Building a comissioning guideline

BUILDING COMMISSIONING
GUIDELINE

BY
APEGM PRACTICE STANDARDS COMMITTEE

June, 2002

Prepared By:
M. J. Frye, P. Eng. , Chair
R. Dewar, P. Eng.
I. D. Kelly, P. Eng.
R. I. McDowall, P. Eng.
D. I. Waldman, P. Eng.

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Table of Contents
1

2

3

Overview ................................................................................................. 1
1.1
Objectives of the Guideline........................................................... 1
1.2
Definition of Commissioning ........................................................ 1
1.3
Benefits of a Comprehensive Commissioning Program................. 1
1.4
Scope of the Guideline .................................................................. 3
Fundamentals of a Comprehensive Commissioning Program ................... 5
2.1
Introduction .................................................................................. 5
2.2
Planning ...................................................................................... 5
2.3
Preparation.................................................................................... 7
2.4
Implementation............................................................................. 9
2.4.1 Facility Start-Up Activities........................................................... 9
2.4.2 Post Construction Phase ............................................................. 12
2.5
Project Evaluation....................................................................... 13
Organizational Considerations ............................................................... 14
3.1
Typical Organizational Relationships.......................................... 14
3.2
Roles and Responsibilities........................................................... 16
3.2.1 Prime Consultant........................................................................ 17
3.2.2 Mechanical and Electrical Engineers of Record
(Engineering and Specialist Consultants)..................................... 18
3.2.3 Commissioning Manager............................................................ 19
3.2.4 Other Participants in the Commissioning Process ....................... 21

Appendix A - Systems to be Considered for Commissioning
Appendix B - Operation and Maintenance Manuals
Appendix C - Internet Websites Applicable to Building Commissioning
Appendix D - Bibliography

2

Forward
A nation wide survey (3) on “Commissioning” carried out by the Canadian
Standards Association (CSA) in 1991 indicated that the concept of building
commissioning varied considerably from person to person depending on their
individual point of view. There were clearly differences of opinion on the
definition of commissioning. While many saw it as a special one-time checking
out of safety and service systems carried out upon completion of a building,
others saw it as a more comprehensive ongoing process that would ensure that a
completed building would meet the design intent and operational needs of the
Owner. It is this latter viewpoint that is now commonly accepted.
Building systems are becoming increasingly complex and sophisticated. This
increase in complexity and sophistication, coupled with the fact that more
building systems are interrelated, points to a need to clearly define the process of
building commissioning and develop it as a managed coordinated activity that
will ensure completed facilities meet the design intent and operational needs of
the Owner. The Association of Professional Engineers and Geoscientists of
Manitoba (APEGM) has prepared this document with the objective of providing
guidance to practitioners involved in commissioning. The document is intended
to assist those who are providing services in the commissioning process either as
overall manager of the process, or as a team member.
Other associations, most notably the Association of Professional Engineers
Geologists and Geophysicists of Alberta (APEGGA) and the Professional
Engineers of Ontario (PEO) have both developed and published guidelines for
professional engineers providing commissioning work in buildings. As well,
Alberta Public Works, Supply and Services have published department
requirements for commissioning of building projects under their jurisdiction (1).
These documents provide much of the content of this guideline and the work of
the committees and individuals involved in their development is gratefully
acknowledged.

3

1

Overview

1.1

Objectives of the Guideline

The objectives of the Association of Professional Engineers and Geoscientists of
Manitoba (APEGM) in publishing this guideline are to:
•

encourage recognition of commissioning as a distinct and essential function in
the development of a successful facility,

•

encourage a degree of uniformity within the engineering profession in
carrying out commissioning activities,

•

educate professional engineers and clients on the scope, responsibilities, and
procedural issues of commissioning, and

•

provide a reference document that will assist the Profession in carrying out its
mandate of protecting the public.

1.2

Definition of Commissioning

Commissioning is the process of testing the performance of equipment and
systems to determine their capability to meet performance requirements as
defined in the specifications prepared by the designer. It may also include the
provision of training and documentation necessary for the Owners’ personnel to
competently operate and maintain the equipment or system.

1.3

Benefits of a Comprehensive Commissioning
Program

In addition to confirming that a completed facility meets all of the performance
requirements for which it was designed, the commissioning process can be
viewed as an investment which can provide both long and short term returns. The
magnitude of these returns is generally directly proportional to the effort devoted
to the process, starting from project inception. Examples of short-term benefits
obtained from a well-developed commissioning program are:

1617171166

•

Increased probability of early identification of any deficiencies prior to
occupancy or start-up, or before warranty expiration, leaving Owners in a
strong position to have defects corrected by the parties responsible for them,
on a timely basis.

•

Reduction in the potential for unnecessary and costly shutdowns resulting
from inadequate review and testing prior to a system or component being put
into service.

•

The establishment of a well trained operations staff equipped with
comprehensive manuals written by personnel responsible for the overall
system design.

Examples of the longer-term benefits that can be provided by a thorough
commissioning program are:
•

Reduction in energy consumption and operating costs over the life of a facility
as a result of operations staff understanding the capabilities of the systems
which are part of the facility, and the conditions under which they function
most efficiently.

•

Extended service life of a facility resulting from the implementation of a well
planned maintenance program.

