100

90

DIVISION OF ACTIVE DUTY TIME BETWEEN MANAGEMENT AND ENGINEERING.

90

80

00

70

60

60

50

50

40

30

2

4

6

10

12

14

16

20

10

16.16

aterials available for the accomplishment of s objectives. How he uses these tools in eaching his objectives determines the success final accomplishment. In the case of man

power, the good manager recognizes this factor as the most important one in the satisfactory performance of a goal. He can make adaptations in the planning of his work, in order to utilize

skills and qualities among his men. He will realize that sufficient discipline to keep work up to a high level, combined with a fair and impartial attitude, will be an important means by which he can make the proper utilization of manpower resources.

In many cases, the manager has a direct influence on the quality and quantity of his resources. He may be able to recruit, or at least to choose and assign, the people whom he considers most competent to take charge of the different phases or portions of the work to be done. He may be able to request funds sufficient for the purpose at hand; and whether these funds prove adequate depends largely upon his sound judgement in foreseeing what would be necessary, and his wisdom in expending these funds. He may be able to acquire the type of materials and equipment best suited to his purpose; and this presupposes his understanding of the purpose, and his technical knowledge in the specific field.

These basic principles of management have been applied to the following 14 Management Concepts adopted by the Bureau of Yards and Docks for public works management:

1. A prime requirement for the effective functioning of public works in the Navy is optimum utilization of funds.

2. The key to optimum use of public works funds is the intelligent application of modern management methods.

3. Management responsibility for public works is necessarily decentralized, and rests basically with each Public Works Officer.

4. The management attitude and management proficiency of Public Works Officers are critical factors in overall public works effectiveness.

5. Action-oriented planning and controlling techniques are essential ingredients for day-to-day public works management.

6. Planning in public works management is the continuous process of relating resources to requirements for maintenance, transportation, and utilities.

7. Public works requirements must continually be evaluated against the fundamental mission of the activity.

8. Effective management control requires the establishment of realistic performance goals, close attention to significant variances, and prompt corrective action.

9. Accurate and timely management reports are essential for effective management control at each activity.

10. BuDocks public works management programs are designed to increase the proficiency of each public works manager.

11. Continuous planning and performance against established goals at each organizational level is vital for meaningful implementation of BuDocks public works programs.

12. Development of public works management systems and techniques, assistance in program implementation, and analysis of program results are functions centralized in the Bureau of Yards and Docks.

13. Development of statistics for comparing activities is desirable, but inherent differences among naval activities prevent performance evaluations based solely on statistical results.

14. The primary public works responsibility for each BuDocks field office is to provide management and technical assistance to designated activities.

APPLICATION TO PUBLIC WORKS MANAGEMENT

As has been stated, good been stated, good management consists of three basic factors: objectives, resources, and the utilization of resources. These fundamentals apply throughout all phases and levels of maintenance management, but particularly so at the Public Works Department level. It is at this level that the maintenance and operating funds are expended, and good management is required to obtain the greatest return from the funds provided.

The objectives of the Public Works Department are:

1. To economically maintain the public works and public utility facilities of the activity in a state of readiness to permit the activity to carry out its mission. (The basis for determining such facility requirements is established in Step 5 of the facilities planning system, OPNAV Instruction, 11010 series; see the later chapter, Shore Facilities Planning System.)

2. To provide essential utilities and to efficiently operate these systems.

3. To satisfactorily provide transportation and other required services, and to economically maintain the related equipment.

As mentioned before, the resources availole to the PWO for the achieving of these ojectives are money, manpower, material, quipment, and assistance from others. Genrally, all these resources are available, but ey occur in varying amounts and with varying estrictions at individual activities.

Money and personnel ceilings are allotted y the cognizant management bureau and are enerally somewhat restricted. Money may also e made available by other departments or ctivities, but such funds are usually provided or specific purposes. (See the later chapter, Financial Management.)

General purpose automotive vehicles and Construction equipment items are assigned by BuDocks. Procurement of additional, or relacement of, major items of shop equipment s subject to authorization and separate funding y the management bureau. While procurement of special materials from commercial sources s permitted, the predominate materials must e obtained from the Navy Supply System (see ch. 8 of this text).

