VBA Design Guide

VBA Organization and Description

VBA Design Guide Page 1-1

Background

Since the Revolutionary War, America has provided benefits to the soldierswho helped defend her. This compensation and care was granted by variouslaws and administered by different government agencies until the VeteransAdministration was established in 1930. The Veterans Administrationconsolidated all federal veteran aid under a single agency which provided morecontinuity in benefits delivery.

As the Veterans Administration grew in size so did the complexity of itsmission to provide service to veterans. In 1988, the Veterans Administration waselevated to cabinet-level and became the Department of Veterans Affairs.

Current Direction

Veterans Benefits Administration (VBA) is an agency within the Departmentof Veterans Affairs that is responsible for the processing and delivery of veteranbenefits. Through 58 regional offices, VBA provides direct monetary benefits,including disability compensation, pensions, educational assistance, andvocational rehabilitation. VBA also has guaranteed more than 15 million homeloans and operates one of the world's largest life insurance programs.

VBA is a dynamic organization, constantly changing with new initiatives andvarying work requirements. Because of this, the facility that houses a VAregional office must provide layout flexibility while maintaining an efficientoperation. There are several work environments in a VA regional office. One isthe public service area that has direct contact with the public and includesVeterans Services Division, Vocational Rehabilitation and Counseling Division,and Veterans Service Organizations. A second function and the largest is thebenefits processing and delivery area that processes veterans claims andensures benefits delivery. Divisions in this work group include Adjudication,Loan Guaranty, and Finance. Another function is the administrative andmanagement operations of the regional office. These different workenvironments have specialized space and layout requirements such as veteraninterview areas, large file banks that require additional floor load bearingcapacity, and Adjudication's "production type" work-flow. Yet these areas mustremain flexible to continually accommodate VBA's constantly changing workprocesses.

VBA Organization and Description

Page 1-2 VBA Design Guide

Although not employed by VA, Veterans Service Organizations are alsopresent at the regional office to assist veterans and their families in applying forand obtaining VA benefits and often serve as the veteran's representative.Other VA functions that are often housed at a regional office, but are not VBAspecific, are the Inspector General, Office of Public Affairs, and Office of theRegional Counsel.

Future Trends

With the Department of Veterans Affairs' focus on customer service, VBA isbeginning to redirect regional office operations toward a case managementapproach. This conversion will cause blurring of the traditional division lines. Asan example, the Veteran Services Division and Adjudication Division create asingle team who will service a veteran from his/her initial application for benefitsto the claim's adjudication. To support this concept, VBA's space must beflexible. Large open bays, an increased floor load-bearing capacity in moreareas to accommodate files, and a traffic flow pattern responding to the newmethods of providing service should be considered during planning. Eachstation will develop its own unique scheme to deliver case management serviceto veterans due to the building constraints, workloads, etc.; however, there willbe some design criteria that will be consistent throughout VBA.

Due to advancing ADP technology, space requirements for a VA regionaloffice are changing. The VBA staff is gradually reducing in size and eventuallypaper documents will be converted into an electronic format eliminating the largefile banks now required to house claims folders. These changes not only willreduce the space required to operate a regional office, but will also abolish theneed for the increased floor load-bearing capacity. Other technologicaladvancements that will impact the regional office are teleconferencing andsatellite training which will require specialized spaces and equipment.

INSPECTOR GENERAL GENERAL COUNSEL

CHAIRMAN,BOARD OF VETERANS'