•

A comfortable working environment that meets the original design intent
under all operating conditions, thereby minimizing the potential for
complaints from staff, or turnover of tenants.

•

Reduction in the potential for Owner liability in critical occupancies where the
performance of building systems can have a negative impact on product
quality, or on the health and safety of building occupants.

Although an extensive commissioning program can add significant costs to the
front end of a project, it can lead to savings which over the life of the facility can
be many times greater than the initial amount invested in the commissioning
process. At the outset of a project, a decision should be made regarding the effort
and resources that will be expended on commissioning. This decision must be
made only after the potential benefits of a given level of effort are weighed
against the risks associated with implementing a program based on a lower level
of effort and fewer resources.
2

1.4

Scope of the Guideline

This guideline focuses primarily on practices and responsibilities of engineers
who are involved in the commissioning process, either as the Commissioning
Manager or as a member of the commissioning team, for a complex project. It is
recognized that many projects will not warrant a thorough commissioning
process. However, variations can be made to the application of this guideline to
accommodate many different types of projects or situations without detracting
from the intent of the document.
The scope of commissioning activity related to a specific project will vary
depending on the attributes of the project itself;
•

the size and complexity (complex design and/or technology) of the project and
the number of building components to be commissioned,

•

the critical nature of the occupancy

•

client requirements that are new or unique,

•

client requirements that are vague or uncertain, or

•

remote location.

Other factors that may affect the scope of the commissioning activity are;
•

the organizational relationships established for the project,

•

the amount of money and/or resources that the Owner allocates to undertake
commissioning, and

•

the stage of the project at which the Owner decides to undertake
commissioning.

These factors are not necessarily independent of one another.
For projects which include complex equipment and systems, and for projects with
occupancies of a critical nature, a thorough approach to commissioning is
essential. All complex and/or critical mechanical and electrical systems and
related architectural elements such as the building envelope and internal wall
3

systems subject to pressure differences should be included in the commissioning
program. It is also essential that the mechanical and electrical design consultants
are included as an integral part of the commissioning team, and that the
Commissioning Manager, whether the Owner, one of the design consultants or an
independent agency, be suitably qualified and experienced in the commissioning
of projects of similar size and complexity
Appendix A of this document provides examples of the types of systems to be
considered in building commissioning. As a number of these systems are highly
specialized, procedures specific to each project should be developed by personnel
with relevant design and operating experience. One system which historically has
received little or no attention in the commissioning process is the building
envelope. In recent years, problems associated with building envelopes have
highlighted the importance of their inclusion in comprehensive commissioning
programs.
While the intent of this document is not to prescribe specific procedures for
commissioning building systems, readers should be aware that there are many
sources of information readily available that can be used in preparing
commissioning procedures. A sample listing of a number of internet websites
providing information on the topic of commissioning is provided in Appendix C.
Other sources are texts and guidelines published by a number of technical and
trade associations, and government agencies.

4

2
2.1

Fundamentals of a Comprehensive
Commissioning Program
Introduction

In the document “Project Commissioning – Scope and Process”, the
Commissioning Branch of the Alberta Public Works Supply and Services
Department present a detailed framework for managing the building
commissioning process. This framework is presented here as a model that may be
followed by professional engineers who are participants in the commissioning
process.
The Alberta Public Works document presents the commissioning management
process as a series of actions and activities by the project participants at various
times over the complete life cycle of the project. These actions and activities can
be regarded as fundamental to a sound commissioning program and are included
in the following phases of the commissioning process;
(a)
(b)
(c)
(d)

Planning,
Preparation,
Implementation, and
Project Evaluation.

Within each of these phases are major milestones that should be achieved. The
four phases, and seven major “Commissioning Milestones” (CM) to be achieved
are illustrated in Figure 1 and are described in the following sub-sections.

2.2

Planning

This phase of the commissioning process parallels the Functional Planning,
Budget Formulation and Facility Planning activities of the project. Planning
related to the start-up of a facility, documentation of appropriate information, and
training of system operators must commence in the very early stages of a project,
and evolve on a continuous more detailed basis throughout all phases of the work.
However, prior to the appointment of the Prime Consultant for any particular
project, there are basic decisions to be made that could have a major impact on the
success or failure of the project from a commissioning point-of-view. This period

5

GENERAL FRAMEWORK FOR PROJECT COMMISSIONING
CAPITAL PROJECT PHASES
FUNCTIONAL
PLANNING
(By Client)

DESIGN

CAPITAL
BUDGET
FORMULATION

FACILITY
PLANNING

SCHEMATIC

BIDDING

DESIGN
DEVELOPMENT

PHYSICAL
CONSTRUCTION

FACILITY
STARTUP

POST
CONSTRUCTION

CONTRACT
DOCUMENTS

PREPARATION

COMMISSIONING BUDGET ESTIMATE ESTABLISHED
PROJECT COMMISSIONING PLAN PREPARED
START OF COMMISSIONING DEVELOPMENT
START OF COMMISSIONING PREPARATION
PROVISIONAL OPERATIONS & MAINTENANCE MANUAL COMPLETE
FACILITY STARTUP PHASE COMPLETE
PROJECT EVALUATION REPORT COMPLETE

