   Red Parking Lot  1997      52,181        40     21,750   Sq. Ft.  103,590       896

  35   Blue Parking Lot 1997      82,770        40     34,500   Sq. Ft.  115,100       996

  36   Green Parking    1997      32,029        40     13,350   Sq. Ft.  69,060        598
       Lot                                                                             

  37   Orange Parking   1997      64,013        40     25,200   Sq. Ft.  103,590       896
       Lot                                                                             

  38   Visitor Parking  1997      33,558        40     3,800    Sq. Ft.  23,020        199
       Lot                                                                             

  39   Yellow Parking   2000      59300         40     23,868   Sq. Ft.  66,487        575
       Lot                                                                             

  40   PT Parking Lot   CWIP      0             40     3,690    Sq. Ft.  0             0

  41   Blue Parking Lot 2002      87,344        40     6500     Sq. Ft.  93,703        811
       Extension                                                                       

                                                                                       

  42   225,000 Gallon   1997      470,941       40     1        Ea       402,850       100
       Water Storage                                                                   
       Tank                                                                            

  43   Well No. 1       1997      131,096       40     1        Ea       115,110       100
       (100gal-min)                                                                    

  44   Well No. 3a      1998      86,325        40     2        Ea       86,325        100
       (100gal-min)                                                                    

  45   Reed Bed         1997      191,675       40     1        Ea       172,650       0

  46   PT Storm Water   1997      189,114       40     1        Ea       207,180       0
       Management Pond                                                                 

  47   DEO Storm Water  1997      273,277       40     1        Ea       230,200       0
       Management Pond                                                                 

  48   Aldo Storm Water 1997      277,026       40     1        Ea       184,160       300
       Management Pond                                                                 

  49   SS Storm Water   1997      116,583       40     1        Ea       138,132       0
       Management Pond                                                                 

  50   Supplemental     1997      10,356        40     1        Ea       10,356        0
       Domestic Water                                                                  
       Supply (out of                                                                  
       service)                                                                        

  51   Waterline to     CWIP      0             40     450      Ln. Ft.  0             0
       Shepherdstown                                                                   

                                  130,780,639                            132,886,305   \$576,410
  ---- ---------------- --------- ------------- ------ -------- -------- ------------- -----------

**Assessing conditions and replacement values**

The NCTC has both full time Federal and Contractor Engineering staff. In
this regard, inventorying, valuing, and condition assessments are done
on a continual basis. This differs from the many FWS field stations
where a Field Maintenance employee coordinates with the Regional
Engineering Assessor for a designated site visit to review and compile
the field stations assets. Similarly though, NCTC still reports into the
Service Asset Maintenance Management System single annual or
comprehensive condition assessments records.

Due to the design of the facility, original construction quality, age of
materials, and weather wear and tear, the NCTC experiences both some
longevity of facility components and some trouble areas that require
ongoing maintenance. One example of the longevity offerings is the metal
roofs and the metal and brick siding on all the buildings. The materials
selected in this design not only blend well with the Appalachian
surroundings, but will last for decades to come. However, an example on
the difficult maintenance side is that the facility has a large amount
of sidewalks and adjacent steps that are large stone slates. This uneven
slate is very appealing, but it's also difficult to shovel and remove
ice and snow. Also, the mortar needs constant patching and replacing due
to winter frost heaves and the thin under lament installed during
original construction. Under these high maintenance circumstances, the
NCTC looks at a viable corrective solution to minimize the recurring
corrective requirements. For example, in the slate project, the NCTC
will remove the slate and pour a concrete foundation and then place the
slate back on top to prevent recurring frost heaves and extend the
life-cycle of the slate to its original intent. Although the majority of
materials and craftsmanship during original construction are superior,
the NCTC has been going through a plethora of corrective projects to
provide a more reliable and sustainable facility.

**Utility and Other Costs**

Since the fall of 2005, the NCTC has the capability to track electrical
usage per building asset individually. Prior to this time, electrical
usage was tracked in one lump sum monthly. Other utility costs are still
tracked in one total amount. The electrical, building fuel and waste
utility costs are spread across assets 1 through 17 above and listed
below based upon a three year average from fiscal year 2003-2005. In
conclusion, since NCTC is a heavy public access facility they have
contracted security officers.