APPEALS

SPECIAL ASSISTANTTO THE SECRETARY

FOR VETERANS SERVICEORGANIZATIONS LIAISON

CENTERFOR

WOMEN VETERANS

UNDER SECRETARYFOR BENEFITS,

VETERAN BENEFITSADMINISTRATION

58 REGIONAL OFFICES

UNDER SECRETARYFOR HEALTH,

VETERANS HEALTHADMINISTRATION

173 MEDICAL CENTERS

DIRECTOR,NATIONAL CEMETERY

SYSTEM114 NATIONALCEMETERIES

CHAIRMAN,BOARD OF CONTRACT

APPEALS

DIRECTOR,OFFICE OF SMALL

AND DISADVANTAGEDBUSINESS UTILIZATION

CENTERFOR

MINORITY VETERANS

SECRETARYDEPUTY SECRETARY

ASSISTANT SECRETARYFOR MANAGEMENT

ASSISTANT SECRETARYFOR POLICY AND

PLANNING

ASSISTANT SECRETARYFOR HUMAN

RESOURCES ANDADMINISTRATION

ASSISTANT SECRETARYFOR PUBLIC AND

INTERGOVERNMENTALAFFAIRS

ASSISTANT SECRETARYFOR CONGRESSIONAL

AFFAIRS

Organization ChartDepartment of Veterans Affairs


OFFICE OF HUMANRESOURCES

OFFICE OF EMPLOYEEDEVELOPMENT &

TRAINING

OFFICE OF RESOURCEMANAGEMENT

CHIEF OF INFORMATIONMANAGEMENT

OFFICE OF EXECUTIVEMANAGEMENT &

COMMUNICATIONS

EASTERN AREA

REGIONAL OFFICES

BaltimoreBostonBuffaloHartford

HuntingtonManchester

NewarkNew York

PhiladelphiaPittsburghProvidence

RoanokeTogus

WashingtonWhite River Junction

Wilmington

REGIONAL OFFICES

AtlantaColumbiaHoustonJackson

Little RockMontgomeryMuskogeeNashville

New OrleansSt. Petersburg

San JuanWaco

Winston-Salem

REGIONAL OFFICES

ChicagoCleveland

Des MoinesDetroitFargo

IndianapolisLincoln

LouisvilleMilwaukeeSt. LouisSt. Paul

Sioux FallsWichita

REGIONAL OFFICES

AlbuquerqueAnchorage

BoiseCheyenne

DenverFt. Harrison

HonoluluLos Angeles

ManilaOaklandPhoenixPortland

RenoSalt Lake City

San DiegoSeattle

CENTRAL AREA SOUTHERN AREA WESTERN AREA

UNDER SECRETARY FORBENEFITS

DEPUTY UNDER SECRETARYFOR BENEFITS

COMPENSATION&

PENSION SERVICE

EDUCATIONSERVICE

LOAN GUARANTYSERVICE

VOCATIONALREHABILITATION &

COUNSELING SERVICE

INSURANCESERVICE

Organization ChartVeterans Benefits Administration

VBA Design GuidePage 1-4

Organization ChartVeterans Benefits Administration Regional Office


ASSISTANTDIRECTOR

HUMAN RESOURCEMANAGEMENT

MANAGEMENTANALYST

DIRECTOR

EDUCATIONDIVISION

SUPPORT SERVICESDIVISION

VETERANS SERVICESDIVISION

LOAN GUARANTYDIVISION

ADJUDICATIONDIVISION

VOCATIONAL REHAB.& COUNSELING

DIVISION

INFORMATIONRESOURCE

MANAGEMENTDIVISION

VBA Mission Statement


Mission

The mission of the Veterans Benefits Administration is to provide benefitsand services to veterans and their families in an effective, timely, andcompassionate manner.

VBA Strategic Vision

The core values of the Veterans Benefits Administration lie in providingquality and compassionate service. As Omar Bradley said, "We are dealing withveterans, not procedures; with their problems, not ours." As we enter the 21stCentury, VBA will meet new challenges and live up to its values using creativity,communication, and teamwork.

By the year 2000, the Veterans Benefits Administration will be the mostefficient and effective service delivery organization in the Federal Government.Benefits and services will reflect the changing needs of veterans andbeneficiaries, while new programs will be developed to meet the critical needs ofthe nation. Business practices will be reengineered to capitalize on managerialand technical innovations. Information will be readily available with simplifiedand varied access for both veterans and employees.