TOTAL
COMPLETION

FINAL
ACCEPTANCE

COMMISSIONING MILESTONES
CM-1
CM-2
CM-3
CM-4
CM-5
CM-6
CM-7

PRACTICAL
COMPLETION

PLANNING

INTERIM
ACCEPTANCE

PRIME
CONSULTANT
APPROVED

COMMISSIONING PHASES

IMPLEMENTATION
PROJECT
EVALUATION

CM-1

CM-2

CM-3

CM-5

CM-4

CM-6

COMMISSIONING PROGRAM
SUBMISSIONS AND APPROVAL MILESTONES
S1

CONTRACTOR START-UP PROGRAM (CSP)

S2

S3

CONSULTANT VERIFICATION PROGRAM (CVP)

C1

C2

C3

OPERATION & MAINTENANCE (O & M) MANUALS

M1

M2

M3

OPERATOR TRAINING PROGRAM (OTP)

O1

PERFORMANCE TESTING PROGRAM (PTP)

C5

C4

M4
O2

P1

P2

P3

P4

CM-7

S1 - Draft Plan
S2 - Final Plan
S3 - Final Report
C1 - Development Plan
C2 - Detailed Plan (Draft)
C3 - Detailed Plan (Final)
C4 - Interim Report
C5 - Final Report
M1 - Development Plan
M2 - Operations Division (Draft)
M3- Provisional Edition
M4 - Final Edition
O1 - Development Plan
O2 - Seminar Agenda
P1 - Outline Plan
P2 - Detailed Plan
P3 - Interim Report
P4 - Final Report

Figure 1
6

of the project is characterized by planning activities and related decisions that will
establish the project commissioning plan and related budget. Two commissioning
milestones should be achieved during the Commissioning Planning Phase:
CM-1 Commissioning Budget Estimate Established
An assessment of commissioning risks associated with a new project is made and
a separate budget provision should be established to cover costs expected during
the Preparation and Implementation phases of commissioning. This includes the
costs associated with the preparation of operation and maintenance manuals and
familiarization and training of operations personnel.
CM-2 Preparation of Project Commissioning Plan
Once the scope of the project has been defined, and prior to the selection of a
Prime Consultant for the project, a Project Commissioning Plan should be
prepared to define the commissioning requirements for the project in terms of:
•
•
•
•
•

2.3

The equipment and/or systems that are targeted for commissioning.
A general assessment of risks, uncertainties and/or vulnerabilities
expected during the facility start-up phase of the work.
Special resources required to support the commissioning effort and the
timing of their involvement.
Any special or additional services that may be required from the design
consultants to support the commissioning effort.
The general staging and timing for the facility start-up and the timing for
key commissioning activities through to the completion of the project.

Preparation

This phase of the commissioning process spans the design, bidding and physical
construction activities of the project. Depending on the size and complexity of the
project, this phase can involve any number of activities, by any or all project
participants, that are specifically aimed at preparing for the successful
implementation of facility start-up including the preparation of operation and
maintenance manuals and familiarization of operations staff. The focus of
commissioning activities in this period is generally:
•

Definition of explicit general contract requirements by the design
consultants to ensure that the Contractor’s start-up activities are properly
planned, prepared and implemented. Specifications prepared for the
project must be thorough and clear.

7

•

•

•

Consultant verification of contract work, through shop drawing reviews,
field inspections, and witnessing of equipment and system tests, to ensure
that the work is being installed as specified and to confirm the
completeness of construction and acceptable system operation.
Progressive development of the detailed plans to ensure that all aspects of
the facility start-up are carried out in a well coordinated, timely and
effective manner.
Testing of systems individually and collectively to determine the level of
performance.

Commissioning milestones achieved during the Preparation Phase include:
CM-3 Start of Commissioning Preparation
This commissioning milestone typically occurs at the end of the schematic design
and at the beginning of design development. For the routine facility, this
milestone simply confirms that any special requirements to properly commission
the facility are known and arrangements are being made. For more complex
facilities, this milestone signals the start of intensive development activities,
aimed at the successful execution of the facility start-up activities, the
documentation of essential information, and the planning of the future training of
the operator/user group.
CM-4 Start of Commissioning Development
This commissioning milestone typically begins at the same time that final design
and contract documentation (drawings and specifications) start. Based on prior
planning, a consultant verification program is prepared, on a system-by-system
basis, including preparation of report forms. Also, an operations division of the
operations and maintenance manual is prepared based on the final design.
CM-5 Provisional Operations and Maintenance Manual Complete
This milestone results in the provision of manuals, except for information
obtained during facility start-up, for use by all project team members and the
permanent system operators. Based on the information contained in the
Operations Division, a performance test program is prepared on a system-bysystem basis including the preparation of report forms. Guidelines pertaining to
the Operation and Maintenance Manual are presented in Appendix B.