Electricity \$363,667

Building Fuel \$309,021

Waste \$24,029

Grounds Keeping \$238,000 (includes snow removal)

Security \$428,330

# 13. Asset Management in the National Fish Hatchery System

The Service's Fisheries Program has played a vital role in conserving
America's fishery resources for over 130 years, and today is a key
partner with States, Tribes, Federal agencies, other Service programs,
and private interests in a larger effort to conserve fish and other
aquatic resources. The Fisheries Program's National Fish Hatchery System
(NFHS) is an essential component of this conservation effort.
Established in 1871 by Congress through the creation of an U.S.
Commissioner of Fish and Fisheries, the National Fish Hatchery System's
original purpose was to provide additional domestic food fish to replace
declining native fish. Cultured fish were used to replace fish lost from
natural (drought, flood, habitat destruction) and/or human
(over-harvest, pollution, habitat loss due to development and dam
construction) influences, to establish fish populations to meet specific
management needs, and to provide for the creation of new and expanded
recreational fisheries opportunities.

The role of the NFHS has changed and diversified greatly over the past
30 years as increasing demands are placed upon aquatic systems. In
recent years, the Service has maximized the output of its work force by
integrating the work of fish hatcheries and fisheries management. This
integrated effort has resulted in cohesive, more efficient national
restoration programs, such as those for Great Lakes lake trout, Atlantic
Coast striped bass, Atlantic salmon, and Pacific salmon. The NFHS
consists of 69 National Fish Hatcheries, 7 Technology Centers, 9 Fish
Health Centers, 1 Historic National Fish Hatchery and 43 Associated Fish
Facilities.

The primary function of National Fish Hatcheries is to propagate aquatic
species to fulfill objectives of restoration and recovery plans and
fishery management plans. This could include stocking propagated animals
in water bodies or providing on-site refugia to preserve an imperiled
species or to protect species until more favorable environmental
conditions exist. Fish Technology Centers provide science and technology
support and guidance to the National Fish Hatchery System and fish
culture community. With a focus of applied science toward problem
solving and developing new methods, Fish Technology Centers provide
leadership in science and technology, especially for restoration and
recovery of native species, such as genetics, nutrition and physiology,
biostatistics, fish culture technology, and more. Fish Health Centers
provide fish health diagnosis and associated aquatic species health
management guidance to the NFHS and the aquaculture community as a
whole. FHCs are also involved in the National Wild Fish Health Survey,
aimed at understanding the distribution of certain pathogens in fish in
the wild. The NFHS's Aquatic Animal Drug Approval Partnership Program
works to obtain U.S. Food and Drug Administration (FDA) approval for
drugs, chemicals, and therapeutants needed in aquaculture and fisheries
management programs.

The NFHS's Associated Fish Facilities are Service owned fish hatcheries
which are operated and maintained by non-federal entities under
Memorandums of Understanding (MOU) or Memorandums of Agreement (MOA).
Several of these facilities are previously operated fish hatcheries
under the NFHS that have been placed under state operation and
maintenance as part of reduced appropriations. However, the majority of
these facilities are associated with the Lower Snake River Compensation
Plan (LSRCP). The LSRCP fish hatcheries were constructed by the U.S.
Army Corps of Engineers and transferred to the Service with the sole
intent of these facilities to be operated and maintained by states in
the Pacific Northwest through funding from the LSRCP -- a reimbursable
program.

**Goals of the National Fish Hatchery System**

The NFHS is intimately involved in the conservation and protection of
aquatic species throughout the United States. The components of the NFHS
and the Fish and Wildlife Management Assistance Program work
collaboratively to meet the objectives defined in restoration and
recovery plans for imperiled aquatic species and fishery management
plans. The NFHS, working closely with stakeholders and partners, applies
a complement of habitat restoration and resource management strategies
to maintain healthy ecosystems that support healthy fisheries. These
strategies are focused on achieving the following goals:

-   Recover aquatic species listed under the Endangered Species Act

-   Restore native aquatic populations

-   Mitigate the adverse impacts of Federal water development projects

-   Provide fish to benefit Tribes and National Wildlife Refuges

-   Providing recreational opportunities in Partnership with state
    agencies and others.