VBA Goals

VBA's goal is to become a world class service provider by incorporatingcustomer feedback into management improvement efforts and businesspractices.

1. Establish customer-based performance metrics. VBA will establish and applyperformance standards that reflect customer needs and expectations.Customer information will be routinely collected to verify the validity of themeasures and appropriate adjustments will be made.

2. Ensure a satisfying and rewarding work environment. The work environmentwill be characterized by positive leadership and an empowered workforce.Training will be provided at all levels to meet technical, developmental andleadership needs. An effective rewards and recognition system will bedeveloped that is directly linked to performance metrics and organizationalgoals.

VBA Mission Statement


3. Improve service delivery and benefit claims processing. Reengineering willbe utilized to create a more cross-functional, horizontally structuredorganization. Claims processing will be streamlined to eliminate non value-added activities and reduce rules and regulations. Empowered employeeswill have increased decision-making authority and be held accountable forprocess outcomes. These organizational changes, along with the applicationof new management tools and technology, will allow VBA to improve thetimeliness of claims processing and the overall quality of service delivery.

4. Ensure the best value for the taxpayers' dollar. VBA will strive for the efficientand prudent use of government resources while working to achieve the fullbreadth of its stated goals.

Building Requirements and Considerations


Vicinity Relationships

The vicinity is the area or neighborhood where the building is located.

The vicinity of a VA Regional Office building should minimally be:

Easy to locate Accessible by major thoroughfares Accessible by public transportation Have a relatively low crime rate Present a professional environment

Secondary, the vicinity should have:

Relationship to other government agencies in the area Employee services within a five-block radius

Site Characteristics

The site is the land parcel on which the building sits or will be built uponand includes the grounds, driveways, and walkways associated with thebuilding.

An acceptable building site for a VA Regional Office MUST include:

Prominent visibility Easy access to public transportation On-site parking provides handicapped parking Public parking if no on-site parking Parking for service/maintenance vehicles Relatively flat site Not within a 100-year flood plain Attractive landscaping with low maintenance cost, suitable to

geographic area Loading dock with truck turn-around area



Building Orientation

Orientation is how the building is situated on the lot as well as itsrelationship to the surrounding neighborhood.

The orientation of a VA Regional Office building should have:

A main entrance facing and/or visible from major highway access A maintenance/service areas located away from main entrance

Building

This term refers to the actual structure that houses the regional office andcovers both exterior and interior aspects of the building.

In order to facilitate an efficient and effective VA Regional Office layout, aproposed building SHOULD minimally meet the following standards:

Support a horizontal versus vertical work flow Rectangular (avoid long, narrow buildings) with no wings and a

minimum number of floors The minimum building footprint must support the smallest usable

Adjudication Division or claims processing division layout Large, open bays to accommodate systems furniture Optimal column spacing no less than 30' o.c. Column spacing less

than 30' will impact efficiency Support modern ADP cabling, telephone and electrical

requirements Above grade floor(s) that support 125 lb live load for file bank (Live

load requirement is requested in all areas where files may bestored.)

Project a professional image through structure, design, andfinishes

Provide easy access to public areas Provide separation between public and non-public areas Loading dock contiguous or with direct access through common

area to VBA space Freight elevator in multi-story buildings Clear and comprehensible signage Automatic glass entrance doors, sliding preferred



Preferential building requirements include the following:

Contains all public areas on one floor, optimally, the first

Public Areas

These are areas within the regional office that the public has access toincluding waiting areas, eating facilities, hearing rooms, agent cashier'soffice, interview rooms, etc.