8

2.4

Implementation

The implementation phase of the commissioning process covers the Facility StartUp and the Post Construction activities associated with the project. Prior
planning and preparation activities should reduce the implementation phase to
fieldwork, analysis of results, necessary corrective action and the training and
familiarization of system Operators.
The milestone met during this
commissioning phase is the most significant of the commissioning process and
occurs with the final acceptance of the project.
CM-6 Facility Start-Up Activities Complete – Final Acceptance
This is clearly the most important commissioning milestone and should have the
most significant impact on scope and intensity of commissioning related activities
throughout the project. This milestone marks the point in time where all contract,
design and facility performance requirements have been met and where a stable
and acceptable level of facility operation has been achieved. It is a date that
should be fixed for planning purposes as part of the detailed facility start-up
planning activities and should be achieved within six months of interim
acceptance of the contract work for even the largest and most complex facilities.
For smaller and simpler facilities this time frame should be substantially reduced.
The implementation activities leading up to, and following CM-6 are described in
the sections below.

2.4.1

Facility Start-Up Activities

Facility start-up is regarded as the most important step of the entire
commissioning process. It is when the commissioning plan is put into action.
Facility start-up concludes with final acceptance of the facility by the Owner.
Activities and milestones associated with facility start-up are illustrated in
Figure 2.
Facility start-up activities fall under 3 categories, or sub-phases
(a)
(b)
(c)

completion
testing
tuning

9

(a)

Completion Activities
The Alberta Public Works document describes completion as the
period in which a series of preplanned and coordinated activities are
carried out by the Contractor (Contractor Start-Up Program) to
transform the facility from a state of static completion to a state of
dynamic operation in compliance with the contract documents. It is
also the period in which a series of preplanned and coordinated
activities are carried out by the design consultants (Consultant
Verification Program) to verify that the installed work is complete and
in accordance with the contract documents and the design intent.
These two programs may be carried out in two separate steps. The
first step would be a prerequisite to interim acceptance and operator
occupancy of the facility. The second step would include the start-up
of those facilities that cannot be operated until some later period in the
first year of operation, due to outdoor conditions.
Successful completion of the Consultant Verification Program should
be sufficient for the design consultants to issue “certification letters” as
may be required by the regulatory authorities prior to occupancy or
interim occupancy of the building.
During the completion sub-phase the provisional edition of the system
operation and maintenance manuals should be made available to
system operators and everyone involved in the start-up for their review
and familiarization with the various systems. A formal training
seminar, led by the design consultants with support from the
contractors and equipment suppliers should be held to familiarize the
operators with each system.

(b)

Testing Activities
Testing is the period that takes place following the contractor start-up
program and the Consultant Verification Program and after a formal
training seminar for the system operators has been held.
Testing is a series of operating tests carried out by the Owner
(Performance Testing Program).
These tests are carried out
independent of the project team and should be performed under
simulated operating conditions.

10

COMMISSIONING OF BUILDINGS
FACILITY START-UP PHASE
6 Months Maximum

COMPLETION

TESTING

TUNING

Start Of
Warranty

WARRANTY PERIOD
Physical Construction

Consultant Contract Administration Services Including Inspection
Contractor Start-Up
Program

CSP(2)
Fine Tuning
Program
Move
In
Performance Test
Program

Consultant Verification

Physical
Plant Staff

Occupancy Milestone

O & M Manuals

Operator Training

Post Construction

CVP(2)

Interim
Acceptance

Acceptance Milestone

PTP(2)

Practical
Completion

Total
Completion

Final
Acceptance

User

Final
Manual

Provisional
Manual

Seminar

Follow-Up

CSP - Contractor Start-Up Program
CVP - Consultant Verification Program
PTP - Performance Test Program
FTP - Fine Tuning Program

Reference: Adapted From Project Commissioning Alberta Public Works

Figure 2

11

Testing is normally carried out by the Owner’s personnel if they are
available, or by private testing agents directly contracted by the
Owner. If testing is carried out by private testing agents, the Owner’s
key operation and maintenance staff should still be present during the
testing to increase their familiarity with the systems.
Testing results should confirm that the systems operate according to
the contract documents and the design intent. Testing should also
confirm that the Owner’s operators are ready to operate the facility
under actual operating conditions.
If there are any contract or design deficiencies identified as a result of
the testing program, they are turned over to the project team for
resolution. If additional operator training is required, a supplemental
training seminar should be arranged.
(c)

Tuning Activities
Tuning is the period during initial occupancy of the facility by the user
in which all systems are fine-tuned by the Owner under actual
operating conditions. All outstanding deficiencies are eliminated or
otherwise resolved. Also, deferred seasonal systems are usually
completed during this period.

Once all activities associated with completion, testing and tuning are
completed, milestone CM-6 associated with final acceptance can be achieved.

2.4.2

Post Construction Phase

This is the period of the project which follows final acceptance. During this
period any remaining minor deficiencies are corrected. Once all outstanding
deficiencies are corrected, the project is considered to be totally complete.

A follow-up operator training seminar may be held at this time.

12

2.5

Project Evaluation

This is the period following the completion of a project during which an
evaluation is carried out to assess both the good features and the problems
encountered in delivering the new facility to the point of stable and acceptable
level of operations, that is in accordance with predefined client and operator
requirements.
The milestone achieved at this stage of the project is important for the benefit of
future projects.
CM-7 Project Evaluation Report Complete
This milestone identifies the completion of the commissioning management
process for any individual project. The Project Evaluation Report is an important
mechanism to ensure that commissioning related problems are minimized on
future projects. This report will also provide information, which will serve as a
datum for future facility operation and evaluation.