**Description of NFHS land holdings and their impact on facility
management**

The NFHS is comprised of nearly 22,000 acres of lands and waters, of
which 4,000 are administered through agreements, easements and/or
leases. The NFHS has land holdings in 34 states that are widely
dispersed geographically. Field stations are scattered throughout the
continental U.S. Facilities within the NFHS are generally limited to
providing area for captive propagation of species and securing a
dependable water source. To a lesser degree than the NWRS, lands are
devoted to conservation of fish, wildlife, and plants and generally are
environmentally sensitive. Fish and wildlife dependent public recreation
opportunities exist within field station boundaries; however, lands are
generally not managed for such uses as waterfowl management, feed plots,
or otherwise providing vast acres of fish and wildlife habitat.

Land holdings associated with field stations actively operated and
maintained through NFHS appropriations have generally declined over the
last 10-15 years. This decrease coincides with the conveyance of fish
hatcheries to states. Within the last ten years, two NFH's have been
added to the NFHS -- Ouray NFH and Livingston Stone NFH. As part of the
Lower Snake River Compensation Plan (LRSCP) , several field stations
have been added to the NFHS, resulting in a minimal in increase in land
acres for the NFHS. These field stations are not operated and maintained
through Service appropriations. It is anticipated that several
additional LSRCP associated land holdings will be transferred to the
NFHS from the U.S. Army Corps of Engineers in the next five years.
Outside the LSRCP, minimal continued land acquisition is expected,
except to further secure water rights through easements and leases and
to secure land to obtain and/or protect high water quality and disease
free water sources that will enable the NFHS to fulfill its goals.

**Organization Structure**

**National *-- ***Deputy Director Marshall Jones is the Senior Real
Property Officer for the Service. The Assistant Director for Fisheries
and Habitat Conservation has the overall lead for coordinating asset
management activities and overall responsibility for managing the NFHS's
asset portfolios. Two staff at the central headquarters office
coordinates the preparation of all planning, budgeting, and reporting
materials, and co-manages the Service Asset and Maintenance Management
System (SAMMS), the Fish and Wildlife Service's application of the
commercial maintenance management software, MAXIMO^TM^. SAMMS is an
adapted asset maintenance management system targeting a complete
documentation of annual and deferred maintenance and construction needs
and accomplishments for real property and maintenance and replacement
needs of mobile equipment. The Fisheries Program's Fish and Wildlife
Management Assistance Office is also utilizing SAMMS to document mobile
equipment maintenance and replacement needs and accomplishments. One of
these two individuals is also a regional Facilities and Maintenance
Coordinator (FMC). Work is carried out in coordination with the National
Wildlife Refuge System, Engineering, Contracting, and other Service
organizations to assure consistency in approach.

**Regional *-- ***Each of the six Regional offices has a FMC, who is
responsible for overall facility and equipment management efforts,
including completion of comprehensive condition assessments of facility
assets greater than \$50,000 in value, and for all critical water
management assets. Other responsibilities include the procurement,
management, and completion of contracts for construction and maintenance
projects. Their responsibilities start with the 5-Year Planning process
for both Construction and Deferred Maintenance through MAXIMO/SAMMS and
continue on through tracking of project completion and accomplishment
reporting. Budget tracking is part of their process. Knowledge of
several processes in budgeting, Federal Acquisition regulations (FAR),
and engineering/construction are required of these staff. Other
responsibilities such as heavy equipment coordination and transportation
planning and implementation are carried out by the Fisheries Program's
FMC, working closely with coordinators in the NWRS that have these
responsibilities as their core function.

**Field Stations *-- ***Fisheries field stations are widely dispersed
geographically and minimally staffed. All 129 field units (69
Hatcheries, 7 Fish Technology Centers, 9 Fish Health Centers (FHC's), 1
Historic National Fish Hatchery and 43 Associated Fish Facilities)
contain facility assets that require maintenance and all have the need
for vehicles or other mobile equipment to effectively manage the
facilities and critical water management assets. Several components of
the NFHS are collocated, reducing facility maintenance needs.
Additionally, most of the FHCs are located in lease space. All
facilities have mobile equipment maintenance and replacement needs. The
NFHS facility assets have a valued of \$1.47 billion and mobile
equipment assets valued at \$36 million for a combined facility and
equipment infrastructure value of \$1.51 billion.