The public areas in a VA Regional Office should meet the following criteria:

Easily recognized and accessed from main entrance Waiting areas well defined and appropriately sized Pleasant atmosphere Well furnished Accommodate handicapped individuals Combine waiting rooms of VSD and VR&C when building permits Interview stations should provide conversational and visual privacy

for veteran without sacrificing employee security Hearing Room, VR&C testing room, and Counseling Psychologists'

offices have ceiling high partitions and an increased soundtransmission coefficient (STC)

Group Veterans Service Organizations as a separate unit within thepublic area. Where layout permits, provide a common waiting areafor Veterans Service Organizations

Glass doors for division entrances

Security

Security and disaster prevention is a major concern in the design or selectionof a building. Aspects to consider are:

Avoid buildings with parking under or adjacent to the building Walkways, parking facilities, and entrances are well lit Exterior is free of large and/or dense shrubbery close to building Adequate distance from roadways/parking to building Entrance clearly visible



An Executive Directive, issued June 1995, requires all federal facilities toconform to minimum security standards as recommended by the Department ofJustice (DOJ). Refer to the DOJ Publication, "Vulnerability Assessment ofFederal Facilities," June 1995, for specific requirements and concerns.

Accessibility

Public Law 90-480 requires all construction, renovation, or leasing withfederal funds to meet Uniform Federal Accessibility Standards (UFAS).

Finishes

Interior finishes in a VBA facility should provide a supportive interiorenvironment that is respectful of public monies and expresses high qualitydesign. The solution needs to provide an interior that responds to the regionalelements, supports human performance, and reflects individual characteristicsas well as a relationship to the group and the organization as a whole. Theappearance is one that is user friendly to the employee and the veteran. Thecolor, texture, finish, and materials need to be selected with the priorities of cost,life-cycle, maintenance, and durability while retaining a quality appearance.Optimum principles of good design need to be expressed.

Note: See Finish Schedule (Appendix 5) for suggested finishes.

Space Programming and Acquisition


Space Programming

The first step of any space action is completion of a space requirementsprogram; that is, a written document which outlines the specific needs of aregional office.

This design guide facilitates the necessary data for the major contents of aspace program. Major information within a space program includes thefollowing:

1. An organizational chart.

2. A mission statement.

3. Adjacency requirements between staff and support spaces.

4. All physical space requirements for staff, office support, and specialfunction areas.

5. All special construction, electrical, mechanical, and data requirements.

6. A comprehensive personnel listing arranged by division, position title, andgrade.

7. A complete furniture inventory.

8. A complete and specific equipment inventory.

Data collection forms designed to assist area and regional offices with thecompletion of a space requirements program are included in the design guideappendices.

Space Acquisition

The second step in a space action is acquisition. There are a number ofoptions available to VBA for acquiring space: GSA Assignment, VA Lease, VAConstruction, and Enhanced-Use.



GSA Assignment

The Federal Property and Administrative Services Act, as amended, (Title 40U.S.C., Sec 417 et seq.) gives the Administrator of General ServicesAdministration the authority to procure and manage real property and assign it toFederal Agencies. It is through this authority that GSA acquires space for VBA.Effective October, 1996, GSA has given authority to Federal agencies to leasetheir own space if no government-controlled space is available (See VA Lease.)

GSA assigns space to VBA in accordance with Federal PropertyManagement Regulations (FPMR) Part 101-17, Assignment and Utilization ofSpace. Space is assigned within three major categories: Office, Storage, orSpecial. Each space classification includes specific standard alterations inaccordance with Appendix A of FPMR 101-17.

Whereas GSA funds all standard alterations according to each spaceclassification, VBA is responsible for all above-standard alterations. Whenacquiring space through GSA, the area and regional office should prudentlyreview the space requirements program in relation to the standard alterationsprovided by GSA to ensure necessary funding is available for all requirementsGSA considers above-standard.

Space assigned to VBA by GSA can be either leased or government-owned.

For a lease procurement, the space program is translated into a Solicitationfor Offers (SFO). GSA uses the SFO to solicit, negotiate, and, ultimately, awarda lease. Cooperation of the regional office with GSA throughout the leaseprocurement process is vital to ensure all of VBA's needs are met. The majorsteps in a GSA lease procurement from VBA's perspective are:

1. The area and regional office should conscientiously read the entire SFOto ensure it parallels the original space requirements program before VBAapproves the document.