13

3
3.1

Organizational Considerations
Typical Organizational Relationships

Three organizational arrangements that can be applied to the commissioning
process are illustrated in Figure 3.
Option 1: Prime Consultant coordinates and manages all specialist subconsultants
in the development and implementation of a commissioning program.
Option 2: Prime Consultant coordinates and manages all specialist
subconsultants, one of which is a commissioning consultant, or “Commissioning
Manager”, having the responsibility for development and implementation of the
commissioning program.
Option 3: Owner arranges for a commissioning consultant, or “Commissioning
Manager”, who is directly responsible for the development and implementation of
the commissioning program, and who reports directly to the Owner and the
Owner’s staff.
The concepts illustrated in Figure 3 are applicable to other types of organizations,
as well. For example, the commissioning function may be performed by in-house
engineering staff in the Owner’s organization.
Under Option 1 described above, the Owner engages a Prime Consultant to
coordinate and manage all specialist subconsultants. In this arrangement, the
commissioning function is performed by the in-house staff of the electrical and
mechanical subconsultants respectively. Its success is dependent upon the inhouse capability of the subconsultants to provide commissioning services and
their ability to deal objectively with conflicts that may arise with the design. It
also requires ability by the Prime Consultant to coordinate the commissioning
function.
Option 2 also describes an organizational arrangement in which the Owner
engages a Prime Consultant to coordinate and manage all specialist
subconsultants. In this arrangement, the commissioning function is performed by
a subconsultant who specializes in commissioning. It has the advantages of
specialization and direct communication between the members of the design/
commissioning team. It also permits effective control of potential conflicts
between the design and commissioning functions.

14

OWNER

PRIME
CONSULTANT

ELECTRICAL
SUBCONSULTANT
OF RECORD

Commissioning

COMMISSIONING
SUBCONSULTANT

MECHANICAL
SUBCONSULTANT
OF RECORD

Commissioning

OWNER

PRIME

ELECTRICAL
SUBCONSULTANT
OF RECORD

CONSULTANT

COMMISSIONING
CONSULTANT

MECHANICAL
SUBCONSULTANT
OF RECORD

CONTRACTOR

OWNER

PRIME
CONSULTANT

SUBCONSULTANT
OF RECORD

MECHANICAL
OF RECORD

SUBCONTRACTOR

CONTRACTOR

Option 1
CONTRACTOR
SUBCONTRACT

Option 2
SUBCONTRACTOR

Figure 3

Option 3

Organizational Considerations

15

Option 3 describes an organizational relationship in which the Owner engages the
Commissioning Manager directly. In this option, the commissioning function
may be performed entirely by the Commissioning Manager or in conjunction with
the Owner’s staff, or the Mechanical/Electrical Engineers of Record, acting under
his direction. Regardless of who performs the commissioning activities, this
arrangement must provide for the necessary interaction between the Mechanical/
Electrical Engineers of Record, starting early in the design phase and continuing
until final acceptance. Option 3 introduces independent professional opinion with
respect to the performance of the constructed facility. This option requires that
the Owner be able and willing to coordinate and manage the interrelationship
between the design, construction and commissioning functions.
A number of conditions will influence the choice of organizational relationships
for any particular project. One important consideration is the experience and
availability of the Owner’s staff to coordinate and/or manage the design and
commissioning consultants in the performance of their respective services on a
project. An appropriate organizational structure should be selected by the Owner
at an early stage in the project since it will influence the wording in the
specifications, particularly in areas of interface between the Commissioning
Manager and the Contractor. It is imperative that the responsibilities of the
Commissioning Manager and the Contractor are clearly described since they both
have potential to affect manufacturers’ warranties. Care must be taken in
describing the responsibilities of the Commissioning Manager, to avoid
unnecessary conflicts and/or disputes between the Owner and Contractor.
Where a project is undertaken on a design/build basis, the commissioning
function may be included in the work of the General Contractor or the mechanical
and electrical subcontractors. In this situation, special attention must be given to
the potential conflict of interest which may affect the objectivity of the
commissioning function and its validity as a measurement of the performance
capability of the as-built facility.

3.2

Roles and Responsibilities

There are many variations of the organization models identified in the preceding
section. The number of parties involved can extend well beyond those shown in
the options which appear in Figure 3. Typically many parties have some
contractual obligation in various aspects of the commissioning. These parties are
organized in different ways to suit the nature of the project. The extent of their

16

contribution can vary accordingly. It is essential that the role of each party,
including the Commissioning Manager, is defined early in the project.
The following sections outline the roles and responsibilities of the Prime
Consultant and the Mechanical and Electrical Engineers of Record in their
traditional design capacities, and the additional duties assumed by the
Commissioning Manager. The Commissioning Manager may be the Owner,
Prime Consultant, Mechanical/Electrical Engineer of Record, or an independent
commissioning consultant. The commissioning duties described in the subsections below may be performed under the Commissioning Manager’s direction
by a commissioning team comprised of various combinations of members from
these other groups.