Within the overall NFHS workforce, there are 106 FTEs physically located
on field stations whose primary responsibility is to maintain facility
and equipment assets. The table below indicates the size of maintenance
staffs (expressed as FTEs) at field stations in FY 2006. A total of 36%
of NFHS field stations have no maintenance staff. At these locations, a
program manager biological technician or biologist normally assumes
maintenance duties as a collateral duty. A total of 48% of field
stations have 1 or 2 maintenance FTEs and only 15% of field stations
have 3 or more maintenance FTEs. FHCs do not have FTEs designated for
maintenance activities; however, employees at these field stations
perform mobile equipment maintenance and may perform building
maintenance, particularly for those FHCs that are collocated.

  --------------------------------- ------------------- ------------------
  **NFHS Field Stations with ....** **No. Field         **Percent of
                                    Stations**          Stations**

  5 to 8 maintenance FTEs           3                   3%

  3 to 4 maintenance FTEs           11                  13%

  2 FTEs                            13                  15%

  1 FTE                             28                  33%

  0 FTEs^1^                         31                  36%

  **Total**                         **86**              **100%**
  --------------------------------- ------------------- ------------------

^1^Eleven of the field stations with 0 FTEs are collocated with NFHs or
FTCs.

Note: Associated Fish Facilities were omitted from this analysis as no
Service personnel work on these field stations.

Due to limited staff, Fisheries field station personnel are often
generalists that perform multiple functions. Responsibilities of
maintenance staff vary considerably from location to location and
usually include some level of program functions that are not related to
maintenance. Additionally, activities on NFHS field stations are highly
seasonable. Thus, there are periods where all field station staff will
be largely devoted to aquatic species propagation activities.

**Program Management**

NFHS Strategic plan goals and metrics provide a tool to evaluate the
performance for accomplishing various goals. While understanding the
condition and priority of assets within the NFHS is important, it is
more critical to appreciate and link the success of operational goals
and metrics to those linked to physical assets. Meeting aquatic species
production targets defined in recovery plans is directly attributable to
the condition of the assets needed to propagate these species. Faulty or
unserviceable assets required for culture or refugia limit or prevent
the ability to produce healthy aquatic organisms and potentially
producing any organisms. Abrupt and/or slight changes in environmental
conditions or water loss can negate spawning and culture efforts. The
operational performance measures of the NFHS that relate to on-station
production and refugia efforts hinge on the condition and functionality
of mission critical water management assets at the field station. The
metrics listed below help determine whether investments are being made
in assets which serve the mission of the NFHS, as well as its visiting
public.

The condition of critical water management assets, as measured by the
FCI.

The condition of cultural and natural heritage facilities as measured by
the FCI

The condition of public use assets as measured by the FCI

The condition of direct support assets as measured by the FCI

Completion of comprehensive condition assessments

The number of NFHS field stations meeting NPDES permits

Status of NFHS Facility Assets (Sept. 30, 2005)

  ------------------------- --------------- ----------- ----------------- -----------------
  **Maintenance Category**  **Deferred      **\#        **CRV**           **Condition
                            Maintenance**   Assets**                      Index**

  **(NFHS Strategic Plan)** **(\$000s)**                **(\$000s)**      **1-
                                                                          (DM/CRV)\*100**

  Mission Critical Water    \$181,832       2,836       \$995,795         82
  Management Assets                                                       

  Direct Support Assets     \$47,394        1,780       \$301.162         84

  Public Use Assets         \$8,956         446         \$53,937          83

  **TOTAL**                                 **5,062**   **\$1,350,895**   **83**
  ------------------------- --------------- ----------- ----------------- -----------------

The percentage of projects for each asset type in the deferred
maintenance five-year plan is an indicator of the NFHS's commitment to
the strategic plan goals. The Service is investing in asset types that
directly affect our mission outcome and our strategic plan goals.

