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Air Force Community Partnership

Program

Quick Reference Guide

“Military installations and local communities partnering to

achieve mutual value and benefit”

VERSION 14 AS OF 3 NOV 2016

Air Force Community Partnership Program Quick Reference Guide

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Version 14 as of 3 November 2016

HOW TO USE THIS QUICK REFERENCE GUIDE:

This Quick Reference Guide is a living document and may be supplemented at any time to address additional questions raised as installations and communities propose and work through projects. This is an informational document only. It is intended to briefly inform and provide initial guidance on how to execute a variety of partnerships. It does not replace the need to reference official guidance and authorities. Comprehensive guidance can be found using the listed references. This reference may be shared with community members.

Additional information and guidance can be requested by submitting a question in writing to the Air Force Community Partnership Program Workflow email: [email protected] . To expedite your request please complete an Initiative Support Request Form. The form template can be found in section 12 of this guide. An electronic copy of this Guide, the Initiative Support Request form and additional AF Community Partnership Program information can be found on the APAN SharePoint site: https://wss.apan.org/s/airforcepartnerships or www.airforcepartnerships.org


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0 CONTENTS

1 Common Instruments for Partnership Initiatives ................................................................................. 5

1.1 Use of Support Agreements .......................................................................................................... 6

1.2 Air Force Community Partnership Leadership Agreement ........................................................... 8

2 Services ................................................................................................................................................. 8

2.1 Submitting a Case in MyPers......................................................................................................... 9

2.2 Categories for MWR Activities .................................................................................................... 10

2.3 Sharing Library Resources – no public access (Category A) ........................................................ 11

2.4 Non‐DoD participation of Child & Youth Programs – Child Development Center (Category B) . 11

2.5 Public Use/Rental of Outdoor Recreation Equipment (Category B and C) ................................. 12

2.6 Civilian Access to Category C Facilities ........................................................................................ 13

2.7 Civilian Access to Aero Clubs (Category C) .................................................................................. 14

2.8 Civilian Access to Golf Courses (Category C) ............................................................................... 14

2.9 Food/ Commissary Donations to Local Food Bank ..................................................................... 15

2.10 Use of Resource Personnel to Provide Religious Program Requirements .................................. 16

2.11 Coordination of Transition Assistance activities ......................................................................... 17

2.12 Use of Voluntary Services (e.g. Student Volunteers) .................................................................. 18

2.13 Application of “Guest” status related to priority use of Category A/B/C MWR Activities ......... 19

3 Utilities ................................................................................................................................................ 21

3.1 Waste Water Treatment Plant (WWTP) via IGSA ....................................................................... 21

3.2 Waste Water Treatment Plant via Competitive Process ............................................................ 22

4 Energy ................................................................................................................................................. 23

4.1 Utility Energy Service Contract (UESC) ........................................................................................ 23

4.2 Energy Savings Performance Contract (ESPC) ............................................................................ 24

4.3 Power Purchase Agreement (PPA) .............................................................................................. 25

5 Real Estate........................................................................................................................................... 26

5.1 Gifts of Real Property to the Air Force ........................................................................................ 26

5.2 Temporary Use of Air Force Real Property (Permit) ................................................................... 27

5.3 Temporary Use of Air Force Real Property (License) .................................................................. 27

5.4 Lease of Air Force Real Property ................................................................................................. 28

5.5 Possessory use and control of Air Force Real Property Enhanced Use Lease (EUL) ................... 28


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5.6 Civilian Use of Air Force Airfield: Civil Aircraft Landing Permit ................................................... 29

5.7 Civilian Use of Air Force Airfield: Joint Use Agreements ............................................................ 30

5.8 Readiness and Environmental Protection Integration (REPI) Program ...................................... 32

6 Medical ................................................................................................................................................ 34

6.1 Medical Proficiency Training (Internships, Externships, Two‐Way Exchanges) .......................... 34

6.2 Classroom Training, Training that does not Involve Patient Care............................................... 34

6.3 Department Of Defense (DoD)/ Veterans Affairs (VA) Health Care (Sharing Agreements) ....... 35

6.4 Department Of Defense (DoD)/ Veterans Affairs (VA) Health Care (Joint Ventures) ................. 36

6.5 On Base Contracted Ambulance Services provided by a State or Local Government ................ 37

6.6 Temporary Possessory use and control of non‐Air Force Property (“Timeshare”) .................... 38

7 Police and Fire ..................................................................................................................................... 39

7.1 Memorandum of Understanding between Government and Civilian Fire Departments ........... 39

7.2 Use of Air Force and non‐Air Force Small Arms Ranges ............................................................. 40

7.3 Animal Control ‐ Use of Community Resources .......................................................................... 41

7.4 Use of Non‐Air Force Criminal Confinement Facilities ................................................................ 42

7.5 Transfer Receipt of Base 911 Calls to Local Community 911 ...................................................... 43

8 Vehicle, Equipment and Maintenance ................................................................................................ 45

8.1 Use of AF/government buses to attend community supported MWR events ........................... 45

8.2 Use of Government Vehicles....................................................................................................... 45

8.3 Use of Non Air Force Air Fields (Purchase of Aviation Fuel and Ground Services) ..................... 46

9 Training ............................................................................................................................................... 48

9.1 Civil Engineer Training from Local Community ........................................................................... 48

9.2 Realistic Military Training (e.g. blight removal; repair a football field) ...................................... 50

9.3 Use of Innovative Readiness Training ......................................................................................... 52

9.4 Training from State or Local Governments ................................................................................. 54

10 Intergovernmental Support Agreement (IGSA) Basics ................................................................... 55

10.1 IGSA Request Package Requirements ......................................................................................... 56

10.2 Use of an IGSA for cooperative purchasing with a state or local government ........................... 59

10.3 Intergovernmental Support Agreement (IGSA) Partnership Checklist ....................................... 61

11 Related Authorities and Background Information .......................................................................... 63

11.1 Guidance on Possible A‐76 Impacts ............................................................................................ 63

11.2 Defense Logistics Agency (DLA) Federal Property Disposition ................................................... 65

11.3 FEDERAL GRANTS: Guidance on Federal Grants as Funding Sources for Partnerships .............. 67

11.4 STATE GRANTS: Guidance on State Grants as Funding Sources for Partnerships ...................... 69


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11.5 PRIVATE GRANTS: Guidance on Private Grants as Funding Sources for Partnerships ................ 70

11.6 OMB Guidance ............................................................................................................................ 72

12 Installation Initiative Support Request Form .................................................................................. 75

13 Approval Authority Matrix .............................................................................................................. 76


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1 COMMON INSTRUMENTS FOR PARTNERSHIP INITIATIVES

EVERY AGREEMENT SHOULD CITE AN AUTHORITY FOR THE TYPE OF ACTION TO BE TAKEN – THE

AUTHORITY FOR THE ACTION IS NOT THE SAME AS THE INSTRUMENT TO BE USED!

Note: For illustration purposes only and does not represent an all-inclusive list of authorities.


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Type of Agreement Execution Guidance 1.1 USE OF SUPPORT

AGREEMENTS

Authority: Title 10, United States Code Sections 2208, 2579, 2679 Guidance: DoDI 4000.19, Support Agreements, AFI 25-201, Intra-Service, Intra-Agency, and Inter-Agency Support Agreement Procedures The above “guidance” is not in and of itself the authority for entering into an agreement. There must be an existing authority to enter into the agreement. DoDI 4000.19 and AFI 25-201 merely provide guidance on the format and management of Agreements that support other actions/agreements under other authorities. A written agreement document should cite an authority (law, regulation, DoDI, AFI, etc.) supporting the actions covered by the agreement. This is generally true of Memoranda of Agreement (MOAs) especially if the MOA involves appropriated funds. As is noted in the guidance cited, Memoranda of Understanding (MOU) do not necessarily need an authority (on the assumption that the United States is not irrevocably committing money or other resources).

Support Agreements literally are “in support of” other authorized actions, for example, mutual aid arrangements, leases, Economy Act agreements between federal agencies, etc.

The Air Force is in the process of updating AFI 25-201. In the future the MOA and MOU forms will be replaced by Financial Management Service (FMS) Form 7600A. This is a Department of Treasury form.

Section 1 of the DoDI indicates that the purpose of Support Agreements is to document the terms of an agreement that a DoD Component enters into with:

Another DoD Component; A federal agency or federally-recognized Indian

tribe; A State or local government in accordance with

section 10 USC 2336 [now 10 USC 2667]; and A State or local government for support of the National

Guard in accordance with Title 32, U.S.C. Support Agreements are the responsibility of Support

Agreement Managers (SAM). Each SAM will manage support agreements in each organization receiving or providing support.

The SAM will monitor the preparation of support agreements and facilitate coordination and approvals, and

Administer the DoD Component’s support agreements as directed by the Component head.


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Air Force suppliers may provide support only when it has the capability to provide the support without interfering with its assigned missions.

Support Agreements that require the exclusive use of real property must have the associated real property documentation in accordance with DoDI 4165.70. A Support agreement itself does not serve as the real property documentation.

SAM should review support agreements when changing conditions or costs may require substantial modification to or termination of the Agreement. Each SAM with a reimbursable support Agreement will annually review the Agreement for financial impacts.

Support Agreement Review: SAM will review each of their Support Agreements triennially in its entirety, and document each review in accordance with Component procedures.

Support Agreement Term: All Support Agreements will have an expiration date not to exceed 9 years from the date the Agreement is signed by both parties.

Support Agreement Termination: A Support Agreement that involves reimbursement may be unilaterally terminated prior to the expiration date only with sufficient advance notification, a minimum of 180 days. Support Agreements that do not involve reimbursement may be terminated prior to the expiration date as provided in the Agreement.

Types of Support Agreements: Memorandum of Agreement (MOA) documents

the specific terms and responsibilities that two or more parties agree to in writing. MOAs can be used to document a single reimbursable purchase, non-recurring reimbursable support, and non-reimbursable support.

Memorandum of Understanding (MOU) documents issues of general understanding between two or more parties that do not involve reimbursement.

Note: Support Agreements contrast to Intergovernmental Services Agreements (IGSAs) with state or local governments that rely on 10 USC 2667 as authority, and which require the approval of SAF/IEI. These IGSAs may be managed by SAMs at the Installation Level but are not usually negotiated by SAMs. For additional information on the use of IGSAs, see Section 10 herein, Frequently Asked Questions posted on AFCP APAN SharePoint site under the Base Resources Tab>Intergovernmental Agreements Toolbox, https://wss.apan.org/s/airforcepartnerships , or contact the Air Force Community Partnership Office (SAF/IEIM).


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2 SERVICES

Air Force Services/Morale Welfare and Recreation (MWR) is a comprehensive network of mission support, leisure programs and services designed to improve the quality of life of service members, their families, and other eligible patrons. MWR consists of a wide range of programs and services from fitness and outdoor recreation to libraries and bowling centers. This guide is intended to briefly inform and provide initial guidance on how to execute a Services initiative; comprehensive guidance can be found using listed references and subject matter experts.

Coordination: Base JA, Support Agreement Manager, Installation Commander (may require functional office approval depending on the subject matter) Instrument: Memorandum of Understanding or Memorandum of Agreement

Type of Agreement Execution Guidance 1.2 AIR FORCE

COMMUNITY

PARTNERSHIP

LEADERSHIP

AGREEMENT

The Air Force Community Partnership (AFCP) Leadership Agreement establishes the working arrangements between the Air Force installation and the State and Local governments regarding their implementation of the AFCP Program. The agreement should be a Memorandum of Understanding (MOU) and not a Charter.

The signatures to the MOU should be the Installation Commander and other Base personnel as determined appropriate, local government officials, and State government officials. The head of the local Chamber of Commerce or other private organizations, businesses, or individuals should not be a signatory to the MOU. They can be included/referenced in the MOU as having an advisory role to the Leadership Committee and can participate in developing AFCP initiatives.

Instrument: Memorandum of Understanding Example: Template and guidance on AFCP APAN SharePoint

site under the Base Resources Tab>Example Agreements, Case Studies, and Templates>Sample AFB Community Partnership MOU: https://wss.apan.org/s/airforcepartnerships or www.airforcepartnerships.org


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Type of Initiative Execution Guidance 2.1 SUBMITTING A

CASE IN

MYPERS

How to Submit a Case to AFSVA in MyPers MyPers provides Air Force, Force Support Community personnel the means to submit information to the Air Force Personnel Center Services Directorate. An example submission might be a request to Air Force Services (AF/A1S) for modification/waiver of policy/restrictions on use of MWR facilities and programs Begin on the Air Force Portal start page From the Quick Links (center column), select MyPers from the

Top Portal Searches – you will automatically be logged-in To the upper right of the MyPers start page (in the blue menu

bar) click on “Resources for FSS” The drop down menu will open, click on “Services” To enter a case for Aero Clubs, Golf, Community Centers,

Event Centers, Bowling, Auto Hobby, Arts and Crafts, Outdoor Recreation, Rod and Gun – click on “SVI Community”

To enter a case for Clubs, Fitness, Lodging, Dining Facilities, and Libraries – click on “SVI Sustainment”

A new page will open and follow the instructions to enter a new case. Fill in all required boxes: Subject, MAJCOM, Base, Category, Comment/Question

Attach all relevant documents


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2.2 CATEGORIES FOR MWR ACTIVITIES

Categories Activities Fund Source/Rules

Category A (Mission Support

Activities)

Armed Forces Entertainment program overseas, gymnasium/fitness center/aquatic training/aerobic studios, general libraries, community center, parks and picnic areas, sports/athletics (self-directed, unit level, intramural), unit level programs and activities, Single Service Member Programs, Airmen and Family Readiness Center (A&FRC), isolated/deployed/free admission motion pictures, and common support services (NAF accounting office not related to resale, executive control and command supervision, procurement not related to resale, human resources office, marketing)

Funded with APFs and NAFs according to AFIs 65-601 and 34-201 APF – 100%

Category B (Community

Support Activities)

Child development centers, family day care programs, youth programs, recreation swimming pools, automotive skills development, arts & crafts, outdoor recreation programs (organized activities and undeveloped recreation areas), marinas without resale, equipment check out, recreation ticket and tour, amateur radio, government owned or leased riding stables, community programs, service member techno activities, directed outdoor recreation, entertainment (music and theater), bowling centers with less than 16 lanes, and sports competition above the intramural level

Funded with APFs and NAFs according to AFIs 65-601 and 34-201 APF – 50% NAF – 50%

Category C (Revenue

Generating Activities)

Clubs, golf courses, bowling centers with more than 16 lanes, marinas with resale or private boat berthing, equipment rental, aero clubs, rod and gun clubs, riding clubs, motorcycle clubs, parachute/sky diving clubs, snack bars, restaurants, catering, audio/photo clubs, amusement machine locations and centers, skating rinks, unofficial commercial travel services, Armed Forces Recreation Centers, cabins/cottages/cabanas/recreational guest houses/family camps, bingo, motion pictures (paid admissions), scuba diving, vehicle storage, aquatics center, supplemental mission support funds (such as USAF Academy Athletic Association Fund), and other resale operations that are related to the purpose and function of the MWR activity supported

Funded with APFs and NAFs according to AFIs 65-601 and 34-201 NAF – 100% (some indirect APF support)


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Type of Initiative Execution Guidance 2.3 SHARING

LIBRARY

RESOURCES –

NO PUBLIC

ACCESS

(CATEGORY A)

Authority: DoDI 1015.10 (6 May 2011) Guidance: AFI 34-150 (24 Sept 2014) Allows AF libraries to provide assistance to other government

and public libraries and organizations to expand access and use of scientific, technical and academic knowledge and information. Global collaboration occurs through cooperative activities such as interlibrary loan, resource sharing, research and reference support.

Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, AF/A1S Instrument: Memorandum of Agreement

Type of Initiative Execution Guidance 2.4 NON-DOD

PARTICIPATION

OF CHILD &

YOUTH

PROGRAMS –

CHILD

DEVELOPMENT

CENTER

(CATEGORY B)

Authority: NDAA of 2000, 10 USC 1799 Guidance: AF/A1S 19 Aug 2014 memo “Department of Defense Child Development Program Fees School Year (SY) 2014-2015, attachment Air Force Child Development Program Fee Policies SY 2014-2015” Allows children and youth under the age of 19 who are not

dependents of members of the armed forces or of DoD employees to participate in child care and youth programs of the DOD, to the extent space and services are available.

Users will be charged the highest fee category (IX) Coordinate with base SFS for security and access procedures Per AF/A1S 19 Aug 2014 memo, approval to accept these

users must first be granted in writing from HQ AF/A1S Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, AF/A1S; AF/A1S must provide written approval


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Type of Initiative Execution Guidance 2.5 PUBLIC

USE/RENTAL

OF OUTDOOR

RECREATION

EQUIPMENT

(CATEGORY B

AND C)

Authority: DoDI 1015.10 (6 May 2011) Guidance: AFI 34-101 (28 Mar 2013), AFI 34-110 (6 Jan 2012) Outdoor Recreation Equipment (ODR) is primarily a Category

B MWR program; however equipment rental involved in ODR is an authorized Category C MWR activity/program.

Outdoor Recreation Programs, AFI 34-110, para 3.15 Equipment Loan and Rental Operations, controls the loan and rental of all ODR equipment items. Applicable provisions should be consulted and complied with regarding the loan and/or rental of all ODR equipment.

Before access to ODR equipment rentals can be open to the public, requirements regarding opening up Category C MWR/Services activities must be complied with as set forth in AFI 34-101, para 3.1.3 (see section 2.6, Quick Reference to Partnership Authority for Facilitators).

In addition to the requirements outlined in AFI 34-101, the following considerations must be met:

1. Any equipment rented (to members of the public) should be limited to outdoor recreation equipment that is purchased with NAFs (Non-Appropriated Funds).

2. Any member of the general public who rents ODR equipment should sign a Hold Harmless Agreement.

3. Fees charged for rental of equipment to members of the general public should be more than those charged to usual authorized MWR/Services patrons.

4. Active duty and reserve component personnel and their families may make reservations in advance of authorized customers (see AFI 34-110, para 3.15.2).

5. Late fees, not to exceed the daily fee, are authorized. Recoup repair or replacement costs due to customer abuse or loss of items.

6. A cleaning fee may be charged for certain equipment. If the item is not returned in clean condition ODR may keep the pre-charged cleaning fee.

7. Fees should be prominently posted, that also includes checkout and return procedures, late return, and loss or damage policies.

If a commercial outdoor equipment rental business is located within 10 miles of the installation, consideration should be given to getting permission from the local community, as well as from the business concerned indicating there is no objection to proposed rentals by the installation ODR equipment loan/rental activity to members of the public.

Coordinate with base SFS for security and access procedures Waiver submission to AFSVA/SVI in MyPers, AF/A1S AF/A1S must approve waiver letter

Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, AF/A1S; A1S must approve waiver


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Type of Initiative Execution Guidance 2.6 CIVILIAN

ACCESS TO

CATEGORY C

FACILITIES

Authority: DoDI 1015.10 (6 May 2011) Guidance: AFI 34-101 (28 Mar 2013)

1. Members of the general public within the US may be granted use Category C programs on a recurring, self-directed basis.

2. Coordinate with base SFS for security and access procedures

3. Requires AF/A1S approval and must meet the waiver package contains the following requirements/information:

4. Commander determines that adequate facilities are available and currently underutilized.

5. Allowing the individuals to use the facilities is beneficial to both military members and civilians in the community

6. No conflict exists with Federal, State, or local laws 7. Written agreements are obtained from local businesses

of like nature, local government officials, including the Chamber of Commerce, or other appropriate community leaders indicating they have no objection to expanded use of these programs.

8. Authorization is limited to attendance and purchase of food and beverages, and convenience merchandise incidental to participation (such as golf balls and tees).

9. The members authorized are designated by letter maintained on file by the FSS Commander/Director.

10. Request from the installation commander must contain the information required above and be endorsed by the respective MAJCOM/A1 and AFSVA/CC.

11. AF/A1S must approve waiver letter Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, A1S


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ACCESS TO

AERO CLUBS

(CATEGORY C)

Authority: DoDI 1015.10 (6 May 2011) Guidance: AFI 34-117 (1 Oct 2014) Allows for Non-DoD Civilian use of an Aero Club. Approval is

usually subject to, at a minimum, the following requirements: o Use by Non-DoD participants must be on a space

available basis o Dues and rental fees must be established for individual

authorized membership and reflect appropriate comparison of fees charges at local community aero clubs and flight training programs

o Individuals must provide a copy of aviation liability insurance (“renters insurance”) with minimum $1M coverage to the club prior to solo flight or operations as pilot in command.

Coordinate with base SFS for security and access procedures AF/A1S must approve waiver letter

Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, A1S; A1S must approve waiver Example: Robins AFB, Letter granting waiver to allow “Community Participation in Aero Club”


ACCESS TO

GOLF

COURSES

(CATEGORY C)

Authority: DoDI 1015.10 (6 May 2011) Guidance: AFI 34-101 (28 Mar 2013), AFI 34-116 (24 Jun 2011) Existing Category C activities that have excess capacity

AF/A1S may grant waivers for local community use on a case-by-case basis.

Services competition survey of local golf courses (10 mile radius)

AF/A1S must approve waiver letter Waiver must be renewed every two years Coordinate with base SFS for security and access procedures

Coordination: Base Legal, FSS, MyPers, AFSVA/SVI to coord. with MAJCOM, A1S; A1S must approve waiver Example: F.E. Warren AFB, “ MOU Shared Golf”


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Type of Initiative Execution Guidance 2.9 FOOD/

COMMISSARY

DONATIONS

TO LOCAL

FOOD BANK

Authority: 10 USC 2485 (f) 42 USC 12671 (Bill Emerson Good Samaritan Food Donation Act) Allows for the donation of unusable food to a charitable nonprofit

food bank, a chapter or the local unit of a recognized national veterans organization, or to a not-for-profit organization that provides care for homeless veterans.

The accepting organization must be designated by the SecDef to receive such donations.

Designation letter should be drafted and routed to the Assistant Secretary of Defense for Readiness and Force Management for approval.

The Defense Commissary Agency (DeCA) will need to be provided a copy of the food bank’s tax exempt form 501c3.

Once the designation letter has been received the base should establish regular communication between the Commissary, base volunteers, and the food bank for pick-up coordination.

Food items that can be donated: commissary store food, mess food, meals-ready-to-eat (MREs).

Food must be certified as edible by appropriate food inspection technicians and would otherwise be destroyed as unusable.

In the instance of commissary store food, the donation shall take place at the site of the commissary store that is donating the food.

Coordination: Base Legal, FSS, DeCA, AF/A1, SAF/MR, OSD Instrument: Designation Letter as described above Example: Tinker AFB and JB Andrews, “Commissary Food Donations”


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Type of Initiative Execution Guidance 2.10 USE OF

RESOURCE

PERSONNEL TO

PROVIDE

RELIGIOUS

PROGRAM

REQUIREMENTS

Authority: DoDD 1304.19, Appointment of Chaplains for the Military Departments; DoDI 1300.17, Accommodation of Religious Practices Within the Military Services Guidance: AFI 52-101 Chaplains, Planning and Organization Joint Publication 1-05, Religious Affairs in Joint Operations,

states that chaplains are to advise …on “moral and ethical decision making, and morale and personnel issues, may advise on religious dynamics within the operational area and sometimes may be tasked with certain liaison functions.”

In situations where the wing chaplain is unable to provide for all of the religious program requirements, AFI 52-101, Section 3.7, authorizes the wing chaplain (or equivalent) to obtain resource personnel (example: non-Air Force religious personnel) that cannot be provided by the assigned Air Force Chaplain Corps personnel.

o Providing these religious program requirements can be accomplished by DoD Form 2088, Certificate of Ecclesiastical Endorsement. The religious program requirements to be provided by non-Air Force religious personnel must be documented on a Statement of Work (SOW) which should be attached to the DoD Form 2088.

o The wing chaplain and resource personnel will sign the DoD Form 2088 and SOW and the wing chaplain will maintain documentation in his official files.

o The wing chaplain (or equivalent) will annually validate the performance of all non-Air Force personnel, the requirements in the SOW, and ensure that the required letters of certification from a recognized religious organization are on file. The wing chaplain will annually brief the non-Air Force religious personnel on requirements, restrictions, prohibitions, and performance expectations found in the SOW.

Coordination: Wing Chaplain, JA Instrument: DoD Form 2088, Certificate of Ecclesiastical Endorsement (with a SOW)


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Type of Initiative Execution Guidance 2.11 COORDINATION

OF TRANSITION

ASSISTANCE

ACTIVITIES

Authority: DoDD 1332.35, Transition Assistance for Military Personnel; DTM 12-007, “Implementation of Mandatory Transition Assistance Program Participation for Eligible Service Members;” AFI 36-3203, Service Retirements Guidance: Air Force and local community organizations (government and

nonprofit) provide services for veterans transitioning out of the service.

The Air Force and interested community organizations can maximize their impact by sharing information and coordinating their activities to achieve mutual goals.

Career training and job fairs are sample activities that could benefit from coordination by the base and local communities.

Common training may cover topics such as resume building (federal & civilian), salary negotiations, interview techniques and awareness of assistance programs.

Opportunities to improve the sharing of job openings and career internships may also exist.

Potential partners could include local community colleges, universities, local governments, Chambers of Commerce, and nonprofits.

Coordination: Installation Airman & Family Readiness Center (A&FRC), Base Legal, Public Affairs; Security Forces if installation access needed Instrument: Depends on nature of activity. For example, hosting an open house wouldn’t necessarily need a written agreement. However, ongoing support activities requiring community presence on the base should at least be reflected in a license/permit or Memorandum of Understanding Example: Dover AFB, JBMDL, JBSA, FE Warren “Transition Assistance”


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VOLUNTARY

SERVICES (E.G. STUDENT

VOLUNTEERS)

Authority: 5 USC § 3111 - Section 301 of the Civil Service Reform Act of 1978, Public Law 95-454, 10 U.S. Code § 1588 Guidance: DoDI 1100.21, 5 CFR Part 308; AFMAN 33-282, Computer Security 10 USC §1588 and DoDI 1100.21 allow the Secretary concerned

may accept from any person the following: o Voluntary medical services, dental services, nursing services,

or other health-care related services o Voluntary services to be provided for a museum or a natural

resources program o Voluntary services to be provided for programs providing

services to members of the armed forces and the families of such members, including the following programs:

o Family support programs o Child development and youth services programs o Library and education programs o Religious programs o Housing referral programs o Programs providing employment assistance to spouses of

such members o Morale, welfare, and recreation programs, to the extent not

covered by another subparagraph of this paragraph o Voluntary services as a member of a funeral honor o Legal services voluntarily provided as legal assistance o Voluntary services as a proctor for administration to

secondary school students of the test known as the “Armed Services Vocational Aptitude Battery”

o Voluntary translation or interpretation services offered with respect to a foreign language by a person (A) who is registered for such foreign language on the National Foreign Language Skills or (B) who otherwise is approved to provide voluntary translation or interpretation services for national security purposes, as determined by the Secretary of Defense

o Voluntary services to support programs of a committee of the Employer Support of the Guard and Reserve as authorized by the Secretary of Defense

o Voluntary services to facilitate accounting for missing persons o Voluntary legal support services provided by law students

through internship and externship programs approved by the Secretary concerned

A volunteer, while providing services under this instruction, shall be considered to be an employee of the government only when the volunteer is acting within the scope of his services accepted by the DoD Component (this is further limited and defined by provisions cited in DoDI 1100.21, E3.5).

5 CFR § 308.101 defines a “student” as an individual who is enrolled

not less than half-time in a high school, trade school, technical or


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vocational institute, junior college, college, university or other accredited educational institution.