3.2.1

Prime Consultant

The Prime Consultant is the professional engineer or architect under whose
overall responsibility the design is carried out and construction drawings and
specifications are prepared and sealed. When the Prime Consultant reports to
and/or is contracted directly by the Owner rather than a project manager, the
Prime Consultant often assumes part or all of a project manager’s
responsibilities. In either case, it is important that a Prime Consultant’s
obligation for commissioning be clear. The Prime Consultant is responsible
for:
(a)

Determining the Owner’s requirements and incorporating them in the
design.

(b)

Describing to the Owner the full scope of professional services required
to meet the needs of the project during design, construction and
commissioning including the potential consequences of limiting specific
aspects of the scope of services.

(c)

Selecting competent design subconsultants and assigning responsibilities
with respect to services required throughout the design, construction and
commissioning stages of the project.

(d)

Determining through consultation with the Owner, which organizational
option is to be used to perform the commissioning service.

(e)

Negotiating agreements with the Owner and subconsultants which
reflect appropriate scope of professional services and fees.
17

(f)

Coordinating the design process including any elements of the design
which are specified to be provided by the Contractor, and determining
that all design is performed under the supervision of qualified
professional engineers.

(g)

Reviewing subconsultant designs and specifications for conformance to
the design criteria and the integrity of the total project design.

(h)

Coordinating the preparation of contract documentation including all
aspects of requirements with respect to substantial completion, warranty
and payment for services associated with commissioning.

(i)

Ensuring that the Contractor understands the design including any
special features and construction sequences.

(j)

Coordinating the contract administration services for the whole design
team.

(k)

Coordinating the activities of the design team with the commissioning
function throughout the design, construction and start-up of the facility.

3.2.2

Mechanical and Electrical Engineers of Record
(Engineering and Specialist Consultants)

The Mechanical and Electrical Engineers of Record are usually the most
qualified members of the project team to specify and document the system to
suit the Owner’s operating objectives. It is therefore essential that the
Commissioning Manager work closely with the design consultants.
The Mechanical and Electrical Engineers of Record are responsible for the
following in their respective disciplines:
(a) Advising the Prime Consultant regarding the scope of professional
services required to meet the needs of the project during design and
construction and providing those services accordingly.
(b) Preparing design drawings and specifications which conform to applicable
codes and standards and which reflect the respective scopes of work
including that which is required to incorporate the commissioning process
as established by the Prime Consultant.
18

(c) Selecting qualified subconsultants in specialized areas of engineering, as
required.
(d) Interpreting the intent of the drawings and specifications during
construction as required.
(e) Reviewing shop drawings and other submissions from the Contractor for
conformance to the intent of the design.
(f) Reviewing drawings and documents prepared by the Contractor or
subcontractors which describe techniques, procedures and sequences for
conformance to the intent of the design, including any special criteria
established by the client that affects the design.
(g) Specifying special construction procedures when required to meet the
intent of the design.
(h) Reviewing the qualifications of contractors and subcontractors for
conformance to the requirements specified in the contract documents and
making recommendations on their selection. If the recommendations are
overruled, the consequences of the decision must be communicated in
writing to the Prime Consultant and the Owner.
(i) Providing contract administration services to the Prime Consultant in
accordance with the scope of professional services in the subconsultant
agreement.
(j) Contributing to the preparation of Operating Manuals by compiling
systems descriptions, maintenance and warranty information.

3.2.3

Commissioning Manager

The Commissioning Manager may be the Owner, Prime Consultant,
Mechanical/Electrical Engineer of Record, or an independent commissioning
consultant.
The function of the Commissioning Manager is to determine, in consultation
with the Prime Consultant and Electrical/Mechanical Engineers of Record, if
the installed mechanical and electrical systems are capable of operating in
accordance with the design as specified, and to test and observe their initial
operation. Regardless of the organizational arrangement within which the
19

Commissioning Manager is engaged (see Figure 3), the scope of services for
the commissioning function should be clearly established.
On a project that requires the full scope of services, the Commissioning
Manager is responsible for the following:
(a) Reviewing the design concept for conditions that affect the commissioning
function. Recording the results of the review in a written report to the
Prime Consultant.
(b) Preparing commissioning specifications and payment clauses in the format
and standard established by the Prime Consultant and/or Owner as
applicable. Responsibility for the cost of utilities and labour expended in
commissioning, as well as special costs for items such as extended
warranty, should be included in the documentation submitted to the Prime
Consultant.
(c)

Measuring and recording systems and equipment performance in
accordance with established and logical procedures.

(d)

Comparing measured performance with specified performance
andcertifying satisfactory operation if performance does conform to
specifications.

(e) Advising the Owner and/or the Prime Consultant (as applicable) of all
inconsistencies between measured performance and specified
performance.
(f) Providing a permanent record of the commissioning work suitable for the
operational and maintenance use of the Owner.
(g) Defining the specific tasks that need to be executed, in consultation with
the Owner and the Prime Consultant. The Scope of Work may include,
but should not necessarily be limited to, the following:
(i)
(ii)
(iii)
(iv)

definition of the Systems and Equipment to be commissioned;
procedures for Systems and Equipment commissioning;
documentation format for recording measurements;
documentation format for certifying equipment and system
performance to establish standards.