The PWO can frequently supplement the manpower in his organization by obtaining required assistance from other departments at the same Navy activity, other Navy activities, or other agencies of the Government. Contract capability provides another source of manpower, and exists in varying degrees in all locations.

BuDocks Field Offices provide technical and program management assistance to the PWO. In addition, the Bureau has prepared many echnical and management publications that are Available for guidance.

A knowledge of the type and amount of all resources available is essential for proper ›ublic works management. While many of these tems may be beyond the control of the PWO, le is in a position to influence the amount of some of the resources made available to him by a detailed knowledge and appreciation of his Objectives and what is required to meet these objectives.

Public works management is fundamentally the utilization of available resources to meet objectives. To properly utilize these resources, all levels of public works management are responsible for the following functions:

1. Planning: This is fundamentally the action of analyzing requirements; the formulation of methods and procedures to meet objec

tives through effective utilization of resources; and the determining of what is to be done, by whom, and where.

2. Directing: This is the process whereby the planning action is implemented.

3. Measuring: This is the relating of actual progress or results to the planned progress or results.

4. Analyzing: This is the determination of causes of variances between the planned and actual progress or results.

5. Corrective Action: This is the end result of the analysis of variances from plans, and consists of the steps taken to correct conditions that prevent or retard meeting the overall objectives or the individual targets.

These management objectives can be restated in a more specific term as they apply to the PWO. His responsibilities are to:

1. Plan action-oriented programs to accomplish the established goal of maximum public works support of the activity mission at minimum cost.

2. Direct and coordinate on a day-to-day basis the public works programs, in accordance with BuDocks technical standards and management bureau requirements.

3. Measure to determine whether plans are on target and within budget and man-hour standards.

4. Analyze to determine the cause of variances between plans and standards.

5. Take corrective action on a day-to-day basis to ensure that objectives and goals are achieved.

The acceptance of these management responsibilities, the appreciation of the basic principles of management, and the understanding of the BuDocks public works management concepts form the bases for managing the Public Works Department. These bases evolve and expand into general actions that must be taken by the PWO for accomplishing his mission.

PLANNING

Planning begins with the budget preparation. At this stage, it consists of a knowledge and analysis of all known requirements of the Public Works Department, and the relating of them to the mission of the activity and the available resources. In a general way, the PWO must consider everything that must be done,

decide what is essential during the budget period, decide who is going to accomplish the work, and then request and justify specific funds and personnel ceilings.

Before he can properly justify the need for funds and personnel, the PWO must establish a priorities system to ensure that those facilities and services which are vital to the mission of the activity will receive maximum support, and that those less important will receive relatively less support. In addition, he must also establish the level at which the facilities and equipment should be maintained, and the degree to which other services should be provided.

Upon receipt of funds and personnel ceiling, or notification of the amounts of these resources to be made available to him, the PWO will develop a more specific overall plan of public works expenditures. This plan should be sufficiently flexible so that it may be varied during the year; the objective is to make required changes without interrupting important work, and only after a clear understanding is reached of the effect that required changes will have upon the plan.

The overall expenditure plan has three objectives:

1. To assure allocation of funds to facilities and functions that are absolutely essential for the performance of the activity's mission, or missions.

2. To provide for handling emergency or unforeseen necessary expenditures without interruption of absolutely essential work for services.

3. To establish degrees of priority on other planned work in order to permit addition or deletion of items of lesser importance, as changes in overall plans occur in the above two areas.

The overall expenditure plans prepared by the PWO, and approved by the activity commanding officer, should for the most part merely provide general guides for allocation of funds to individual divisions, functions, or overhead accounts. Management personnel at subordinate levels should be required to develop more detailed plans for the particular areas of responsibility to which they are assigned. As these subordinate plans are developed, some changes may be required in the overall plan, but eventually a practicable

and workable plan is developed based upon detailed plans at the working level and upc policies originating at the department level

Provisions must be made for adjusting plans to accommodate changes in resources available, changes in mission and requirements, or inability to meet the original plans. These changes may be sufficiently severe to warrant a complete overhaul of the plan, or it may be possible to accommodate the changes through adjustment in only one segment of the overall plan.