An individual who is a student is deemed not to have ceased to be a student during an interim between school years if the interim is:

o Not more than 5 months o Individual must show the agency that the individual has a

bona fide intention of continuing to pursue a course of study or training immediately after the internship

Volunteer Service under the Act is limited to services performed by a student, with the permission of the institution at which the student is enrolled, as part of a program established for the purpose of providing educational experience for the student. Additional factors:

o Such service is to be uncompensated o Such service will not be used to displace any employee or to

staff a position that is a normal part of the agency's work force The “Minimum Age” of students to participate under the program

should be in conformance with Federal, State, or local laws and standards governing the employment of minors

The “Status” of a student participating under an agency volunteer program is not considered to be a Federal employee for any purposes other than injury compensation or laws related to the Tort Claims Act. Service is not creditable for leave accrual or any other employee benefits

USE OF GOVERNMENT COMPUTER BY A VOLUNTEER

(reference AFMAN 33-282): Non-paid student interns can receive a Volunteer Logical Access Credential (VoLAC) in lieu of a CAC to access the Air Force internet. An intern must be sponsored by the base to receive this smart card. There is a category in Defense Enrollment Eligibility Reporting System (DEERS) for medical interns and student interns that allows them to receive this access; the card is issued by the MPF

Coordination: Sponsoring/requesting Installation organization, JA, Installation Commander. The VoLAC should be requested through the MPF Customer Service Technical Advisor Instrument: Memorandum of Understanding

Type of Initiative Execution Guidance 2.13 APPLICATION

OF “GUEST”

STATUS

RELATED TO

PRIORITY USE

OF CATEGORY

A/B/C MWR

ACTIVITIES

Authority: 10 USC 8013 - Secretary of the Air Force Guidance: AFI 34-101 Air Force Morale, Welfare, and Recreation (MWR) Programs and Use Eligibility (28 March 2013) Guests are described in the above AFI (Appendix 2) as: “those otherwise not eligible to use Force Support Squadron (FSS) MWR programs, when specifically invited and accompanied by an authorized person/sponsor.” Per the AFI, the Installation Commander has the authority to establish and approve local rules governing the number of guests and the frequency of use at specific facilities. The AFI requires that rules governing local procedures on the number of guests and the frequency of use at specific facilities will be put into an installation policy letter or


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installation regulation. Finally, the Installation Commander’s determination should indicate that allowing these individuals to use these facilities is beneficial to both the military members and civilians in the community and that no conflict exists with Federal, State, or local laws. NOTE: It is important that use of the “guests” exception be limited. The limits should be the number of people using the activity and their duration of use. Example of an acceptable guest exception: Use of a sports field (CAT A or B depending upon circumstance) by community youth group for the fall soccer season. Example of an unacceptable guest exception: Use of base indoor pool (CAT A) by County residents. Coordination: FSS Squadron Commander, Base JA, Support Agreement Manager, Installation Commander Instrument: Memorandum of Understanding or Memorandum of Agreement Examples: JBER Youth Shotgun League MOU


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3 UTILITIES

Type of Initiative Execution Guidance 3.1 WASTE

WATER

TREATMENT

PLANT

(WWTP) VIA

IGSA

Authorities: 10 USC 2679 or Federal Acquisition Regulations (FAR) Section 6 As with other types of services, an installation can use FAR authority or 10 USC 2679 to procure the services of operating an on-base wastewater treatment plant and/or water supply system. Please note that providing such services is not the same as utility privatization under 10 USC 2688 (where ownership and operation of physical assets transfer outside of the federal government). Case Study 1: Moody AFB recently was able to work toward stopping operation and maintenance of its WWTP. As part of the Air Force Community Partnership (AFCP) Program

Lowndes County approached Moody AFB with the initiative that the County take over operation of the WWTP as well as water treatment plant.

o The business case analysis (BCA) validated an annual savings of over $200K versus the existing contract. Additionally, this arrangement could provide the framework to develop a future Memorandum of Agreement (MOA) with the county to share costs for an interconnection between the county and base water supply systems, providing service redundancy and enhancing force protection.

o In the Fall of 2014, SAF/IEI signed a determination authorizing Moody AFB to enter into an Intergovernmental Support Agreement (IGSA) with the County using a FAR-based contract.

o Moody AFB and Lowndes County are in the process of finalizing a five (5) year contract for County to operate and maintain the WWTP and water treatment systems.

Coordination: An IGSA Package submitted by an installation to SAF/IEI should contain: 1. Request Memo from the Base with Wing Commander signature Requests approval of Secretarial Determination to enter into an

IGSA Includes primary elements or conditions for the determination

2. Copy of Staff Summary/eSSS Comprises installation and MAJCOM review/ concurrence with

CONS, JA, and FM 3. Business Case Analysis (BCA) Demonstrates the IGSA will serve the best interests of the AF by

enhancing mission effectiveness or creating efficiencies. May be performed by the FM CoE or an installation.

4. Letter from a state or local government indicates interest to support the Air Force mission.

5. Completed small business checklist Instrument: IGSA


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Type of Initiative Execution Guidance 3.2 WASTE

WATER

TREATMENT

PLANT VIA

COMPETITIVE

PROCESS

Case Study 2: In 2014, Ellsworth Air Force Base (AFB) connected to the South

Dakota Ellsworth Development Authority (SDEDA) Regional Wastewater Treatment Plant for the treatment of its wastewater. This was accomplished via a 20-year contract with the SDEDA. SDEDA constructed a Regional WWTP to handle the requirements of the City of Box Elder and Ellsworth AFB as well as a 14-mile connection from the Regional Wastewater Treatment Plant to the base.

o Ellsworth AFB used no MILCON to accomplish the connection.

o The connection cost along with the treatment of the wastewater is part of the monthly payment by the Base. The treatment costs are subject to review and adjustment every five (5) years.

o The connection cost is a fixed monthly cost over the life of the contract.

o The total estimated cost for the initial 240 months of the contract is $35.9M to include approximately $16.5M for sewage treatment service and $19.4M for the capital costs. The estimated annual cost of the service for the first year is $1.7M.

o At the time of the study (2008), the two options in the study, including capital cost, were separate WWTPs for Ellsworth ($18.7M) and Box Elder ($15.1M) or a RWWTF ($27M) to treat sewage from Ellsworth AFB and the City of Box Elder. The combined annual operation and maintenance cost for the RWWTF was estimated at $1.1M; a savings of $699,000 annually to Ellsworth AFB compared to the cost of Ellsworth operating a separate plant on the base.

Case Study #3: An initiative that developed as part of the AFCP Program at Beale AFB was for the base to stop operating and maintaining its WWTP.

o In November 2013, Beale AFB posted a Request for Information (RFI) soliciting interest in assisting Beale AFB in stopping operating and maintaining its WWTP.

o Beale AFB received responses from ten parties, eight (8) private and two (2) public.

o In a Spring of 2015 Request for Proposals (RFP), only one public party responded, the Olivehurst Public Utility District (OPUD).

o OPUD’s plan is to take over operation and maintenance of the Beale WWTP, connect Beale AFB to the regional WWTP, and cease treating wastewater on base.

o Beale AFB is currently working on the FAR-based contract to accomplish this effort. They are looking at Ellsworth (previously described) as a model.

Coordination: Base Civil Engineer, Base Legal, Base Contracting, AFCEC/CNU, MAJCOM Instrument: FAR Contract Examples: Ellsworth AFB (completed), Beale AFB (in progress)


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4 ENERGY

Type of Initiative Execution Guidance 4.1 UTILITY ENERGY

SERVICE

CONTRACT

(UESC)

Authority: 42 USC 8256, Incentives for Agencies; 10 USC 2911, Energy Performance Goals and Plan for Department of Defense; 10 USC 2913, Energy Savings Contracts and Activities; 10 USC 2866, Water Conservation at Military Installations; 42 USC 8253, Energy Management Requirements; Executive Order 13693; OMB Memorandum M-12-2I, Sep 28, 2012, Subject Addendum to OMB Memorandum M-98-I3 on Federal Use of Energy Savings Performance Contracts (ESPCs) and Utility Energy Service Contracts (UESCs); and Air Force Policy Directive (AFPD) 90-17, Energy Management; SECAF and CSAF Memorandum, 23 Feb 2016, Establishment of the Air Force Office of Energy Assurance Guidance: SAF/IE Memorandum 1 Mar 2016, SAF/IE Intent for Air Force Installation Energy Projects Unlike typical acquisition practices, 10 U.S.C.2913 allows the Air

Force to enter into sole source contracts with a serving or franchised utility company to conduct capital construction and acquire energy-conserving infrastructure improvements under the condition that the overall utility costs to the installation do not increase as a result of the contract. UESCs, like all other energy improvements, should be evaluated for achieving mission assurance through energy assurance. Specifically each UESC project should be, to the greatest extent practicable, Resilient, Cost-competitive, and Cleaner.

The Air Force can use UESCs for all buildings, excluding leased buildings (unless leased from another Federal agency), where the Air Force pays the utility bill.

In the past, UESCs were typically considered for increasing energy efficiency through improvements to installation infrastructure, buildings and building systems. Going forward, these objectives should be combined with resilient and cleaner project objectives.

In a UESC a serving or franchised utility company identifies building/equipment energy savings potential that demonstrates an economic return on the investment, then designs, installs, operates and where appropriate maintains the equipment. The capital costs can be paid with appropriated funds or financed by the utility company. If financed, the utility company is paid by using cost savings from the utility service account until the task order is paid off.

The Base Energy Manager submits all proposed UESC projects to AF-OEA (Opportunity Development) for initial vetting prior to commencement of the formal acquisition process.

Coordination: Base Energy Manager, Base Contracting, and AF-OEA (Opportunity Development) Instrument: 3 potential contracting vehicles: GSA area-wide contracts (AWCs), basic ordering agreements (BOAs), and model agreements/


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separate contracts (used where the utility does not have an AWC). These contracts have streamlined contracting processes – model terms and conditions for task orders. Example: Tinker AFB and Tyndall AFB

Type of Initiative Execution Guidance 4.2 ENERGY

SAVINGS

PERFORMANCE

CONTRACT

(ESPC)

Authority: EPAct 1992—42 USC 8253 and 8287; Executive Order 13693; 10 CFR 436; 10 USC 2911, Energy Performance Goals and Plan for Department of Defense; OMB Memorandum M-12-2I, Sep 28, 2012, Subject Addendum to OMB Memorandum M-98-I3 on Federal Use of Energy Savings Performance Contracts (ESPCs) and Utility Energy Service Contracts (UESCs); and Air Force Policy Directive (AFPD) 90-17 Guidance: SECAF and CSAF Memorandum, 23 Feb 2016, Establishment of the Air Force Office of Energy Assurance, and SAF/IE Memorandum 1 Mar 2016, SAF/IE Intent for Air Force Installation Energy Projects ESPCs enable the Air Force to improve energy assurance and

performance while addressing aging infrastructure concerns and reducing consumption. ESPCs, like all other energy improvements, should be evaluated for achieving mission assurance through energy assurance. Specifically each ESPC project should be, to the greatest extent practicable, Resilient, Cost-competitive, and Cleaner.

In the past, ESPCs were typically considered for increasing energy efficiency through improvements to base infrastructure, buildings and building systems. ESPCs have also been used to replace inefficient energy or water-consuming equipment or processes within buildings, including but not limited to data center computer equipment, process equipment or research, development, test and evaluation (RDT&E) equipment within buildings. Going forward, these objectives should be combined with resilient and cleaner project objectives.

The Energy Service Company (ESCO) 1) identifies building/equipment energy savings potential, 2) finances the capital costs using private sector funding; and 3) acquires, installs, operates and maintains the equipment.

The ESCO earns a share of the resulting cost savings from the utility service account until the individual task order is paid off.

The Base Energy Manager submits all proposed ESPC projects to AF-OEA (Opportunity Development) for initial vetting prior to commencement of the formal acquisition process.

Coordination: Base Energy Manager, AF-OEA Instrument: DoE Super ESPC IDIQ and CoE MATOC Example: Tinker AFB, Dyess AFB, Laughlin AFB


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Type of Initiative Execution Guidance 4.3 POWER

PURCHASE

AGREEMENT

(PPA)

Authority: 40 USC 501, Services for Executive Agencies; 40 USC 591, Purchase of Electricity; 10 USC 2922a, Contracts for Energy or Fuel for Military Installations; 10 USC 2667, Leases: Non-excess Property of Military Departments and Defense Agencies; Executive Order 13693; and, Air Force Policy Directive (AFPD) 90-17 Guidance: SECAF and CSAF Memorandum, 23 Feb 2016, Establishment of the Air Force Office of Energy Assurance, and SAF/IE Memorandum 1 Mar 2016, SAF/IE Intent for Air Force Installation Energy Projects PPAs, like all other energy improvements, should be evaluated

for achieving mission assurance through energy assurance. Specifically each PPA project should be, to the greatest extent practicable, Resilient, Cost-competitive, and Cleaner

An energy developer purchases, installs, and maintains & operates renewable power equipment on land owned by the AF and leased to the developer for the life (up to 30 years) of the contract. AF will purchase electricity generated by the project under the contract terms established in the PPA and the contractor should also incorporate features that increase installation energy assurance.

No upfront capital is required to initiate a project. Project concept to construction completion takes 2-4 years.

Base Energy Mangers conduct initial coordination with AF-OEA (Opportunity Development)

Coordination: Base Energy Manager, AF-OEA, AFCEC/CI (for the lease), AFCEC/CZ (for NEPA requirements), SAF/IEI (basing approval), SAF/IEE (to get OSD-ATL) signature approval) Instrument: FAR Contract, supported by lease Example: 19 MW solar power at Nellis AFB


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5 REAL ESTATE

This guide is intended to briefly inform and provide initial guidance on how to execute a Real Estate project; comprehensive guidance can be found using listed references and subject matter experts

Type of Initiative Execution Guidance 5.1 GIFTS OF REAL

PROPERTY TO

THE AIR

FORCE

Authority: Title 10 U.S.C 2601, General Gift Funds Guidance: AFI 51-601, Gifts to the Department of the Air Force (26 Nov 2003); AFI 32-9001, Acquisition of Real Property (27 Jul 1994); Establishes procedures for receiving, accepting, and processing

gifts of real property, or funds conditioned on such funds being used to purchase real property or construct improvements to Air Force real property, offered to the Department of the Air Force.

Does not apply to religious funds, non-appropriated welfare and sundry funds or to gifts from foreign governments to individuals.

Officials receiving a gift must initially determine whether a gift has been offered conditionally or unconditionally. See AFI 51-601, Chapters 2, 3, and 4 for additional guidance.

Air Force personnel will not advise a donor that a gift to the Air Force is tax deductible. Acceptance of a gift occurs when it is approved in writing.

The title of a gift of real property passes to the United States when a final DD Form 1354, or equivalent documentation, to that property is delivered to, and accepted by, the installation or Corps of Engineers.

Samples of “Offer of Gift” and “Letter of Acceptance of Gift” can be found as Attachments to AFI 51-601.

The Secretary of the Air Force may accept gifts of land and interests therein for specific purposes. See Title 10 U.S.C. Sections 2601, 2663(e)(2), 9771, 9773(d)(3) and (e), and annual Military Construction Authorization Acts for further information.

Coordination: Process offers of gifts of real property through functional channels to the official having authority to accept or reject the gift. (SAF/IEI, AFCEC/CIT, SAF/GCN(SA)) Instrument: Deed, Gift Offer Letter, Gift Acceptance Letter


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Type of Initiative Execution Guidance 5.2 TEMPORARY

USE OF AIR

FORCE REAL

PROPERTY

(PERMIT)

Authority: 10 USC 8013 Guidance: AFI 32-9003, Granting Temporary Use of AF Real Property; AFCEC Real Estate Transaction Handbook A permit grants exclusive or non-exclusive use of Air Force real

property to another federal agency. Permits to other DOD agencies are made at no cost (except utilities and support services are reimbursed based on an interservice support agreement (ISSA)). Permits to non-DOD federal agencies (who do not support the Air Force mission or national defense) are made at fair market value (FMV), plus utilities and support services.

Coordination: Base Real Property office; Wing Commander, AFCEC/CIT as required Instrument: Permit Example: Ellsworth AFB vacant facility space, permit to FEMA for natural disaster recovery


USE OF AIR

FORCE REAL

PROPERTY

(LICENSE)

Authority: 10 USC 8013 Guidance: AFI 32-9003, Granting Temporary Use of AF Real Property; AFCEC Real Estate Transaction Handbook Outgrant licenses provide a non-federal party with the limited

privilege of occupying or passing through Air Force real property. Licenses are granted for temporary, non-exclusive use of Air Force real property and should not normally be used for a purpose that requires renewal because of the length of term. They are limited in purpose and term, and specific to the named licensee. If a long-term non-exclusive use is required, exceptions to the license term length may be made by providing a full justification to AFCEC/CIT. The Air Force can withdraw this privilege at any time (revocable at will). Licensees may be charged Fair Market Value (FMV).