  ------------------------- ------------- ---------------- ----------------
  **Asset**                 **TypeUse**   **Number of      **% of plan
                                          Projects**       2007-2011**

  Industrial Non-Buildings  4060          92               25.41
  (Fish Production Assets)                                 

  Industrial Buildings      3550          69               19.06
  (Fish Production                                         
  Buildings)                                               

  Utility Systems           4071          64               17.69

  Water Mgmt Facilities     4016          18               4.97

  Roads                     4076          17               4.70

  Storage Buildings         3541          11               3.04

  Parking                   4066          9                2.49

  Other Buildings           3580          8                2.21

  Other non-buildings       4080          8                2.21

  Housing                   3530          7                1.93

  Office Space              3510          6                1.66

  Service Buildings         3560          6                1.66

  Research and Development  3574          5                1.38
  Bldgs                                                    

  Storage Non-buildings     4040          4                1.10

  Communication Systems     4072          2                0.55

  Docks                     4013          1                .28

  National Projects                       20               5.52

  Mobile Equipment                        8                2.21

  Capital Improvement                     7                1.93
  Projects                                                 

                                          362              100.00
  ------------------------- ------------- ---------------- ----------------

**Asset Inventory, Prioritization, Valuation and Condition**

The most important asset classes (based on API) for the NFHS are listed
in the table below in order of asset priority.

+---------------------+----------+----------+------------+------------+
| **Asset Group**     | **Num    | *        | **Total    | **Average  |
|                     | Assets** | *Average | CRV (\$)** | FCI**      |
|                     |          | API**    |            |            |
|                     |          |          |            | **100=     |
|                     |          |          |            | Good**     |
|                     |          |          |            |            |
|                     |          |          |            | **0=Bad**  |
+---------------------+----------+----------+------------+------------+
| Fish Production     | 206      | 93       | 2          | 84         |
| Buildings           |          |          | 31,838,937 |            |
+---------------------+----------+----------+------------+------------+
| Fish Production:    | 949      | 91       | 4          | 78         |
| Raceways, Ponds,    |          |          | 17,802,604 |            |
| Kettles, Ladders,   |          |          |            |            |
| Screens, Oxygen     |          |          |            |            |
| Systems             |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Water Control       | 290      | 91       | 70,048,467 | 93         |
| Structures and      |          |          |            |            |
| Pumping Stations    |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Dams: High          | 11       | 91       | 26,601,294 | 57         |
| Significant Hazard  |          |          |            |            |
| and Low Hazard      |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Power Generating    | 163      | 88       | 9,070,748  | 89         |
| and Distribution    |          |          |            |            |
| Facilities          |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Sewage Treatment    | 44       | 88       | 17,988,653 | 85         |
| Facility Plants     |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Water Distribution  | 521      | 86       | 1          | 91         |
| Systems             |          |          | 24,585,632 |            |
+---------------------+----------+----------+------------+------------+
| Water Treatment     | 127      | 84       | 65,436,868 | 92         |
| Facilities          |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Laboratory          | 27       | 84       | 26,626,660 | 87         |
| Buildings           |          |          |            |            |
+---------------------+----------+----------+------------+------------+
| Water Storage Tanks | 37       | 82       | 2,775,213  | 93         |
+---------------------+----------+----------+------------+------------+
| Wastewater          | 119      | 82       | 10,864,198 | 95         |
| Collection Systems  |          |          |            |            |
+---------------------+----------+----------+------------+------------+

**Annual O&M Costs of Assets**

**O&M costs for major asset types are listed below. For the NFHS, the
largest O&M costs are related to three categories of assets:**

Buildings -- largely associated with office buildings, fish production
buildings, and water management assets -- largely linked to utility
costs for pumping, distributing and treating water for production
purposes and repairs to aged, deteriorated water lines.

Costs indicated below are constrained by existing budgets and may not
represent operation at full capacity.

  ----------------------- ------------ ---------------- --------------------
  **Type use**            **Number**   **Sum of CRV**   **Sum of O&M Costs**

  Buildings               1234         \$437,259,111    \$5,208,959

  Fish Production         949          \$417,802,604    \$2,086,863

  Water Management        1,231        \$313,281,989    \$2,013,410

  Roads, Bridges, and     441          \$152,071,100    \$303,371
  Parking lots                                          

  Utility, Power          210          \$11,778,518     \$112,705
  Generating Systems, and                               
  HVAC Plants                                           

  Dams - Low and High     11           \$26,601,294     \$11,460
  Hazard                                                

  Culverts/Canals         47           \$7,160,479      \$52,102
  ----------------------- ------------ ---------------- --------------------

**Asset Management Budgets**

The NFHS budget for FY 2006 that is applied to operation and maintenance
of facility assets is described in the table below.