DIRECTING

Directing is primarily the implementation of the detailed plan, but it is also brought into play in the planning stage. The details of planning require active participation by many individuals and organizational components. The PWO must assign responsibility for segments to individuals or groups, provide them with information on the amount and type of all resources available to them, and coordinate the action of these subsidiary planning groups to arrive at the final integrated detailed expenditure or revisions thereto. Once the plan has been accepted, the PWO must see that all concerned are fully cognizant of their duties, their responsibilities in relation to the plan, the department objectives, and the activity mission.

MEASURING

Once the expenditure plan has been implemented, it is essential that there be a means available for measuring the status and results of the various segments of the plan. This can be accomplished to some degree through frequent controls with management personnel in the organization, comments from other departments, surveys and audits, and so forth. However, formal management reports provide the best means for measuring status and progress in relation to plans.

Formal reports that have been developed by BuDocks should be fully implemented and utilized. These reports cover the maintenance, utilities, and transportation transportation functions, and provide information that is essential for measuring status and progress. They are designed to provide detailed information to lower levels of responsibility, and combined and condensed information for the use of top level management.

The formal feedback reports should be ugmented by the establishment of targets hat are sound, reasonable, and attainable. The nature and type of targets vary with the eport and/or function being measured. They nay be expenditure targets, performance goals, or standards or ratios. They may be locally leveloped, or obtained from Navy-wide statistics or similar functions; they may be based upon Engineered Performance Standards developed by BuDocks, as in the case of the labor performance standards for the Maintenance Divisions of Public Works Departments.

The selection of targets and ratios demands considerable judgment. In order to meet the requirements that they be reasonable and atainable, it may be advisable to establish interim targets, standards, and ratios, and to gradually revise them as improvement occurs. Regardless of the type and source of the targets selected, the use of the targets should be tempered with a knowledge of the degree of accuracy of the data being used to measure performance or accomplishment, and the applicability to local conditions of any of the data that has been obtained from outside sources.

ANALYZING

Merely establishing and reviewing reports and comparing the data thereon with targets accomplishes little. It is the variances between plans and accomplishments, or accomplishments and targets, that point the way to problem areas and to those requiring closer attention.

Summary reports provide for a broad comparison between plans and achievements, and emphasize broad variances. The more detailed reports of subordinate levels provide extensive clues as to the causes of unfavorable variances highlighted in the summary reports. Penetrating analysis of these variances to determine their causes is the first step in remedying an unsatisfactory situation. Major variances in important areas should be investigated first, and as their causes are found and corrected, attention can be focused on others.

The analysis of variances cannot be accomplished by the PWO alone, but should be accomplished by each level of management for that portion of the operations for which that level is individually responsible. The PWO should review these analyses, using them to

supplement his own analysis of the summary reports aimed at his level of management.

TAKING CORRECTIVE ACTION

Corrective action is dictated whenever the causes of a variance have been ascertained; without this type of positive action, no progress can be made in improving the efficiency of the department as a whole, or any segment of the department.

The types of corrective action possible are quite varied, and too numerous for discussion here. They vary with time, location, people, available resources, and the relative proficiency of current management. Correction may consist only of the revision of certain targets; or, in extreme cases, it may involve a recycling of the planning, directing, measuring, and analyzing functions. Special reports may have to be prepared, or special studies conducted; organizational structure may have to be revised; training courses may have to be established; or a reconsideration of the utilization of resources may be required.

The essential fact is that every program, and every segment of the plan, needs follow-up action if it is to be improved. Unless corrective action is initiated when and where needed, management is ineffective and incomplete, regardless of how well it has performed the various phases of planning, directing, measuring, and analyzing.

The Bureau of Yards and Docks has developed, or is in the process of developing, programs which provide complete guidance on managing the maintenance of public works and public utilities; the generation and distribution of utilities; and the maintenance and operation of automotive vehicles and construction equipment. The individual programs vary somewhat in detail because of the difference in the nature of the functions which they are designed to control.

However, all three of these programs utilize the basic principles of good management, with the key principle being the utilization of available resources. The specific programs are applied in keeping with the 14 management concepts adopted by BuDocks for overall public works management. The fundamental managerial responsibilities of planning, directing, measuring, analyzing, and taking corrective