Coordination: Base Real Property office; Wing Commander, AFCEC/CIT as required Instrument: License Example: Joint Base McGuire Dix Lakehurst parade ground license for soccer tournaments


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Type of Initiative Execution Guidance 5.4 LEASE OF AIR

FORCE REAL

PROPERTY

Authority: 10 USC 2667 Guidance: AFI 32-9003, Granting Temporary Use of AF Real Property; AFCEC Real Estate Transaction Handbook The Air Force may allow another party to utilize a specified portion

of Air Force property through an outgrant lease (or outlease). This lease gives the party exclusive possession of the Air Force real property for a specified term in exchange for cash payment (rent) or payment-in-kind (PIK or in-kind consideration) in an amount no less than FMV, unless exempted by statute (e.g., certain schools). Leases granted under the authority of 10 USC 2667 require competition unless meeting the specific qualifications for waiver. The lessee may be public or private.

Coordination: Base Real Property office; Wing Commander, AFCEC/CIT as required Instrument: Lease Example: Seymour Johnson AFB Multi Sports Complex

Type of Initiative Execution Guidance

5.5 POSSESSORY

USE AND

CONTROL OF

AIR FORCE

REAL

PROPERTY

ENHANCED

USE LEASE

(EUL)

Authority: 10 USC 2667 Guidance: Air Force Enhanced Use Lease Playbook on the Civil Engineer Portal (Access restricted to Air Force only) An Enhanced Use Lease (EUL) is a type of lease by the Air

Force created by policy that is usually designed to maximize financial return from underused areas of an installations. It rests on the same authority as for all leases (10 U.S.C § 2667). The Air Force leases the property to the lessee in exchange for cash and/or in-kind consideration (IKC) that is at least equal to the property’s fair market value (FMV).

A typical EUL project is managed in seven phases. The first four phases deal with Project Identification and Acquisition, while the last three phases revolve around overall Portfolio Management. The individual Phase Overview narratives in the Playbook (e.g., Phase 0 Overview, Phase 1 Overview) provide in-depth descriptions for each Phase in the EUL process.

Coordination: Base legal, AFCEC/CIU, SAF/GCN, AFCEC/CZN, Base PA Instrument: Lease Note For Projects Intended For Energy Generation: The Project will be subject to different and additional requirements. AF-OEA (Opportunity development) does additional vetting. Coordination will include AF-OEA, Base legal, AFCEC/CIU,

SAF/GCN, AFCEC/CZN, Base PA


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Examples: Luke AFB solar development, Eglin AFB Holiday Inn, Hill AFB Research Park, Nellis AFB WWTP, Grand Forks AFB Grand Sky Development POC: AFCEC/CIU

Type of Initiative Execution Guidance 5.6 CIVILIAN USE

OF AIR

FORCE

AIRFIELD: CIVIL

AIRCRAFT

LANDING

PERMIT

Authority: AFPD 10-10, Civil Aircraft Use of United States Air Force Airfields, FAR Parts 102, 135, 139; 32 CFR Part 855 Guidance: AFI 10-1001, Civil Aircraft Landing Permits and AFI 10-1002, Agreements For Civil Aircraft Use Of Air Force Airfield Air Force airfields are available for use by civil aircraft via a Civil

Aircraft Landing Permit (CALP) so far as such use does not interfere with military operations or jeopardize the military utility of the installation.

o Access will be granted on an equitable basis. o Air Force requirements take precedence over authorized

civil aircraft use. o There are 29 justifications provided in AFI 10-1001 for

providing an aircraft landing permit. The Air Force determines whether civil aircraft use of Air Force

airfields is compatible with current and planned military activities. The Air Force normally authorizes civil aircraft use of Air Force

airfields only in support of official Government business. If exceptional circumstances warrant, use for other purposes may be authorized.

The Air Force reserves the right to suspend any operation that is inconsistent with national defense interests or deemed not in the best interests of the Air Force.

HQ USAF/A3, MAJCOMs, field operating agencies (FOAs), direct reporting units (DRUs) and installation commanders or designated representatives have the authority to approve or disapprove civil aircraft landing permit applications (DD Forms 2400, Civil Aircraft Certificate of Insurance; 2401; Civil Aircraft Landing Permit, and 2402, Civil Aircraft Hold Harmless Agreement) at airfields for which they hold oversight responsibilities.

The Air Force will terminate authority to use an Air Force airfield if the:

o User's liability insurance is canceled. o User lands for other than the approved purpose of use.

Will not authorize use of Air Force airfields: o In competition with civil airports by providing services or

facilities that are already available in the private sector. o Solely for the convenience of passengers or aircraft

operator. o Solely for transient aircraft servicing. o By civil aircraft that do not meet US Department of

Transportation operating and airworthiness standards. o That selectively promotes, benefits, or favors a specific

commercial venture unless equitable consideration is available to all potential users in like circumstances.


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o For unsolicited proposals in procuring Government business or contracts.

o Solely for customs-handling purposes. o When the air traffic control tower and base operations are

closed or when a runway is restricted from use by all aircraft.

Coordination: Base airfield operations office, Wing/CC, approval authority level as defined by AFI 10-1001 Instrument: Air Field Permit Examples: The Air Force processes approximately 400-800 permits per year under this regulation.

Type of Initiative Execution Guidance 5.7 CIVILIAN USE

OF AIR FORCE

AIRFIELD: JOINT USE

AGREEMENTS

Authority: AFPD 10-10, Joint Use of Military and Civilian Flying Facilities, which implements Title 49, United States Code Sections 44502, 47103 and 47107; 32 CFR Part 855 Guidance: AFI 10-1002, AGREEMENTS FOR CIVIL AIRCRAFT USE OF AIR FORCE AIRFIELDS A Joint Use Agreement (JUA) between the Air Force and a local

government agency is required before a community can establish a public airport on an Air Force airfield.

A JUA for an Air Force airfield will be considered only if there will be no cost to the Air Force and no compromise of mission capability, security, readiness, safety, or quality of life.

o Generally, the Air Force is willing to consider joint use at an airfield if it does not have pilot training, nuclear storage, or a primary mission that requires a high level of security. However, joint use will not normally be considered at installations with single runways or if the military and civil aircraft would be collocated in hangers or on ramps, or if access to the civil aviation areas would require routine transit through the base.

Only JUA proposals submitted by authorized representatives of local government agencies eligible to sponsor a public airport will be given the comprehensive evaluation required to conclude a JUA. All reviewing levels will consider and evaluate such requests on an individual basis.

Coordination: A JUA proposal is submitted by a community-authorized

authority to the installation commander. The proposal must include:

o Type of operation o Type and number of aircraft to be located on or

operating at the airfield o An estimate of the number of annual operations for the

first 5 years Installation commander without pre-commitment or comment

sends the proposal to the Air Force Representative (AFREP) at the Federal Aviation Administration (FAA) Regional Office within the geographical area where the installation is located. The


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installation commander provides an information copy of the JUA proposal to HQ USAF (A3OJ).

AFREP provides comments to the installation commander on airspace, air traffic control, and other related areas, and informs local FAA personnel of the proposal for joint use.

The installation and MAJCOM evaluate the proposal and the MAJCOM sends the comments and recommendation from all reviewing officials to HQ USAF/A3OJ. A3OJ reviews the comments and coordinates with GC, and other HQ USAF offices, as needed.

A3OJ reviews and adjudicates comments. A3OJ submits JUA proposal to SAF/IEI for approval of the

proposal. If approved, SAF/IEI sends letter to the community indicating

the compatibility of joint use and informing the community that an environmental impact analysis must be completed before a final decision can be made. The Air Force will act as the lead agency for preparing the environmental analysis. The local community agency representatives, working in coordination with AF personnel at the installation and other concerned local or Federal officials, must identify the proposed action, develop conceptual alternatives, and provided planning, socioeconomic, and environmental information as specified by the appropriate MAJCOM and HQ USAF/CEVP. All costs associated with the environmental studies required to complete the environmental impact analysis process must be paid by the joint use sponsor.

A3OJ negotiates directly with the community on a JUA after the environmental impact analysis process is completed. A3OJ sends and agreed to draft JUA out for Air Force comment by applicable offices (local, MAJCOM, HQ USAF, etc). .

A3OJ evaluates and adjudicates all comments. A3OJ negotiates final draft JUA with community and obtains

final agreement. Community provides final approval of draft JUA to A3OJ A3OJ coordinates final JUA draft with SAF/GC before

submitting to SAF/IEI. A3OJ submits JUA for SAF/IEI final approval/signature. SAF/IEI submits Air Force signed JUA to community for final

approval and execution. SAF/IEI distributes signed copies of JUA to applicable offices.

Instrument: Joint Use Agreement (Sample in AFI) Examples: AF Plant 42, Charleston AFB, Dover AFB, Eglin AFB, Grissom ARB, Kelly Field Annex (Lackland AFB), March AFB, Scott AFB, Sheppard AFB, Westover ARB


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Type of Initiative Execution Guidance 5.8 READINESS AND

ENVIRONMENTAL

PROTECTION

INTEGRATION

(REPI) PROGRAM

Authority: 10 USC 2684a, 31 USC 1501, Chapter I, Subchapter C of Title 32, Code of Federal Regulations Guidance: OSD REPI Buffer Guide and Data Calls, Annual AF REPI Guide and Data Calls, DODI 5545.02, DODI 3200.15, DOD 7000.14R, AFPD 10-2, AFI 90-802, AFI 90-2001 (3 Sep 2014) REPI, which is a DoD program, protects military missions by

helping remove or avoid land-use conflicts near installations and addressing regulatory restrictions that inhibit military activities. The REPI program enables cooperative agreements with eligible entities to encourage compatibility of land uses on and off bases and addresses encroachment and sustainment challenges that have the potential to affect the Air Force mission.

Using the Installation Complex Encroachment Management Action Plan (ICEMAP,) Air Installation Compatible Use Zone (AICUZ,) and Joint Land Use Study (JLUS) processes, the base works with the Air Force REPI program office to document potential risks and submit 10 USC 2684a compliant risk mitigation proposals such as real property controls (ex. restrictive easements) and incentives (payment to land owner for limiting use of property, ex. only agricultural use) to encourage compatibility of land uses

The Air Force partners with an Eligible Entity (may be state or local government agencies and/or nonprofit conservation organizations) through the use of a cooperative agreement between the Air Force and a particular Eligible Entity where the Eligible Entity provides shared funding (which may include gathering additional, authorized sources of funds) , acquires interests in land that ensures current and future land use compatibility with the Air Force’s mission, and agrees to conduct adequate monitoring and management of the acquired interest(s).

Process: 1. AFCEC/CP will receive and coordinate REPI

proposals among AFCEC Directorates 2. AFCEC/CP will facilitate comment adjudication, as

well as prioritizing proposals 3. AFCEC/CI will execute OSD approved REPI

proposals, execute cooperative agreements/deeds of easement, and maintain the REPI database

4. AFCEC/CZ will provide habitat identification and proposal review

5. SAF/GCN and AFCEC/JACE will review proposals and transaction documents for legal sufficiency and compliance

6. AFCEC/CP and CI to develop REPI training modules in collaboration with AFCEC Directorates

Coordination: Base Real Property, Base Legal, Wing/CC, AFCEC/CIT, AF/A4C, SAF/GCN, SAF/IEI


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Instruments: Cooperative Agreement, Funding Authorization Document, Recorded Easement Example: Buckley AFB Compatible Use Buffer Project/ Recreation Trails


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6 MEDICAL

The Surgeon General and Air Force Medical Service (AFMS) provide Airmen, their families, and other eligible beneficiaries with full-spectrum healthcare. This guide is intended to provide initial guidance on how to execute potential Air Force Community Partnership Program initiatives that support the Surgeon General’s and AFMS Vision and Mission.

Type of Initiative Execution Guidance 6.1 MEDICAL

PROFICIENCY

TRAINING

(INTERNSHIPS, EXTERNSHIPS, TWO-WAY

EXCHANGES)

Authority: Implements Air Force Policy Document (AFPD) 44-1 Guidance: Air Force Instruction (AFI) 41-108 “Training Affiliation

Agreement Program” (TAA) (22 Sep 14) A no-cost, legal agreement for training between two or more

institutions. Prepare TAA using templates available in AFI 41-108. Partnering with local hospitals creates new training avenues and

capabilities. Some partnerships can provide participating civilian facilities with

additional highly skilled professionals at no cost. TAAs can be used for internships (i.e. hands-on job training),

externships (i.e. closely supervised), and two-way exchanges. Training must be conducted on-duty to be covered by AFI

Governance and TAAs. Coordination: Routine: Medical Treatment Facility (MTF), Medical Law Consultants (MLCs), AFMS/SG1 Waiver: AFLOA/JACC, SG1N, Consultants, SGJ, SG3, SG1 Instrument: Training Affiliation Agreement Example: Moody AFB, “Warrior Athlete Partnership”

Type of Partnership

Execution Guidance

6.2 CLASSROOM

TRAINING, TRAINING

THAT DOES

NOT INVOLVE

PATIENT

CARE

Authority: Implements Air Force Policy Document (AFPD) 44-1 Guidance: AFI 41-108 “Training Affiliation Agreement Program” (TAA) (22 Sep 14) AFI 41-108, TAA Program, could be used as a general guide;

however, this type of training does not involve patient care. These partnerships involve sharing classes in e.g. Basic Life Support, Advanced Cardiac Life Support, and other lectures.

Rather than developing a TAA, create an "Agreement Certificate" or simple MOU to document implementation

Develop a list of courses offered vs. courses needed. Integrate legal counsel early in the agreement process.

Coordination: Community medical representatives, Medical Group (MDG) leadership, Medical Law Consultants (MLCs) as needed Instrument: Agreement Certificate, or Memorandum of Understanding Examples: Ellsworth AFB “Medical Certificate of Excellence”


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Type of Partnership Execution Guidance 6.3 DEPARTMENT

OF DEFENSE

(DOD)/ VETERANS

AFFAIRS (VA) HEALTH CARE

(SHARING

AGREEMENTS)

Authority: Title 10, U.S.C., Section, 1104, and Title 38, U.S.C., Section 8111 Guidance: DoDI 6010.23, 23 Jan 12, AFI 41-126 Department Of Defense/Veterans Affairs (VA) Health Care Resource Sharing Program (06 Mar 2014) Mutually beneficial direct care sharing agreements between

the Air Force Medical Services (AFMS) and the VA keep care in the federal health care system and save government dollars.

Sharing agreements also improve the efficiency of health care delivery and enhance the clinical currency of AFMS providers.

Must support goals and objectives of the AFMS Strategic Plan.

Instrument: Sharing Agreement Sharing opportunities with the VA will be included in the

annual Medical Treatment Facility and Regional Business Planning process.