2. Once an SFO is issued, advertised, and offerors respond, GSA willconduct a market survey of buildings offered for lease. A representative fromVBA accompanies a GSA realty specialist to each building in order to verify thebuildings being considered in the procurement meet VBA's minimum standardsas dictated in the SFO.



3. In accordance with the SFO, offers are received and negotiated, up to anduntil GSA's request for Best and Final Offers (BAFO).

4. GSA awards the lease.

5. Design Intent Drawings (DIDs) are developed. These drawingsgenerally include full furniture and architectural plans with telephone andelectrical locations. The area and regional office should carefully review theDIDs for any discrepancies, omissions, or additions. Furthermore, to ensure thatall above-standard alterations detailed in the drawings are acceptable andfunded to alleviate future confusion.

6. Construction Documents (CDs) are issued from the approved DIDs.These drawings contain full and complete furniture plans, finish schedules,telephone and electrical plans, construction and demolition plans, and plumbing,mechanical, structural, and engineering plans. The area and regional officeshould confirm that the CDs appropriately mirror the DIDs and contain the properfinish schedules. The CD phase is the last opportunity for VBA to change thelayout before construction begins and avoid additional charges for changeorders.

Space is built out and VBA moves in.

For government-owned or existing space in GSA's inventory, the spacerequirements program is immediately used to develop DIDs and, subsequently,CDs. As mentioned above, the area and regional office should attentivelyreview both the DIDs and CDs throughout the planning process.

Note: GSA leasing policy and procedures are currently being revised.

VA Lease

Effective October, 1996, GSA established a new leasing program that offersFederal agencies the option of continuing to use GSA as their leasing agent forgeneral purpose space or taking on that responsibility within their own agency.When a need for space is identified, VA contacts GSA informing them of theirneed. GSA then determines if suitable Government-controlled space isavailable. If not, VA has the choice to lease the space themselves through the



Real Property Program Management Staff, obtain a contractor to lease thespace, or have GSA procure the space.

VA Construction

Regional offices can be collocated on VA-owned land. If construction of anew building is required, it is built as a VA construction project. There are twotypes of VA construction: Design-Build and Design-Bid-Build.

Design-Build - construction is a two-step process: (1) Development of aRequest for Proposals (RFP) and (2) Design of construction drawings andconstruction.

An architectural/engineering firm (A/E) is selected to develop an RFP. TheRFP conveys the design concept, applicable standards, performancespecifications, design development drawings, interior finish package, andexterior enclosure package. The A/E that develops the RFP may also assistVA in preparing the solicitation, review of design-build submittals, and byparticipating in the inspections, but shall not participate in the selection of theDesign-Building (D-B) contractor.

Design-Bid-Build - is the construction process used for most VAconstruction projects.

An A/E completes schematics, design development, and constructiondocuments. In addition, this firm performs inspections, reviews shopdrawings and change orders, and develops as-built drawings.

The project is issued for bids. The project is always awarded to the lowestbidder. The selected contractor constructs the building.

Enhanced-Use

The Enhanced-Use program is a cooperative lease/purchase arrangementbetween VA and a private sector entity culminating in a unique partnershipagreement. VA provides non-cash assets such as land, stable marketaccessibility, and long-term lease arrangements; whereas, a private developeroffers capital, construction expertise, and business acumen.



Enhanced-Use allows VA to obtain facilities, space, and services, and /ormoney in return for granting long-term leases, up to 35 years, for unused orunderutilized VA property. This space acquisition method requires availableland, a validated requirement, a non-VA user willing to pay for the use of VAproperty, available VA money if VA "buys-back" services, and private sectordemand for non-VA uses.

VBA Conventional Construction Schedule - 59 Months

Design Build


VBA Conventional Construction Schedule - 69 Months


Design - Bid - Build

GSA Leased Space Construction Schedule


Schedule shown reflects GSA estimates. Actual times mayvary on a project by project basis.