  ---------------------- ------------------------------ ------------------
  Activity               FY 06 Amount (\$000s)          \% of portfolio
                                                        CRV

  Annual Maintenance     7,175                          0.5%

  Deferred Maintenance   8,503                          0.6%

  Transportation Funds   000                            0%

  Construction           3,455                          0.2%
  Projects^1^                                           

  Total                  19,133                         1.3%
  ---------------------- ------------------------------ ------------------

^1^ Omitted \$2M appropriated for Fish Screens projects as this add-on
does not specifically target assets owned by the NFHS.

Note: the NFHS Equipment repair and replacement appropriation is -
\$1.302M

# 14. Fleet Asset Management Plan

**Asset Management Plan Decision Making Process for Assets:**

The Fleet Investment Review Board (FIRB) is comprised of the following
members of the Service Directorate - Assistant Directors for National
Wildlife Refuge System, Fisheries and Habitat Conservation, Budget,
Planning and Human Resources, Endangered Species, Law Enforcement,
Migratory Birds, and Business Management and Operations (ABMO). The FIRB
has the authority to recommend to the Deputy Director, as the Senior
Asset Manager, to approve/disapprove all requests for funding new
vehicle replacements and additions to the fleet, whether by purchase,
donation, or transfer between Regions or from other agencies. In
addition to the FIRB, existing management structures, policies and
processes will continue in place. Policies are amended to incorporate
criteria to ensure only the right number and types of vehicles are
purchased and leased.

Service management will obtain maximum utilization of its vehicles and
meets executive and departmental policies, including budgetary
cost-containment initiatives. This Plan also contains procedures to
comply with public law and to identify industry practices that best
serve Regional and field offices in improving the overall effectiveness
of the Service fleet management program.

The Deputy Director, as the Service's Senior Asset Management Official,
is responsible for managing the Service fleet to attain established
goals.

The FIRB establishes goals, reviews and approves all requests for
funding for vehicle replacements, and additions to the fleet whether by
purchase, donation, or transfer from other agencies. The FIRB also
reviews requests to transfer vehicles among Regions and recommends
appropriate actions to the Deputy Director. The FIRB recommends to the
Deputy Director strategic policies and processes necessary to support
effective management of the Service fleet. Processes include planning,
investment, acquisition reporting, and analysis.

The Chief Financial Officer provides staff to support the FIRB in the
conduct of their business to include reports and status of inventories
and acquisitions. The Chief Financial Officer's staff coordinates and
attends regular FIRB meetings.

Regional Directors, as senior officials, manage their share of the motor
vehicle program to meet the objectives of this Plan.

Assistant Regional Directors for Budget and Administration provide
process guidance and support to the respective Regional Director and
Assistant Regional Directors, including the establishment of sufficient
controls to ensure the integrity of data collected on fleet operations.

Assistant Regional Directors (programs) and Field Managers ensures
adherence to Service policies, including critical, accurate inventories
of vehicles and reporting on vehicle utilization.

The FIRB Working Group is comprised of senior Service program staff, the
Chief, Division of Contracting and Facilities Management and the Chief,
Division of Budget (or designee), Refuge Staff, Regional Fleet Manager,
and others at the discretion of the FIRB.

The Fleet Asset Management Plan is in compliance with the Department's
Asset Management Plan, Fleet Management Strategic Plan, and the Asset
Management Scorecard. The Plan also embraces the principles contained in
Part 320 of the Service Manual, and Title 41 of the Code of Federal
Regulations.

**2. Asset Inventory, Condition and Valuation**.

**Fleet Data Summary:**

+---------------------------+----------+----------+----------+--------+
| Vehicle                   | Owned    | Leased   | Total    | A      |
|                           | Vehicles |          | Fleet    | verage |
| Type                      |          | Vehicles |          | Age    |
|                           |          |          |          |        |
|                           |          |          |          | (      |
|                           |          |          |          | years) |
+---------------------------+----------+----------+----------+--------+
| Sedans Station Wagons     | 209      | 92       | 301      | 5      |
+---------------------------+----------+----------+----------+--------+
| Ambulances                | 2        | 0        | 2        | 20     |
+---------------------------+----------+----------+----------+--------+
| Buses                     | 9        | 4        | 13       | 4      |
+---------------------------+----------+----------+----------+--------+
| Light Duty Trucks 4X2     | 876      | 70       | 946      | 6      |
+---------------------------+----------+----------+----------+--------+
| Light Duty Trucks 4X4     | 2989     | 211      | 3200     | 6      |
+---------------------------+----------+----------+----------+--------+
| Medium Duty Vehicles      | 1596     | 99       | 1695     | 20     |
+---------------------------+----------+----------+----------+--------+
| Heavy Duty Vehicles       | 1178     | 6        | 1184     | 20     |
+---------------------------+----------+----------+----------+--------+
| Total                     | 6859     | 482      | 7341     | 11.5   |
+---------------------------+----------+----------+----------+--------+