A master sharing agreement is recommended when sharing multiple clinical services.

Informational Requirements for Proposed Agreements New agreements must contain a financial or business case

(BCA), currency case (CCA), and readiness case analysis (RCA) demonstrating they make sound business sense.

Templates are available from the AF DoD/VA Program Manager.

It is recommended agreements not be signed until approval to proceed has been granted. This precludes having to resign if the agreement is not approved as written.

Coordination/New Agreement Approval Process The AF approval authority for sharing agreements is the

Director, Medical Operations and Research; final approval is at the VA.

Once the approval to proceed has been granted and signatures secured, the agreement is sent to the VA where, by law, the approval process will not exceed 45 days, if it has not been granted by the 46th day, the agreement is automatically approved.

Example: Examples of completed partnership initiatives are available from the AF DoD/VA Healthcare Programs (SG3S). Please coordinate submission, copying the Air Force Community Partnership PMO.


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Type of Initiative Execution Guidance 6.4 DEPARTMENT

OF DEFENSE

(DOD)/ VETERANS

AFFAIRS

(VA) HEALTH

CARE (JOINT

VENTURES)

Authority: Title 10, U.S.C., Sections, 1104, and chapter 61; Title 38, U.S.C., Section 8111 Guidance: DoDI 6010.23, 23 Jan 12, AFI 41-126 Department Of Defense/Veterans Affairs (VA) Health Care Resource Sharing Program (06 Mar 2014) Mutually beneficial Joint Ventures agreement between the Air

Force Medical Services (AFMS) and the VA save government dollars by eliminating redundant services.

They also improve the overall efficiency of health care and potentially enhance the clinical currency of AFMS providers.

All Joint Ventures will support the goals and objectives of the AFMS Strategic Plan

Coordination: AFMS/SG3S Instrument: Joint Ventures May or may not involve capital planning or coordinated use of

planned or existing facilities. They do have certain characteristics in common that distinguish them from standard sharing relationships.

Joint Ventures function like strategic alliances between the DoD and VA facilities for long-term commitments greater than five years and facilitate comprehensive cooperation, shared risk, and mutual benefit.

Joint Ventures also entail connected, integrated, or consolidated medical facility missions and operations to the extent that there is regular and ongoing interaction in several of the following areas: staffing, clinical workload, business processes, management/governance, information management, logistics, education and training, and, where applicable, research activities.

Example: Examples of completed partnership initiatives are available from the AF DoD/VA Healthcare Programs (SG3S). Please coordinate submissions, copying the Air Force Community Partnership PMO.


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Type of Initiative Execution Guidance 6.5 ON BASE

CONTRACTED

AMBULANCE

SERVICES

PROVIDED BY A

STATE OR

LOCAL

GOVERNMENT

Authority: 10 USC 2679 Guidance: For additional information see IGSA (Section 10) Note: There are other ways for an installation to get ambulance service. Some have inherent capability, some enter into contracts via a competitive process, and some have MOA with local hospitals. This guide provides instruction on how to do a sole-source contract with a State or Local government. Limited to state or local governments IGSAs may not “preclude, or otherwise interfere with existing or

proposed mutual-aid agreements” May use wage grades normally paid by the local government Can only be used when the service provider is already using it

themselves No standard Air Force form or format

If appropriated funds are used for the contracted service, the base contracting office is responsible for administering the intergovernmental support services agreement once SAF/IEI issues a Secretarial Determination under 10 USC 2679.

Coordination: An IGSA Package submitted by an installation to SAF/IEI should contain:

1. Request Memo from the Base with Wing Commander signature Requests approval of Secretarial Determination to enter into an

IGSA Includes primary elements or conditions for the determination

2. Copy of Staff Summary/eSSS Comprises installation and MAJCOM review/ concurrence with

CONS, JA, and FM

3. Business Case Analysis (BCA) Demonstrates the IGSA will serve the best interests of the AF by

enhancing mission effectiveness or creating efficiencies. May be performed by the FM CoE or an installation. Can utilize the BCA Outline provided by SAF/FMC for simple

concepts.

4. Letter from a state or local government indicates interest to support the Air Force mission.

5. Completed Small Business Checklist Instrument: Intergovernmental Support Agreement (IGSA)


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POSSESSORY

USE AND

CONTROL OF

NON-AIR

FORCE

PROPERTY

(“TIMESHARE”)

Authority: 10 USC 2663 Guidance: AFCEC Real Estate Playbook Appendix 11 This concept is still under development. However, a significant amount of discussion and effort has taken place such that options are being considered. One option is for an in-grant lease. This is an acquisition

where the Air Force “rents” exclusive possessory interest in the real property for a specific time period in return for payment of rent or other consideration to the owner.

In the case of a “timeshare”, the lease is for a specified period of time or day/days within a greater general period of time (ex. Every Tuesday & Thursday 8am to 5pm for a year).

The Air Force has authority for certain short term leases. Another option in CONUS is to use the General Services

Administration (GSA). GSA acquires the lease and sublets to the Air Force through

an Occupancy Agreement. Coordination: Base Real Property, Base Legal, Wing/CC Instrument: Lease / Occupancy Agreement Example: Tyndall AFB Satellite Military Medical Clinic in Panama City, FL.


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7 POLICE AND FIRE

Type of Initiative Execution Guidance 7.1 MEMORANDUM

OF

UNDERSTANDING

BETWEEN

GOVERNMENT

AND CIVILIAN

FIRE

DEPARTMENTS

Authority: 42 USC 5121 Guidance: AFI 32-2001, 10-2502, and AFMAN 10-2504 AFI 32-2001 paragraph 5.5 states:

“Off/On-Base Familiarization. Fire and Emergency Services personnel will become familiar, at least annually, with areas surrounding the base where they may provide mutual aid or assistance and likewise for responding personnel that may be required to respond on the installation from the local community. Annual joint training exercises are recommended. Installation Fire Chiefs will maintain copies of civilian community fire department emergency response plans for high hazard areas when those communities maintain such plans and where permitted by host nation/local laws.”

Coordination: Support Agreement Manager, Fire Chiefs, Wing/CC Instrument: Memorandum of Understanding Example: Tinker AFB, “Fire Fighter Ride-out Program”


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Type of Initiative Execution Guidance 7.2 USE OF AIR

FORCE AND

NON-AIR

FORCE SMALL

ARMS RANGES

Authority: Air Force Policy Directive (AFPD) 36-22, Air Force Military Training Guidance: AFI 36-2654, Combat Arms Program, 13 Jan 16

AFI 36-2654, Section 1.12.2, states that the Security Forces Commander/Combat Arms Organizational Commander: determines if on base ranges will be made available for non-Air Force and non-military use; military Air Force use always has priority. This use will be based on command and local range instructions, safety restrictions, and legal considerations.

AFI 36-2654, Section 1.12.9, provides that when the Security Forces Commander/Combat Arms Organizational Commander deems it appropriate, he/she may enter into local agreements with other agencies/Services (military, host nation, civilian police departments, etc.) to use their firearms training facilities or to allow other agencies/Services to use Air Force firearms training facilities.

AFI 36-2654, Section 2.3.2.8, requires Non-DoD civilian shooters and range safety officials sign a hold harmless agreement relieving the Air Force and DoD from any liability resulting from injuries or death of these personnel while utilizing the base range(s). Combat Arms will obtain approval of this hold harmless agreement from the installation Judge Advocate office and maintain completed agreements in the Combat Arms section.

Coordination: Security Forces Commander/Combat Arms Organizational Commander, Base JA Instrument: Memorandum of Understanding (MOU), Memorandum of Agreement (MOA) (if money is being exchanged), or license


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Type of Initiative Execution Guidance 7.3 ANIMAL

CONTROL - USE OF

COMMUNITY

RESOURCES

Authority: Department of Defense Instruction 4150.07, DoD Pest Management, 29 May 2008 Army Regulation 40–905/SECNAVINST 6401.1B/AFI 48–131 Veterinary Health Services, 26 August 2006 Guidance: Armed Forces Pest Management Board, TECHNICAL GUIDE NO. 37, INTEGRATED MANAGEMENT OF STRAY ANIMALS ON MILITARY INSTALLATIONS The Department of Army has been designated as the Executive

Agent for Veterinary Services. Army Regulation 40-905/AFI 48-131 Section 2-4 states that it is

the responsibility of Veterinary Corp Officers to: review invitation for bids on contracts for the collection or disposal of animal or animal biological wastes, animal apprehension services, or other veterinary requirements. The following subjects must be included in the contracts: sanitation of equipment, humane animal care, and protection of the environment and military and animal populations.

Technical Guide No. 37 states that the Integrated Pest Management Coordinator (IPMC), Veterinary Services and Public Affairs personnel should, in coordination, identify local animal control agencies, animal shelters and rescue agencies. Such agencies can assist the installation in humane disposition of stray animals captured on the installation.

When suitable kennel facilities, staffing or funding do not exist on the installation, transfer captured stray animals to local animal control agencies, shelters and rescue agencies for disposition. The IPMC will establish, as appropriate, agreement(s) between the installation and local animal control agencies, shelters and rescue agencies to pick up or receive the transfer of stray animals captured on the installation.

o Agreements with the local community for animal control services can be provided by a Memorandum of Agreement (MOA). However agreements with private companies for animal control services should be contracts governed by the Federal Acquisition Regulations (FAR).

Coordination: IMPC, Base JA, Contracting Officer or Support Agreement Manager, Installation Commander Instrument: MOA or contract


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Type of Initiative Execution Guidance 7.4 USE OF NON-

AIR FORCE

CRIMINAL

CONFINEMENT

FACILITIES

Authority: AFI 31-105, Air Force Corrections System, June 2015 Section 1.2.2 of the AFI indicates that if a Military Confinement

Facility is not reasonably available, the installation commander may authorize confinees to be placed into either other Federal or civilian facilities used or approved by the US Marshals Service (USMS). If such a facility is not reasonably available, a military confinee may be transferred to a facility accredited by the American Correctional Association (ACA) or a facility accredited by the State in which the confinee is located. Only use/contract with those non-military facilities that are Prison Rape Elimination Act (PREA) compliant or actively seeking PREA compliance.

o Reasons for an installation to have agreement include, but are not limited to, the lack of an organic correctional facility; natural disaster preparedness should organic facility become unusable; or lack of bed space (temporary high population, gender mix of the confinees, special needs of the confinee, etc.).

o Any circumstance that would cause an anticipated incarceration at a location other than the parent installation necessitates a written SA (with a Federal or DoD entity) or a contract (with a non-federal government or a civilian entity) to ensure promised services and payments are rendered. In the case of SA, IAW AFI 25-201, Intra-Service,

Intra-Agency, and Inter-Agency Support Agreements Procedures.

In the case of contract IAW Federal Acquisition Regulations.

Coordination: Security Forces, Base JA, Contracting Officer or Support Agreement Manager, Installation Commander Instrument: Memorandum of Understanding or Memorandum of Agreement (if compensation is required), or a contract


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Type of Initiative Execution Guidance 7.5 TRANSFER

RECEIPT OF

BASE 911

CALLS TO

LOCAL

COMMUNITY

911

Authority: DoDD 5134.01 Under Secretary of Defense for Acquisition, Technology, and Logistics Guidance: DoDI 6055.17, DoD Installation Emergency Management (IEM) Program; AFMAN 33-145, Collaboration Services and Voice Systems Management Emergency 911 (e911) is defined as a telephone system

consisting of network, database, and enhanced 911 equipment that uses the single three-digit number (911) for reporting police, fire, medical, or other emergency situations to a central location, while automatically associating a physical address with the calling party’s telephone number.

DODI 6055.17 states that all installations shall have: The availability of enhanced 911 services with recording

capability at domestic installations through either direct support (Government-owned and -operated) or support from State and local authorities off the installation.

AFMAN Section 4.12 states: Air Force installations will establish a single phone

number to satisfy all emergency response requirements (e.g. police, fire and medical) and ensure both Automatic Number Identification and Automatic Location Identification information is provided to the Emergency Communications Center (ECC).

Air Force installations located within the Continental United States (CONUS) with a government-owned and operated emergency dispatch are required to have e911 services with recording capability.

These CONUS installations are required to route all Emergency Service Number calls originating on the installation to the ECC.

CONUS installations receiving e911 emergency response from State and Local authorities must codify the support for these services in a Memorandum of Agreement or Understanding with the service provider (see 4.12.2.2 in the AFMAN).

Oversight for CONUS and OCONUS agreements, along with the operational use of e911, rests with the A4/7 community.

Because in most cases there will be money involved for the e911 service, an MOA is recommended using the formatting reflected in DoDI 4000.19 and AFI 25-201 for Support Agreements (which can include intergovernmental agreements).

Notes: Organizations interested in transfer of e911

responsibilities should be aware that the proposed transfer may cause an A-76 impact if there is a shift in duties from internal Air Force personnel to outside personnel or diminution in positions (elimination of an entire position is not required to create an impact). A-76 is an OMB-circular that establishes requirements to


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compare the outsourcing by contract of commercial activities currently performed by federal employees. There is a statutory moratorium on conducting such analysis currently. If you have a concern, contact the AFCP Program PMO.

The authority for the e911 agreement itself resides in the DoDI 6055.17 and AFMAN 33-145 rather than the support agreement issuances (DoDI 4000.19 and AFI 25-201)

A FAR contract is not appropriate/required in this circumstance since e911 services are not commercial in nature.

DoDI 6055.17 permits the MOU/MOA to be executed by the installation commander.

NOTE: Bases entering into a MOA with the local community for e911 service should make sure that they are not paying more than another organization entering into a similar arrangement.

Coordination: Base JA, Base Civil Engineer, Installation Commander Instrument: MOU or MOA


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8 VEHICLE, EQUIPMENT AND MAINTENANCE


AF/GOVERNMENT

BUSES TO

ATTEND

COMMUNITY

SUPPORTED

MWR EVENTS

Authority: 40 USC Subchapter VI Guidance: AFI 24-301 Section 3.59 allows the installation commander to authorize

the use of bus transportation in support of both DoD-authorized Morale, Welfare, and Recreation (MWR) programs or family service center programs as long as providing bus transportation will not be a detriment to the mission. The AF has interpreted this to include events in the local community that provide support to and increase the AF’s morale, welfare or recreation (for example, Downtown performance of Tops in Blues). Note that installation commander authorization/sponsorship should be of the transportation and not necessarily the event itself.

Several critical factors in the above example were: MWR vehicles were not available, and a significant population of the base was students who did not have personal or public transportation available to them.

Coordination: Base Civil Engineer, Force Support Squadron, Logistics Readiness Squadron, Wing/CC Instrument: Memo for the Record Example: Goodfellow AFB MWR


GOVERNMENT

VEHICLES

Authority: Title 40 U.S.C. § 601-611, Motor Vehicle Pools and Transportation Systems Guidance: AFI 24-301, Vehicle Operations

AFI 24-301, Section 8.1. Policy established that: Air Force motor vehicles shall only be operated by military, civilian employees, approved civilian contractors, and NAF employees who meet all criteria of this instruction.