20

(h) Special tasks associated with the commissioning process that may be
requested by the Owner as follows:1
•
•
•
•
•
•
•

availability to discuss aspects of commissioning at the design and
construction stage;
review of maintenance procedures;
preparation of operating and maintenance manuals;
preparation of a preventive maintenance program;
classroom seminars on systems description and operating requirements;
video tape operating and maintenance instructional seminar material;
availability to monitor system or equipment performance throughout
warranty period and/or first change of season.

It should be noted that responsibility associated with the commissioning
function does not overlap the professional responsibility of the members of
the design team. The Commissioning Manager should avoid giving
professional advice to the Owner which extends beyond commissioning, to
matters of design. Since the results of commissioning activities on a project
have potential to identify design deficiencies, it is imperative that all
communications be performed in strict conformance with the Code of Ethics.

3.2.4

Other Participants in the Commissioning Process

In addition to the key participants referred to above, there are a number of
other parties that are likely to be involved in the commissioning process.
Depending on the structure of the Owner’s organization these participants
may include the Owner, or the Owner’s project manager, and the Owner’s
operating staff, or contract operator. The operating philosophy of the Owner
must be determined before preparing the commissioning plan for the building
or facility. Systems, equipment, devices and documentation must be designed
to suit the capability of the Owner’s operating staff and organization. The
Owner’s operating staff or contract operator must be involved throughout the
commissioning process.
The General Contractor and trade subcontractors are also participants in the
commissioning process. The General Contractor assumes responsibility under
the contract, for the completion of all the “work”, including commissioning.
1

The tasks listed are examples and do not represent all activities which the commissioning
manager may be requested to undertake. Some items listed may be included in the scope
of assignment of the Mechanical or Electrical Engineer of Record.

21

Where work is let in packages throughout the project’s duration, it is
important to ensure a consistent approach to commissioning.
In most cases the General Contractor relies heavily on the sub-trades to carry
out commissioning obligations. The mechanical and electrical sub-contractors
typically have the most extensive responsibility for providing and setting into
operation systems and equipment. The mechanical contractor usually has to
coordinate the work of such sub-trades as plumbing, and drainage, sheet metal
(HVAC Systems), refrigeration, controls, etc. While electrical contractors do
most of their own work, there are some systems (e.g. Telecommunications,
security and controls) where sub-trades are utilized. The interface between
the commissioning work of various mechanical and electrical sub-trades must
be clearly defined. Sub-contractors usually have the responsibility of
assembling the documentation for the systems they supply.
This
documentation comprises reports on:

•
•
•
•
•
•
•

Air /water balancing and recording
System and equipment start-up and proving
Control sequence and operation testing
Load Checks
Operating and maintenance manuals
Tagging of devices and equipment, and
Record drawings.

It is important to ensure that this documentation is complete, well indexed and
well presented with no superfluous or irrelevant information
Finally, the various suppliers of equipment to a project are also involved in the
commissioning process. Although their responsibility is often limited to
providing documentation, for complex equipment they may be made
responsible for the initial start-up and testing.

22

Appendix A
Systems to be Considered for Commissioning
Commissioning is not a replacement for, or a duplication of “review during
construction” as described in the APEGM Guideline for Providing Mechanical
and Electrical Engineering Services in Buildings. It is a distinct and separate
engineering service covering the start-up and testing of electrical and mechanical
systems to confirm performance capability.
The following list of activities is applicable to many types of complex buildings,
but is not meant to be in any way exhaustive or limiting. The Commissioning
Manager should compile a specific list for each project.
Power Systems
• primary switchgear
• normal power system
• emergency power switchgear and distribution
• emergency power generation (including any special ventilation system that
may be required)
• miscellaneous electrical systems (such as clocks, uninterruptible power to
computers, etc.)
• special project-related electrical systems (such as isolated power for operating
rooms, etc.).
Lighting Systems
• normal interior lighting
• exterior lighting
• economy measures (such as block lighting programs)
• special lighting (such as battery-powered emergency system for stairwells and
corridors).
Heating Systems
• central heating plants
• heating and cooling systems
• plant controls and automation
• alternative fuel supplies (natural gas/fuel oil)
• special project-related heating systems.

A-1

Ventilation and Air-Conditioning
• central supply and return air systems
• stand-alone air handling systems
• exhaust air systems (such as kitchens, fume hoods, washrooms, cyclone,
laboratories, etc.)
• special project-related ventilation (such as loading dock or ambulance bay
airlock, connecting links between buildings, electrical rooms, volatile stores,
etc.).
Refrigeration Systems
• central plant chilled water systems
• isolated chiller and cooling tower systems
• heat recovery systems
• special project-related refrigeration systems.
Plumbing Systems
• hot and cold water service systems
• domestic water and fire protection system
• chemical treatment and water softening systems (such as water softener,
feeders, chemicals, testing and controls)
• sanitary sewerage system
• storm water management system (such as roof and catchbasin flow controls,
sewers and site storage ponds
• liquid water treatment and disposal system special project-related drainage
(such as chemical resistant drains, toxic effluent discharge, etc.).
Fire and Smoke Safety Systems
• electrical hardware and operation
• mechanical hardware and operation
• fire alarm and zone isolation
• integration of fire system with building systems control (such as airconditioning, elevators, etc.)
• testing and certification to CAN 4 0 S524.
Communication and Signal Systems
• telephone systems and link-up with authorities
• security systems (such as CCTV, card control, door position switches, etc.)
• public address and intercom
• entertainment and background music
• special project-related systems (such as pocket paging, central dictation, nurse
A-2