The Service motor vehicle fleet consists of standard passenger vehicles,
light, medium and heavy trucks. It includes firefighting, fish transfer
tanks, emergency response vehicles and other special purpose vehicles.
The estimated annual cost to operate and maintain the fleet is over \$5
million, and the annual fleet replacement budget exceeds \$15 million.
The Personal Property Management System (PPMS) is utilized semi-annually
to store fleet data. The Regions input fleet data into PPMS to
facilitate management decisions concerning the fleet. The Motor Vehicle
Fleet 5-Year Plan is a strategic initiative designed to enhance the
effectiveness and efficiency of the Service motor vehicle fleet program.

**The total inventory still needed and is it still relevant?**

Each motor vehicle in the Service's inventory aligns with strategic
objectives and managers only acquire the minimum number and size of
vehicles that accomplishes the mission in a safe and efficient manner.
The motor vehicle inventory is also certified annually by the FIRB to
ascertain the asset's relevancy. Each Region identifies vehicles
eligible for replacement based on the criteria specified in Appendix 2,
320 FW 2, Vehicle Replacement Standards.

Service policy in Appendix 3, 320 FW 2, Motor Vehicle Repair Table --
Single Job; and Appendix 2, 320 FW 2, Vehicle Replacement Standards is
used to determine the maximum repair and replacement target for vehicles
based on Service policies and the life-cycle costs of vehicles.

Assistant Regional Directors for Budget and Administration, in
coordination with Regional Program Assistant Regional Directors review
and analyze vehicle miles/hours driven and set program goals for the
replacement of vehicles that meet the Service's replacement criteria.
The WO CFM compares utilization rates to the annual goals established in
Service policy Part 320, Motor Vehicle Management, for each vehicle
type. The data is analyzed for consistency and to ensure goals are met
for each vehicle type assigned throughout the Service. Utilization rates
are provided to Regional Directors for their management.

Vehicle utilization rates that are below 66 percent of the yearly goals
are reported to the FIRB semi-annually. Regional Directors provide
justification for each vehicle found to be below expected use levels.

Each Region evaluates their need to maintain seasonal vehicles on a
year-round basis. Short-term replacements for these vehicles can be from
excess vehicles (when practical) from the Region, short-term rentals,
and temporary transferred vehicles from within the Region, when
economically feasible.

Each Region identifies vehicles eligible for replacement based on the
criteria specified in Appendix 2, 320 FW 2, Vehicle Replacement
Standards. Vehicles found to be too costly to maintain in the fleet are
placed on excess status and sold or transferred to another authorized
agency.

**3. Asset Prioritization.**

The FIRB will reduce the age of the vehicles in the fleet by using
replacement criteria listed in 320 FW 2, Appendix 2, and the Regional
Directors report their projected annual fleet needs to the FIRB. Vehicle
projection and data systems are updated to ensure that a projected
listing is prioritized with the vehicles each Region plans to replace.

The Deputy Director oversees a zero-growth moratorium, applicable to new
asset purchases and transfer of excess vehicles from other Federal
agencies. The Deputy Director enforces Service policy for future
approvals of Regional vehicle purchases, transfer of surplus vehicles,
and long-term leases with Regional GSA Fleet Centers. A Service-wide
vehicle ceiling is set by the Deputy Director. Any requests to exceed
ceilings must be supported by a verifiable mission change, and approved
by the Deputy Director.

The FIRB Working Group accomplished a Base-Line Study and evaluated the
required vehicles to assign to each field office. Data applicable to the
mission of each field office is analyzed to determine the number of
vehicles that should be assigned for the day-to-day mission requirements
at the site.