Operation of AF government motor vehicles (GMVs) (owned, leased or rented) requires possession of a valid state motor vehicle license.

Civilian employees are required to undergo medical fitness assessments every 4 years in accordance with 5 CFR, Part 930, Subpart A, Administrative Practice and Procedures and 49 CFR, Federal Motor Carrier Safety Administration, Parts 391.41 through 391.49 to operate a GMV.

Section 8.10 of the AFI establishes the following Contractor Licensing requirements:

o IAW DODD 4500.36-R para C8.2.5. Contracts and agreements that require the use of Federal vehicles


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(including IGSA) will require that operators comply with licensing requirements of the State and local motor vehicle laws. DoD contractor employees assigned to operate either government owned/leased equipment in performance of their contract shall be certified, by the contractor and at the contractor’s expense, as being fully qualified to operate the vehicles/equipment to which they are assigned. The prime contractor shall document all operator qualifications. This documentation shall be provided to the administrative contracting officer before any contract employee engages in any mode of equipment operation. This letter will be updated as necessary and remain on file with Operators Record & Licensing and the administrative contracting officer.

The only other group authorized to operate GMV are Federal Prison Inmates (FPC). FPC inmates are not licensed by the Air Force to operate Air Force vehicles. Inmates that are allowed to operate Air Force vehicles under the terms of a HQ USAF approved support agreement will be appropriately licensed by the state on the vehicle required to be operated. Operator licenses issued by the Federal Prison may be accepted in place of a state license.

AF Community Partnerships that involve vehicle sharing concepts are limited to AF policy described herein

Coordination: Base Vehicle Operations Supervisor, Logistics Readiness Squadron Commander, Installation Commander.

Type of Initiative Execution Guidance 8.3 USE OF NON AIR

FORCE AIR

FIELDS

(PURCHASE OF

AVIATION FUEL

AND GROUND

SERVICES)

Authority: 10 USC 8013 Secretary of the Air Force Guidance: AFI 11-253 "Managing Off-Station Purchase of Aviation Fuel and Ground Services (08/19/13) Air Force planes often need to either purchase fuel or obtain

ground services from commercial airfields. In many instances the plane/s will remain on the commercial airfield for extended periods. In other instances, they merely fly in and then leave.

In either case, AFI 11-253, Section 3.6, Non-Contract Purchase at Commercial Airfields states:. “Aircrews may purchase aviation fuel and ground services on the open market using the AIR Card®. At locations where the AIR Card® is not accepted and time permits, advise the vendor to call the 24-hour customer service line on the back of the AIR Card® to secure an agreement for fuel and services. In the event the vendor will not accept the AIR Card®, aircrews shall use an SF 44, for payment purposes. In a few cases, aircrews may use cash to pay for fuel.”


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The above AFI indicates that the Air Force “may purchase …” In instances where the Air Force is being charged for fuel but is not being charged for ground service (including blocking of the planes wheels, bed down on apron space, etc.), the AFI does not preclude the non-payment for such an arrangement. The additional ground services are being provided not as a gift but as part of the incentive for the purchase of the fuel.

In situations where the Air Force is arranging the placement of planes for potentially extended periods of time and there is payment for either fuel and/or ground services, the agreement should be a Memorandum of Agreement (MOA). The format for MOA can be found in DoDI 4000.19.

Coordination: Mission Support Group Commander, Base JA, Base Financial Officer, Base Support Agreement Manager Instrument: MOA


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9 TRAINING

Type of Initiative Execution Guidance 9.1 CIVIL ENGINEER

TRAINING FROM

LOCAL

COMMUNITY

Authority: 10 USC 2679 - Intergovernmental Support Agreement Guidance: AFI 10-210 Prime Base Engineer Emergency Force (BEEF) Program.

In general, if offered, the Air Force can receive civil engineer training from local communities. Per A4C, this training opportunity can be advantageous for both the Airmen and local community. Training that is offered in a classroom setting can serve as a venue for Airmen to receive specific skill-craft training (e.g. electrician, water plant operator) and would be additive to their contingency skills training. It was determined that this training partnership could substitute for Prime BEEF training and contingency training required by AFI 10-210, Prime BEEF Program (the below list indicates some of the Prime Beef Program requirements). The PMO considered use of Realistic Military Training (see 9.2) but the DoDI excludes the use of existing training facilities. Example: In the case of Homestead ARB, the City of Homestead offered, free of charge, local training on the following requirements (also noted is the location of the closest AFB providing the training):

Training Requirements Closest Location

Install and Maintain Substation Equipment Eglin AFB, FL

Pole Climbing Rescue Eglin AFB, FL

Overhead Distribution Systems Eglin AFB

Rigid Pavement Construction and Repair Tyndall, FL

Flexible Pavement Construction and Repair Patrick AFB, FL

Sub-Surface Drainage Installation, Inspection, and Repair

Patrick AFB, FL

Install, Maintain, and Repair, Water System Components

Patrick AFB, FL

Install, Maintain, and Repair, Collection System Components

Patrick AFB, FL

Install, Maintain, and Repair Valves Patrick AFB, FL

Inspect Backflow Prevention Devices Sheppard AFB, FL

Pipeline Inspection Using CCTV Equipment Patrick AFB, FL

Sewage Lift Stations Patrick AFB, FL

Water Testing Dyess AFB, TX

Water Treatment Plan Operations Dyess AFB, TX

Wastewater Treatment Plant Operations Dyess AFB, TX


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Sewage Pumper Truck Operations Patrick AFB, FL

Herbicide Application Sheppard AFB, FL

Larvicide Application Sheppard AFB, FL

Animal Control Tyndall, FL

Sewage Pumper Truck Operations Patrick AFB, FL

Working With Civil Authorities in an incident Command System (ICS) Atmosphere

Dobbins AFB, GA

The Base developed a MOA with the City and will use IGSA authority as opposed to the AFI 10-210 as the basis for signing the MOA in order to receive the training. NOTE: The Business Case Analysis (BCA) for this effort indicates a potential savings of over $125,000. Coordination: An IGSA Package submitted by an installation to SAF/IEI should contain:

1. Request Memo from the Base with Wing Commander signature Requests approval of Secretarial Determination to enter into

an IGSA Includes primary elements or conditions for the determination

2. Copy of Staff Summary/eSSS Comprises installation and MAJCOM review/concurrence

with CONS, JA, and FM 3. Business Case Analysis (BCA) Demonstrates the IGSA will serve the best interests of the AF

by enhancing mission effectiveness or creating efficiencies. May be performed by the FM CoE or an installation. Can utilize the BCA Outline provided by SAF/FMC for simple

concepts. 4. Letter from a state or local government indicates interest to

provide the support. 5. Completed Small Business Checklist

Instrument: IGSA Examples: Homestead ARB Civil Engineer Training


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Type of Initiative Execution Guidance 9.2 REALISTIC

MILITARY

TRAINING (E.G. BLIGHT

REMOVAL; REPAIR A

FOOTBALL FIELD)

Authority: 10 USC 8013 - Secretary of the Air Force Guidance: DoDD 1322.18 Military Training, DoDI 1322.28 Realistic Military Training Off Federal Real Property; Joint Ethics Regulations 3-211 - Logistical Support of Non-Federal Entity Events. NOTE: OSD prefers the use of Innovative Readiness Training (IRT) over Realist Military Training (RMT). The reason for this is changes to IRT have made approval faster and easier and at a significantly lower level and IRT has a review and coordination process that RMT (at low risk levels does not) that helps insure proper use of the authority. RMT is critical to force readiness. However, environments replicating those encountered in actual operations may not be available in the size or desired level of realism on federal property. Urban environments are the most complex and difficult to emulate on federal property and are the desired environment for most RMT. By its nature, training off federal property, particularly in private or commercial urban settings, raises unique legal, policy, public affairs (PA), media, safety, and coordination issues that must be considered as part of the planning, approval, and notification process. Comprehensive and effective risk identification and mitigation is instrumental to safe conduct of RMT and limiting the associated administrative burden. DoDD 1322.18 states that “Individual, staff, and collective military training programs funded by the Department of Defense shall be available to Active and Reserve Component personnel, civilian employees and, when authorized, to contractors, allies, and other U.S. Government or non-Government agency personnel. DoDI 1322.28 lays out the process and procedures for determining the level of risk and the corresponding level of authorization. Risk assessment factors that must be included in the assessment: (1) Exposure and interaction with civilian population. (2) Nature of operations. (3) Sensitivity of the terrain and included facilities. (4) Terms of use of the objective facility. (5) Nature of DoD presence. (6) Presence, nature, and impact of fixed and rotary wing aircraft operations including unmanned aerial systems. (7) Presence, interaction, and applied capabilities of non-DoD agencies. (8) Degree of local, State, and federal political and public interest. (9) Nature of PA activities (active or passive) and presence. (10) Availability and response time for DoD and non-DoD emergency services.


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However, training is not to be done at private, commercial, State, or local facilities that have been specifically developed, established, or operated for the purpose of training such as that which will occur during the proposed training event. During the planning phase for the RMT event it is important to closely coordinate with and obtain approval for the event in writing from appropriate local authorities. Commanders will work closely with their legal and PA offices to assist in determining appropriate civil authorities and officials with whom to coordinate the event.

Joint Ethics Regulation 3-211. JER requirements should be reviewed and considered as part of the overall effort. They include but are not limited to: The support does not interfere with the performance of official duties and would in no way detract from readiness

DoD community relations with the immediate community and/or other legitimate DoD public affairs or military training interests are served by the support

It is appropriate to associate DoD, including the concerned Military Department, with the event

The event is of interest and benefit to the local civilian community, the DoD Component command or organization providing the support, or any other part of DoD

The DoD Component command or organization is able and willing to provide the same support to comparable events that meet the criteria of this subsection and are sponsored by other similar non-Federal entities

The use is not restricted by other statutes (see 10 U.S.C. 2012 which limits support that is not based on customary community relations or public affairs activities) or regulations; and DoD 5500.36.

Coordination/Approval and Notification: The approval authority and notification requirements are determined based on risk and the event categorization (see DoDI 1322.28). For example, the minor risk event category is approved at the first O-6 level command authority; and notification is provided to the first level general or flag officer command authority. It should be also noted that the approving official takes responsibility for any funding requirements (ex. equipment, supplies, etc.) as well as any liabilities (ex. broken equipment). Instrument: Memorandum of Agreement


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INNOVATIVE

READINESS

TRAINING

Authority: 10 U.S.C. 2012 Support and Services For Eligible Organizations and Activities Outside of the Department of Defense Guidance: Department of Defense Directive (DoDD) 1100.20 Support and Services For Eligible Organizations and Activities Outside of the Department of Defense NOTE: OSD prefers the use of Innovative Readiness Training (IRT) over Realist Military Training (RMT). The reason for this is changes to IRT have made approval faster and easier and at a significantly lower level and IRT has a review and coordination process that RMT (at low risk levels does not) that helps insure proper use of the authority.

The Office of the Assistant Secretary of Defense for Manpower and Reserve Affairs (OASD/M&RA), is responsible for policy, guidance and oversight.

SAF/MR provides oversight for the Air Force, issues Air Force instructions, appoints program managers, and validates all requests for additional training funds from the OSD Civil-Military Programs (CMP) IRT appropriation.

IRT projects provide commanders of Active, Guard, and Reserve units another option to meet their training and readiness requirements, enhancing morale, and contributing to military recruiting and retention while meeting a civil-society need. These projects should be incorporated into future unit training plans and budgets.

Military units may compete for additional training funds from the OSD CMP IRT appropriation. Projects that propose joint, total force, and interagency integration opportunities complete best.

Each State and Organization have unique and specific legal requirements, therefore a legal review must be accomplished for each project to ensure that these legal requirements are satisfied. DoD and military leadership must ensure that they afford only the best support and services to the civilians they serve

Specific program guidance and approval and application information can be found at http://irt.defense.gov o Click on the Applications Tab o Scroll Down to the Military Applicants section o Click on the IRT Procedures and Principles link

Coordination: This is dependent upon a number of factors outlined in at the link above, but at a minimum would require: Sponsoring/requesting Installation organization (Base JA, Installation Commander) and notification to OASD/M&RA Instrument: Civilian and military application forms


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Type of Initiative Execution Guidance 9.4 TRAINING FROM

STATE OR LOCAL

GOVERNMENTS

Authority: 10 USC 8013 Guidance: AFI 1-2 Commander’s Responsibilities (8 May 2014) AFI 1-2 states in Section "3.2.3. Training. Commanders must ensure their units are adequately trained. Unit training should take a building-block approach. Individuals must be proficient in career-field specific skills before incorporating those skills into team and unit training. Unit training spanning the entire scope of the unit mission should include total force, joint, or partner-nation opportunities whenever possible. Training should replicate the distributed, chaotic and uncertain nature of expected operating environments." The above allows Commanders the discretion to enter into agreements to attend training provided by State or local governments. Any agreement (Memorandum of Understanding or Agreement) should take into consideration the need to include/address any liability that might arise out of training. Bases should abide by any AFI-imposed restrictions on such agreements or seek appropriate waivers.

Coordination: Base JA, Base Functional organization, Installation Commander Instrument: MOU or MOA POC: Will depend upon the specific training requested Examples: JBER and Goodfellow MOAs on Vehicle Maintenance


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10 INTERGOVERNMENTAL SUPPORT AGREEMENT (IGSA) BASICS

The statute at 10 U.S.C. § 2679 “Installation Support Services: Intergovernmental Support Agreements (IGSA)” (formerly 10 U.S.C. § 2336, re-designated by Sec 351 of Public Law 113-291) authorizes the Secretary of the Air Force to enter into a sole source IGSA with a State or local government for installation- support services. This may occur if the Secretary determines that the agreement will serve the best interests of the Air Force by enhancing mission effectiveness, or creating efficiencies or economies of scale, including by reducing costs

Key points for an installation to consider before using an IGSA include:

• Limited to State or local governments • Ability to sole-source (w/o competition) • May use wage grades normally paid by the State or local government • May not to exceed a term of five years • Can only be used when the installation support service is already being provided by the

State or local government for its own use • Any contract awarded by a State or local government to provide an installation-support

service pursuant to an IGSA must be made on a competitive basis • No standard Air Force form or format for an IGSA • If using appropriated funds, then the IGSA will take form of a contract based on FAR

Part 12 - “Acquisition of Commercial Items – General” procedures A. FAR Part 12 Background:

Since the passage of the Federal Acquisition Streamlining Act of 1994 (FASA), the preference within the Federal Government has shifted from the acquisition of items developed exclusively for the Government to the acquisition of commercial items

In general, "commercial items" are those that have been offered for sale to, and are used by, the general public

B. Thus, leveraging FAR Part 12 for implementing IGSAs that use appropriated funds:

Establishes a proven regulatory framework that offers a range of discretion to installations for enabling partnerships

Provides for a flexible and resilient regulation understood by a robust acquisition workforce

Offers streamlined procedures for the Air Force to purchase commercial items and services offered by communities

C. Commercial Item Contract - Key Elements:

SF 1449 (Parties, Payment Office, Signatures, etc.) Schedule of Services (unit, qty, price, etc.) Performance Work Statement (PWS) FAR Clauses

- 52.212-3 - Offeror Reps and Certs (CO may tailor) - Type of entity, Tax Information Number (TIN), responsibility, child labor, etc. - 52.212-4 - Contract Terms & Conditions (CO may tailor) - Inspection/Acceptance, Changes, Disputes, Invoices, Payment, Termination

(Convenience/Cause), etc.