call, etc.).
Vertical Transportation Systems
• elevator operation and control features, including emergency power and
emergency response (hospitals)
• interconnection with fire alarm procedures (i.e. firefighter’s feature)
• normal and emergency operation of escalators, conveyors and pneumatic tube
systems.
Waste Disposal Systems
• garbage collection and chutes
• compactors
• destructors
• incinerator, possibly with heat recovery
• licensing of competent authority.
Automation
• mechanical control systems
• provision of special power (such as compressed air)
• building control components
• central plant control room components
• central system programming
• diversified control (such as to “smart panels” wiring in central and local airconditioning plant, room condition equipment, e.g. thermostats, etc.)
• special project-related controls (such as humidistat in intensive care areas of
hospitals, swimming pool area dehumidification, etc.) control software
(debugging).
•
Building Envelope
• air/water and vapour penetration rates
• water shedding systems
• thermal performance
• light transmittance.
Structural Systems
• deflection
• chemical/moisture.

A-3

Special Systems and Processes
• job specific systems (such as medical gases supply and distribution in
hospitals, water treatment for communal pools in recreation facilities, etc.).

A-4

Appendix B
Operation and Maintenance Manuals
B-1

Introduction

It is intended that the Operation and Maintenance Manual transfer the design
intent to the Building Operators. Operation and Maintenance Manuals must be:
•
•
•
•
•

Thorough
Detailed
Accurate
Project specific, and
Written in plain English.

Because the Design Consultant(s) develops the system(s), it should be the
responsibility of the Design Consultant(s) to write and assemble the entire
manual. Information generated or received by the Contractor and the Owner
would be provided to the Design Consultant(s) for inclusion in the manual.

B-2 Organization of the Manual
This Guideline proposes organizing the Operations and Maintenance Manual in
the format adopted by the Alberta Public works, Supply and Services
Commissioning Branch().
This format divides the manual into four divisions:
1.
2.
3.
4.

Operations Division
Maintenance Division
Contract Documentation Division
Standards Division.

The content and purpose of each manual division is as follows.

B-1

Operations Division
Each individual system is described in terms of design intent including specific
criteria, composition supported by a schematic drawing of the central system, and
operating instructions defining each mode of operation including specific
operating devices, interlocks and so on. The basic data for each component is
recorded for ease of future reference. This information will be used for initial
training as operators change in the future, as reference material for the Contractor
during project completion and as a day-to-day reference for system operation.
Also the Performance testing program is developed on the basis of this
information.
Maintenance Division
The maintenance requirements for each component are summarized, in a concise
manner, from manufacturers’ literature for ease of reference and to highlight the
daily, weekly, monthly and so on requirements. This information could be used
as the basis for a preventative maintenance program, or in the absence of such a
program, at least provide minimal direction in this regard. Furthermore,
information on equipment Suppliers, installing Contractors, required spare parts
and identification directories are provided; all for future reference if the need
arises.
Contract Documentation Division
This division is a collection of data generated by the construction process. This
data is organized for each of reference and includes the:
•
•
•
•
•
•

Drawing list
Shop drawings
Certificates
Warranties and bonds
Maintenance brochures, and
Reports (i.e. test and balance, chemical treatments, etc.).

The purpose of this division is to simply organize this information for permanent
storage and east of future reference.
Standards Division
This Division includes any standards that may be beneficial for reference by the
Operators during future operations such as safety standards, administrative
standards and the like.

B-2

Appendix C
Internet Websites Applicable to
Building Commissioning
There are numerous websites on the internet which are devoted solely to building
commissioning. These sites can be easily located by conducting a keyword
search (“building commissioning”) using any one of the search engines available.
Examples of sites where information on commissioning can be found are;
http:/www.ashrae.org/
http:/www.ecw.org/tc99/
http:/www.eren.doe.gov/femp/techassist/bldguide.pdf
http:/www.bcxa.org/
http:/www .energy.state.or.us/bus/comm/bldgcx.html
http:/www.lightforum.com/design/buildcomm1.htm
http:/www .teamkd.com/New%20KDWEB/KD-BCMI-CommPage.htm
http:/www .eren.doe.gov/femp/techassist/bldgcomgd.html
http:/www.aabchq.com/examplefpt.htm
http:/www.state.fl.us/fdi/edesign/news/9708/odom.htm
http:/www.state.fl.us/fdi/edesign/news/9708/odom.htm
http:/www.es.wapa.gov/pubs/briefs/Bld_comm/tb_bldcm.cfm

C-1

Appendix D
Bibliography

1

Alberta Public Works, Supply and Services, Capital Development Project
Management Division, Commissioning Branch”, Project Commissioning –
Scope and Process”, November 22, 1991.

2. Association of Professional Engineers, Geologists and Geophysicists of
Alberta, “Commissioning - A Guideline”, September 1990.
3. Canadian
Standards
Association,
Commissioning”, December 1991.

“Questionnaire

on

Building

4. Professional Engineers of Ontario, “Guideline - Professional Engineers
Providing Commissioning Work in Buildings”, 1992.

D-1

Building a comissioning guideline

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