The Regional Offices evaluate the criteria submitted by the field
offices and forward their recommendations for assignment to the FIRB.
Regional program managers collect mission data from field offices on use
requirements and consolidate vehicle assignments when mission changes
occur.

Regions update vehicle data in the Personal Property Management System
semi-annually. The ABMO analyzes the types and quantities of vehicles in
the Regions, the utilization rates, and the overall age of the fleet.
Reports on the cost-per-mile for the general-purpose vehicles, vehicles
that are not meeting utilization requirements or other variations from
Service policy are provided to the Deputy Director and Regional
Directors within 30 days of the close of the quarter.

Vehicles used for law enforcement purposes, including pursuit vehicles,
are required to adhere to data collection and agency reporting
requirements. Exceptions may be granted by Service policy and Federal
Law.

**4. Total Cost of Bureau Asset Management**:

**Multi-year portfolio planning. How are proposed acquisitions ranked in
the plan, what new priorities such as new mission, or programmatic
changes that impact resource needs have been identified?**

The FIRB establishes goals, reviews and approves all requests for
funding for vehicle replacements, and additions to the fleet whether by
purchase, donation, or transfer from other agencies. The FIRB also
reviews requests to transfer vehicles among Regions and recommends
appropriate actions to the Deputy Director. The FIRB recommends to the
Deputy Director strategic policies and processes necessary to support
effective management of the Service fleet. Processes include planning,
investment, acquisition reporting, and analysis.

![](media/image5.wmf){width="6.499305555555556in"
height="3.564583333333333in"}

**What is the Bureau's strategy and policy regarding disposal of
unneeded or low priority assets?**

Excess vehicles can be transferred to other bureaus when there are no
requirements within the Service. The Service may notify GSA of excess
vehicles only when there are no requirements within the Department for
excess vehicles. GSA then makes an effort to transfer excess vehicles to
other agencies. If transfer of excess vehicles is not possible, GSA may
dispose of the vehicles through the GSA donation or sales programs. The
Service may dispose of excess vehicles utilizing GSA, commercial
markets, or through the exchanged trade-in process. Excess vehicles are
not reassigned to organizations awaiting approval for additional vehicle
requirements. Regional Offices control excess vehicles pending approval
for disposition from the FIRB Working Group. If reassignment to another
Regional activity is not required, the vehicle is sold within 60 days
(320 FW 7, Section 7.4).

The proceeds from sales go to the program selling the vehicle to be used
for replacement vehicles as specified in federal regulations. The
Service accounts for sale proceeds in accordance with the general
finance and accounting rules applicable to the Federal Government.
Except as otherwise directed by law, all proceeds from the sale of
personal property under this part is available during the fiscal year in
which the property was sold and for one fiscal year thereafter for
obligation for the purchase of replacement property. Any sales proceeds
not applied to replacement purchases during this time are deposited in
the United States Treasury as miscellaneous receipts.

**5. Program Management**

**How does the Service ensure best value for investing in and managing
assets?**

The FIRB is comprised of the following, the Assistant Directors for
National Wildlife Refuge System, Fisheries and Habitat Conservation,
Budget, Planning and Human Resources, Endangered Species, Law
Enforcement, Migratory Birds, and Business Management and Operations.
The FIRB has the authority to recommend to the Deputy Director, as the
Service Senior Asset Manager, to approve/disapprove all requests for
funding new vehicle replacements and additions to the fleet, whether by
purchase, donation, or transfer between Regions or from other agencies.
In addition to the FIRB, existing management structures, policies and
processes will continue in place. Policies are amended to incorporate
criteria to ensure only the right number and types of vehicles are
purchased and leased. Additional controls are established as necessary
to ensure an appropriate fleet level.

**How does the Service determine the future use, needs or replacement of
assets?**

Each Region identifies vehicles eligible for replacement based on the
criteria specified in Appendix 2, 320 FW 2, Vehicle Replacement
Standards. Vehicles found to be too costly to maintain in the fleet are
placed on excess status and sold or transferred to another authorized
agency. The FIRB establishes procedures to reduce the age of the
vehicles in the fleet. Using replacement criteria listed in 320 FW 2,
Appendix 2, and the Regional Directors will report their projected
annual fleet needs to the FIRB. Vehicle projections and data systems are
updated to ensure that a projected listing is prioritized with the
vehicles each Region plans to replace.