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- 52.212-5 – Terms & Conditions to Implement Statutes & Exec. Orders (CO selects applicable laws and Eos)

FAR Site: http://farsite.hill.af.mil/

10.1 IGSA REQUEST PACKAGE REQUIREMENTS An IGSA Package submitted to SAF/IEI should contain at a minimum: Request Memo for the Proposed IGSA

o Requests approval of Secretarial Determination to enter into an IGSA o Includes primary elements or conditions upon which the determination rests

Copy of eSSS o Comprises CONS, JA, FM, or other applicable reviewers

Business Case Analysis (BCA) o Demonstrates the IGSA will serve the best interests of the Air Force by

enhancing mission effectiveness or creating efficiencies or economies of scale, including by reducing costs

o Must include analysis of impact to small business (can be a separate page or included in the BCA)

Letter of Intent from a State or local government o Indicates intent to enter into an IGSA in support of the Air Force mission o Statement that any contract awarded by a State or local government to provide

an installation-support service to the Air Force pursuant to an IGSA has been made on a competitive basis

Small Business Checklist o Details potential impacts to Air Force Small Business Goals at the installation

resulting from a partnership o Summarizes info related to current small business contractor, if applicable


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Type of Initiative Execution Guidance 10.2 USE OF AN IGSA

FOR

COOPERATIVE

PURCHASING

WITH A STATE OR

LOCAL

GOVERNMENT

Authority: 10 U.S.C. 2679 - Intergovernmental Support Agreement (IGSA) Guidance: Currently, no DoDI or AFI exists to address this matter. Installations seeking to leverage the local buying power of a State or local government may be able to do so using an IGSA when the cooperative purchase: - is for an installation support service - obtains supplies or services typically provided by a local government for its own needs - enhances mission effectiveness or creates efficiencies or economies of scale, including by reducing costs. To develop an IGSA for cooperative purchasing, an installation, in accordance with SAF/IEI and SAF/AQC policy, must utilize a contract based on Part 12 of the Federal Acquisition Regulation (FAR), formed between the Air Force and the participating State or local government. Consortiums: If an installation wishes to obtain supplies from a consortium of local governments, then it should verify that the consortium is considered an instrumentality of a State or local government, or it includes state or local government participants, and it (or its components) currently provides the proposed supplies for their own use. In the case of a consortium not considered an instrumentality of a State or local government, the installation should consider entering into an IGSA with one of the participating local governments to obtain the services and/or supplies offered through the consortium. Coordination: CONS, JA, MAJCOM, AFIMSC, SAF/IEI As it the case with any IGSA, an IGSA Request Package submitted to SAF/IEI should contain: Request Memo

o Requests approval of Secretarial Determination to enter into an IGSA

o Includes primary elements or conditions upon which the determination rests

Copy of eSSS o Comprises CONS, JA, FM, or other applicable

reviewers Business Case Analysis (BCA)

o Demonstrates the IGSA will serve the best interests of the Air Force by enhancing mission effectiveness or creating efficiencies or economies of scale, including by reducing costs

Letter of Intent from a State or local government


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o Indicates intent to enter into an IGSA in support of the Air Force mission

o Certification that any contract awarded by a State or local government to provide an installation-support service to the Air Force pursuant to an IGSA has been made on a competitive basis

Completed Small Business Checklist o Details potential impacts to Air Force Small Business

Goals at the installation resulting from a partnership o Summarizes info related to current small business

contractor, if applicable Instrument: IGSA implemented using a contract based on FAR Part 12 once SAF/IEI has issued a Secretarial Determination letter that the proposed arrangement is in the best interest of the Air Force Example: IGSA between Peterson AFB and El Paso County


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10.3 INTERGOVERNMENTAL SUPPORT AGREEMENT (IGSA) PARTNERSHIP CHECKLIST

This checklist is a guide for those seeking SAF/IEI approval to receive an installation support service from a State or local Government in accordance with 10 § U.S.C. 2679. It is designed to enhance consistency in IGSA requests. The information provided in this

document is for Air Force internal use only.

Section I – Summary of Partnership Initiative

Installation: Name of the participating installation.

Title of Partnership Initiative:

Provide a summary of the partnership concept between the Air Force and a State or local government.

Proposed partner to the Air Force:

Name of the State or local government entity to form the partnership.

Air Force requirement(s):

Describe the bona fide need or requirement to be satisfied through the partnership (include numeric descriptors of quantities, frequencies, etc. if possible).

Proposed installation support service:

Identify the specific installation support service being proposed under a partnership to fulfill the Air Force’s requirement (what will be provided to the Air Force as part of the agreement).

Section II – How is the Air Force currently meeting this requirement?

# Question Answer

(Y/N)

1

Is the function associated with the requirement currently performed by Military or Civilian personnel? If the answer is yes, using the space below in #1a, explain what has occurred that would cause a change from the work being performed by Military or Civilian personnel. If the result of the proposed action is to move tasks or jobs from Air Force personnel, consider A-76 implications.

1a

2

Is the proposed installation-support service, in whole or in part, currently provided to the Air Force via a contract? If the answer is yes, then provide the current contract information below (#2a). If the answer is no, then skip to Section III.

2a

Award Date: Base Period: Option Years: Award Amount: Contract Type (firm fixed price, cost-plus, etc.):

8(a) set-aside Service Disabled Veteran-owned SB


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Other SB set-aside HUBZone Program

Small Disadvantaged Business

Ability One

Woman-Owned SB Veteran Owned Small Business

Section III – Key Factors for Establishing Partnership

# Question Answer

(Y/N)

1 Does the proposed IGSA enhance mission effectiveness or create efficiencies or economies of scale, including by reducing costs to the Air Force?

2 Is the proposed partnership using an IGSA solely between the Air Force and a State or local government entity?

3

Has the installation verified that the proposed IGSA does not interfere with existing or proposed mutual aid agreements relating to police or fire protection services or other similar first responder arrangements?

4 Does the State or local government entity currently provide the identified installation support service for its own use?

5

Does the State or local government entity offering to provide the installation support service use its organic capability and manpower (e.g., government personnel) to perform such service(s)? If the answer is yes, skip to question #6; if no, then answer question #5a below.

5a

If the State or local government outsources the installation support service via a contract to a third party (e.g., commercial vendor), has that contract been awarded on a competitive basis by the State or local government?

6

Will the Air Force be using appropriated funds to make payments to the State or local government entity under the proposed IGSA? If the answer is yes, then answer question #6a below; if no, then answer question #6b.

6a If yes, does the Contracting Squadron (CONS) understand their role in the partnering process, since the IGSA will be implemented using a contract based on the FAR?

6b If no, has an appropriate legal instrument been selected for the IGSA and has the base Judge Advocate (JA) been consulted in the matter?

7 Have dedicated teams including representatives at the installation from CONS, JA, FM and Small Business (if applicable) been consulted regarding the proposed initiative?

8

Has a Business Case Analysis (BCA) been developed that identifies efficiencies/reduction of costs and includes feasible alternatives to the proposed partnership for meeting the installation’s requirement?

9 Has the installation considered impacts to socioeconomic programs and goals, including small business?

10 Has the State or local government submitted a letter of intent to the installation for providing the installation support service?


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11 RELATED AUTHORITIES AND BACKGROUND INFORMATION

Type of Partnership Overview 11.1 GUIDANCE ON

POSSIBLE A-76

IMPACTS

Authority: Reorganization Plan No. 2 of 1970 (31 U.S.C. § 1111); Executive Order 11541; the Office of Federal Procurement Policy Act (41 U.S.C. § 405); and the Federal Activities Inventory Reform (FAIR) Act of 1998 (31 U.S.C. § 501 note) Guidance: Office of Management and Budget (OMB) Circular No. A-76 (May 29, 2003), Performance of Commercial Activities IGSAs and OMB Circular A-76: 10 USC 2679 states that IGSAs shall not be used "to circumvent the requirements of Office of Management and Budget Circular A-76 regarding public-private competitions"

OMB Circular A-76 is a federal executive branch policy for managing public-private competitions to perform functions for the federal government. A-76 states that, whenever possible, the federal government should conduct competitions between public agencies and the private sector to determine who should perform the work.

However, DoD is expressly prohibited by law, under the current moratorium on A-76 competitions from conducting competitions and converting any work currently performed, or designated for performance, by any number of civilian personnel to private sector performance (including performance by local or state governments).

What Actions Trigger OMB Circular A-76 Application: A proposed IGSA will trigger OMB Circular A-76 if the agreement converts, in whole or in part, a DoD commercial function performed by even one DoD civilian employee to performance by a non-DoD civilian employee.

The prohibition applies to functions and work assigned to civilian employees, regardless of whether the position/billet is established for that work and whether that position/billet is encumbered.

A function being performed by DoD personnel cannot be modified, reorganized, divided, or in any way changed for the purpose of exempting the conversion of a function performed by a DoD civilian employee from A-76 requirements.

Examples of Actions That Are Not Likely to Trigger A-76: However, an A-76 question isn't just limited to when you're using 10 USC 2679 -- it's for any proposal under any authority. Events that will trigger OMB Circular A-76 vary on a case-to-case basis. However, without providing a comprehensive list, the following are a few situations that are not likely to trigger OMB Circular A-76:

The A-76 prohibition does not apply to new requirements


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Whoever is providing the service is doing it with existing employees, and it will continue to be done with the same level of existing employees (e.g., an AF civilian employee has training of personnel as part of his or her responsibilities and the base makes additional seats available in the class)

The AF currently receives the service via contract and the IGSA initiative would change the provider of these service from a private contractor to a local government (i.e., there is no impact on AF employees)

The AF currently provides this service with uniformed military members

Examples of Actions that Will Likely Trigger A-76: Similarly, there are situations that commonly trigger OMB Circular A-76, such as:

If any civilian employee position is being eliminated If a function or portion of an AF civilian employee function is

impacted by the IGSA initiative (e.g., an AF civilian employee will no longer be performing a specified function)

The proposal would involve a change in the primary duties of an AF civilian employee

The service is currently being performed internally by an Air Force civilian employee(s) and it is proposed to be moved to a contract with a state or local government

The proposal would involve moving an "inherently governmental function" outside of the federal government.

If you believe an IGSA initiative may trigger OMB Circular A-76, there will need to be a factual discussion of what is proposed and how that relates to AF employees and functions. Coordination: SAF/IEI, SAF/GCQ Instrument: NA Example: Eielson IGSA – Road Striping


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Type of Initiative Execution Guidance 11.2 DEFENSE

LOGISTICS

AGENCY

(DLA) FEDERAL

PROPERTY

DISPOSITION

Authority: 10 USC 191 Guidance: DoD Manual 4160.21 Defense Material Distribution, Retention, Transfer & Sale of Property (Vol. 1-4) (10/22/15) DLA Disposition Services offers a wide variety of serviceable

property for transfer to other DOD agencies, Federal Civil Agencies and States and Local organizations through Defense Reuse and Marketing Service (DRMS). Property reutilized through Disposition Services is at “no cost” to the receiving DOD activity in most cases and in some cases to other organizations.

Category Description

REUTILIZATION:

Military Services, Special Programs; Leased Equipment & Services Officers, Foreign Military Sales, Housing Assistance Program, Military Affiliate Radio System, Civil Air Patrol, Senior ROTC Units, Service Museums, Contractors, USDA Firefighters, and Computers for Learning

TRANSFER: Federal Civil Agencies

DONATION: National State Agency for Surplus Property, Public Agencies, State & Local Governments

DOD customers have first priority and can screen/requisition

property at any time during the 42 day screening cycle for Reutilization/Transfer/Donation (RTD) shown below.

State and Local organizations can register as Donees to receive priority over sale of surplus Federal Property.


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Help from DLA - Enterprise Help Desk: For access, navigation, or technical issues call 1-855-352-0001 or send an email to [email protected] 24 hours a day/7 days a week

DLA Customer Interaction Center: For all other or general questions: call 1-877-DLA-CALL (1-877-352-2255) or send an email to [email protected] 24 hours a day/7 days a week

Coordination: Base Accountability Officer, DLA Disposition Service Representative Instrument: various DLA Forms


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Type of Partnership

Overview

11.3 FEDERAL

GRANTS: GUIDANCE ON

FEDERAL

GRANTS AS

FUNDING

SOURCES FOR

PARTNERSHIPS

Authority: Varies between Federal agencies. See specific grants program information on websites available through www.grants.gov Guidance: Office of Management and Budget (OMB) Circular No. A-110 (January 1, 2006), Uniform administrative requirements for grants and agreements with institutions of higher education, hospitals, and other non-profit organizations (2 CFR Part 215, Chapter II) https://www.whitehouse.gov/sites/default/files/omb/assets/omb/circulars/a110/2cfr215‐0.pdf NOTE: An action that results in the expenditure of funds from non-Air Force organizations to develop facilities or provide programs on Air Force installations may constitute a gift to the Air Force. Refer to AFI 51-601, Gifts to the Department of the Air Force (November 26, 2003) for guidance or contact the base Judge Advocate (JA) or the Office of General Counsel. Federal Grants as a source of partnership funding: Once the need and feasibility of a partnership opportunity has been confirmed through the identification of requirements and thorough due diligence, including identifying the correct legal authorities that enable the partnership, workgroups turn their attention to the funding needed to provide partnership resources. One or more grants from Federal agencies may be a good source of such funding

There are over 1,000 grants of various types administered by many Federal agencies.

In DOD, the Office of Economic Adjustment (OEA) and the Readiness and Environmental Protection Integration (REPI) Program provide grants to state and local governments and eligible conservation organizations for projects that directly address military readiness and mission encroachment issues

There are a number of Technical Assistance programs offered by Federal agencies that may also offer subject matter expertise, partnership facilitation, and other help for partnerships separate from or in addition to monetary support

If you are unsure about using a Federal grant as a funding mechanism for a partnership, contact your JA or Office of General Counsel

Grants.gov – an invaluable reference: Grants.gov is a “one stop shop” website for information on the vast majority of Federal grants. This website provides:

Listings and links to grants programs, including a powerful search tool to help find grants that pertain to specific requirements.

Training about grants, and specific training and education about how Federal grants operate and are administered.

Resources to help grant seekers write and apply for grants, and track their application status.


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Access to electronically fillable forms to facilitate grant applications

URL: www.grants.gov “OMB Circular A-110”: Chapter 2 of the Code of Federal Regulations, Office Of Management And Budget Circulars And Guidance, Parts 200 – 230, provide standard guidance for Federal grant making entities that applies to all Federal grants except in cases in which Congress has specifically directed or authorized agencies to set their own rules. Part 215 is referred to as “OMB Circular A-110” and provides the most general guidance for how grant making and receiving organizations must manage their grants. Parts 220, 225, and 230 provide specific guidance to grant receiving organizations about how they must account for the costs incurred in executing the project funded by a given grant. Even in cases where they are not required by law to follow the tenets of Parts 200 – 230, most Federal agencies use this guidance as a reference for developing their own rules. A basic familiarity with “OMB Circular A-110” will help workgroups and facilitators ensure that partners who receive grants are prepared for the administrative and accounting requirements entailed in receiving a Federal grant. (See “Guidance” above for web reference to these documents.) Examples of Federal Grants supporting AFCP Partnerships: There are a number of instances in which Federal grants are supporting AFCP partnerships both directly and indirectly:

Buckley AFB: DOD REPI grant funds help a partner match State of Colorado and other funding sources to acquire lands that will buffer Buckley’s mission from encroachment while providing new public recreation opportunities for the citizens of Aurora, CO

Joint Base San Antonio: Department of Labor grant funds help support both local government and private nonprofit workforce development agencies, leveraging funds from private foundations and industry, to support the JBSA Transition Assistance Program

The role of Air Force bases in seeking Federal grants: In general, state and local government or private, nonprofit nongovernmental organization partners will be the entities seeking grant funding. The major exception is that bases must take the lead in preparing proposal packages for the DOD REPI program, though funds flow directly to the eligible entity partner. Some other possible roles for bases include:

Supporting partner efforts by providing data and information (e.g. providing information about the base populace, not including any information protected under privacy laws) to help partners justify the need for the grant in their proposal

Providing letters of support to be included in the grant proposal. If a Commander is unsure about their authority to provide such support, they should consult with their JA and the Office of General Counsel.


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Coordination: NA Instrument: NA

Type of Partnership

Overview

11.4 STATE

GRANTS: GUIDANCE ON

STATE

GRANTS AS

FUNDING

SOURCES FOR

PARTNERSHIPS

Authority: Varies between States and State agencies. See specific grants program information on websites. Guidance: Varies between States and State agencies. Many state grants programs model their management procedures from Office of Management and Budget (OMB) Circular No. A-110 (January 1, 2006), Uniform administrative requirements for grants and agreements with institutions of higher education, hospitals, and other non-profit organizations (2 CFR Part 215, Chapter II) https://www.whitehouse.gov/sites/default/files/omb/assets/omb/circulars/a110/2cfr215‐0.pdf NOTE: an action that results in the expenditure of funds from non-Air Force organizations to develop facilities or provide programs on Air Force installations may constitute a gift to the Air Force. Refer to AFI 51-601, Gifts to the Department of the Air Force (November 26, 2003) for guidance or contact the base Judge Advocate (JA) or the Office of General Counsel. State Grants as a source of partnership funding: Once the need and feasibility of a partnership opportunity has been confirmed through the identification of requirements and thorough due diligence, including identifying the correct legal authorities that enable the partnership, workgroups turn their attention to the funding needed to provide partnership resources. One or more grants from State agencies may be a good source of such funding

There are many different types of grants available from State agencies, but the grants offered are not uniform from state to state. Research on individual state government websites is necessary to determine what grants may be available.

Some state agencies offer limited Technical Assistance programs that may provide subject matter expertise, partnership facilitation, and other support for partnerships separate from or in addition to monetary support

A number of common state grants programs, particularly in the areas of transportation and parks and recreation, are actually funded by Federal dollars. For instance, many state park development programs are actually administrative tools for the Federal Land and Water Conservation Fund. There may be prohibitions on matching these grants with funds from other Federal programs. Consult with your JA or the Office of General Counsel for guidance


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Examples of State Grants supporting AFCP Partnerships: There are a number of instances in which state grants are supporting AFCP partnerships both directly and indirectly:

Buckley AFB: State of Colorado Great Outdoors Colorado (GOCO) funds match DOD REPI grant funds and other funding sources to acquire lands that will buffer Buckley’s mission from encroachment while providing new public recreation opportunities for the citizens of Aurora, CO

Joint Base San Antonio: State of Texas Defense Economic Adjustment Assistance Grants (DEAAG) help the local water system connect Camp Bullis with the public water supply, improving mission resilience

Altus AFB: Funds from the Oklahoma Department of Commerce through the Oklahoma Strategic Military Planning Commission help the City of Altus make road improvements outside the Main Gate, improving public safety and supporting readiness

The role of bases in seeking State grants: In general, state and local government or private, nonprofit nongovernmental organization partners will be the entities seeking grant funding. Bases may be asked to help by:



If you are unsure about using a State grant as a funding mechanism for a partnership, contact your JA or Office of General Counsel. Coordination: NA Instrument: NA

Type of Partnership

Overview

11.5 PRIVATE

GRANTS: GUIDANCE ON

PRIVATE

GRANTS AS

FUNDING

SOURCES FOR

PARTNERSHIPS

Authority: Varies by the type of grant making institution. Generally spelled out in the Internal Revenue Code. If you are unsure about using a private grant to support an AFCP partnership opportunity consult with your base JA or the Office of General Counsel Guidance: Varies by the specific partnership opportunity. NOTE: an action that results in the expenditure of funds from non-Air Force organizations to develop facilities or provide programs on Air Force installations may constitute a gift to the Air Force. Refer to AFI 51-601, Gifts to the Department of the Air Force (November 26, 2003)


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for guidance or contact the base Judge Advocate (JA) or the Office of General Counsel. Private Grants as a source of partnership funding: Once the need and feasibility of a partnership opportunity has been confirmed through the identification of requirements and thorough due diligence, including identifying the correct legal authorities that enable the partnership, workgroups turn their attention to the funding needed to provide partnership resources. One or more grants from private sources may be a good source of such funding

There are over 70,000 grant making organizations of various types in the United States

Private grants will usually NOT fund an entire project – they like leverage

Private grants often focus on specific societal issues (homelessness, environment, public health, education…)

Relatively few private grants focus on economic development exclusively, so connecting the dots to Air Force needs may be more difficult

There are a number of different types of grant making institutions:

o Major public foundations (Corporation for Public Broadcasting)

o Major private foundations (Ford, Turner, Walton Family, Rockefeller, Exxon)

o Minor/local private foundations (Kronkosky, Meadows) o Private trusts administered by different banks o Community Foundations (usually a coalition of small

foundations/trusts) The Foundation Center – an invaluable reference: The Foundation Center is a “one stop shop” website for information on the vast majority of private grants. This website provides:

Listings and links to grants making institutions, including a powerful search tool to help find grants that pertain to specific requirements.

Training about grants and grant proposal writing Resources to help grant seekers write and apply for grants Two websites:

o http://foundationcenter.org/ o http://grantspace.org/

Examples of Private Grants supporting AFCP Partnerships: There are a number of instances in which private grants are supporting AFCP partnerships both directly and indirectly:

Joint Base San Antonio: Private grant funds from several different sources help support both local government and private nonprofit workforce development agencies, leveraging funds from Department of Labor grants, to support the JBSA Transition Assistance Program


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Little Rock AFB: Private grant funds help support a state-sponsored regional library system that is supporting the base library

The role of bases in seeking private grants: In general, state and local government or private, nonprofit nongovernmental organization partners will be the entities seeking grant funding. Some possible roles for bases include:



Coordination: NA Instrument: NA

Type of Partnership Overview 11.6 OMB GUIDANCE Guidance: Office of Management and Budget (OMB) Circular A-11,

Appendix B—Budgetary Treatment of Lease-Purchases and Leases of Capital Assets

INTRO:

Scoring is more art than science, and transactions can really only be evaluated on a case-by-case basis. This discussion is intended to sensitize you to the subject, so that as you identify and negotiate Air Force Community Partnership (AFCP) opportunities, you will better be able to see potential scoring issues when they can still effectively be addressed.

FAQ:

What is scoring?

Stated generally, scoring is a way of assessing the budgetary impact of legislation or transactions. For purposes of the Air Force Community Partnership (AFCP) program, scoring determines how lease/purchase transactions are budgeted for and funded. This discussion is limited to that aspect of scoring.

OMB is the scoring “gatekeeper” for Executive Branch agencies. It sets the rules used to determine (1) when it must be contacted about a contemplated transaction and (2) how any particular transaction is scored for Executive Branch purposes. OMB is not alone, however. The Congressional Budget Office, the scoring “gatekeeper” for


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Congress, also scores transactions according to its rules, and CBO’s scoring determination may differ from OMB’s.

Why should I care about scoring?

In sum, scoring may require you to budget the full cost of a long-term capital asset lease or similar transaction in the first year of execution. For example, if a 20-year option lease is scored as a capital lease (as opposed to an operating lease), then you must budget for all 20 years’ of costs (including options) in the first year of execution instead of budgeting on a year-by-year basis. This has obvious financial implications for any particular transaction.

AFCP and Scoring

Third-party financed leases/transactions have to date presented most of the AFCP’s scoring challenges. Other transactions that trigger scoring issues include (but are not limited to) those utilizing outlease-leaseback mechanisms, enhanced use leases with leasebacks with annual payments above a certain threshold, agreements that require the other party to acquire or construct assets valued over $50 million, and “share in savings” proposals that result in the acquisition of real property. In general, all financing proposals that are non-routine in nature and involve unique or unusual concepts or characteristics – the hallmarks of many of AFCP’s transactions – raise potential scoring concerns.

With regard to a lease transaction, depending on the statutory authority involved, the duration of the arrangement, and the allocation of risk and benefit, the Government’s transaction will be considered as either an operating lease (calling for annual lease payment obligations) or a capital lease (requiring the present value of the Government’s entire payment stream over the course of the transaction to be obligated at the outset). Operating transactions resemble rental arrangements whereas capital transactions resemble lease-to-own arrangements.

OMB Guidance

OMB uses a six-part test to evaluate whether a transaction involves an operating or capital lease. The basic question evaluated is whether the government is actually purchasing the item at issue, instead of simply renting it. The more a transaction looks like a purchase, the more likely it is to be considered capital in nature, requiring the full amount of the transaction to be obligated at the outset.

OMB’s test assesses whether:


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1. ownership of the asset remains with the lessor during the term of the lease or whether it is transferred to the Government at or shortly after the end of the lease term;

2. the lease contains a bargain-price purchase option;

3. the lease term exceeds 75 percent of the estimated economic life of the asset;

4. the present value of the minimum lease payments over the life of the lease exceeds 90 percent of the fair market value of the asset at the beginning of the lease term;

5. the asset is a general purpose asset rather than being for a special purpose of the Government and is not built to the unique specification of the Government as lessee; and

6. there is a private sector market for the asset.

Elements 2, 3, and 4 weigh in favor of considering a transaction to be more capital than operating, whereas elements 5 and 6 weigh in favor of considering the transaction to be more operating than capital. However, as indicated above, the evaluation of any particular project is more art than science. If you believe you have a transaction that raises scoring concerns, you should flag that concern immediately within AFCP.


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12 INSTALLATION INITIATIVE SUPPORT REQUEST FORM

Installation Initiative Support Request Form

Complete all fields below Send Request Form to usaf.pentagon.saf-ie.mbx.saf-ieim-

[email protected] Attach any documents to support request

Installation:

Community Partner:

Partnership Broker/ Lead Facilitator:

Partnership Initiative (Name/Title):

Current Situation:

Specific Question to be Answered or Task to be Resolved:

Include exact question/problem(s) you need help resolving and/or what action(s) you would like the Program Management Office to assist you with.

Issue Description:

Explain what actions the base has already taken to address the issue (i.e., Has the appropriate base Functional POC been contacted? What was the result? Has the MAJCOM been contacted? What is their recommendation or roadblock?)

Due Date(or next community meeting date):

Base/other POC regarding this issue:

Name:

E-mail:

Phone:


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13 APPROVAL AUTHORITY MATRIX

Approval Authority Matrix Installation MAJCOM FOA PSU Air Staff SAF OSD

Air Force Community Partnership Leadership Agreement

Sharing of Library Resources – no public access (Category A)

Non‐DoD participation of Child and Youth Programs – Child Development Center (Category B)

Public Use/Rental of Outdoor Recreation Equipment (Category B and C)

Civilian Access to Category C Facilities

Civilian Access to Aero Clubs (Category C)

Civilian Access to Golf Courses (Category C)

Food/ Commissary Donations to Local Food Bank

Use of Resource Personnel to Provide Religious Program Requirements

Coordination of Transition Assistance activities

Use of Voluntary Services (e.g. Student Volunteers)

Application of “Guest” status related to CAT A/B/C MWR Activities

Waste Water Treatment Plant (WWTP) via IGSA

Waste Water Treatment Plant (WWTP) via Competitive process

Utility Energy Service Contract (UESC)

Energy Savings Performance Contract (ESPC)

Power Purchase Agreement (PPA)

Gifts of Real Property to the Air Force* (see note below)


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Temporary Use of Air Force Real Property (Permit)

Temporary Use of Air Force Real Property (License)

Lease of Air Force Real Property

Possessory use and control of Air Force Real Property Enhanced Use Lease (EUL)

Civilian Use of Air Force Airfield: Civil Aircraft Landing Permit

Civilian Use of Air Force Airfield: Joint Use Agreements

Readiness and Environmental Protection Integration (REPI) Program

Medical Proficiency Training (Internships, Externships, Two‐Way Exchanges)

Classroom Training, Training that does not Involve Patient Care

Department Of Defense (DoD)/ Veterans Affairs (VA) Health Care (Sharing Agreements)

Department Of Defense (DoD)/ Veterans Affairs (VA) Health Care (Joint Ventures)

On Base Contracted Ambulance Services provided by a State or Local Government using an IGSA

Temporary Possessory use and control of non‐Air Force Property (“Timeshare”)

Memorandum of Understanding between Government and Civilian Fire Departments

Use of Air Force and non‐Air Force Small Arms Ranges


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Animal Control ‐ Use of Community Resources

Use of Non‐Air Force Criminal Confinement Facilities

Transfer Base 911 to Local Community 911

Use of AF/government buses to attend community supported MWR events

Use of Government Vehicles

Use of Non‐Air Force Air Fields

Civil Engineer Training from Local Community – (*Training Facility use that requires IGSA)

Realistic Military Training (e.g. blight removal; repair a football field)

Use of Innovative Readiness Training

Training from State or Local Governments

Use of an IGSA for cooperative purchasing with a state or local government

MAJCOM – Major Command

FOA – Field Operating Agency

PSU – Primary Subordinate Unit

SAF – Secretary of the Air Force

OSD – Office of the Secretary of Defense

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