AABC COMMISSIONING GROUP

ACG COMMISSIONING GUIDELINE

For Building Owners, Design Professionals
ACG COMMISSIONING GUIDELINE

and Commissioning Service Providers

ACG COMMISSIONING GUIDELINE
For Building Owners, Design Professionals
and Commissioning Service Providers

AABC Commissioning Group

1518 K Street NW • Washington, DC 20005
Tel: (202) 737-7775 • Fax: (202) 638-4833
Email: [email protected] • Website: www.commissioning.org
Public Information
Copyright © AABC Commissioning Group 2005

All rights reserved. No part of this book may be reproduced

by photocopying, recording, or by any other means, or stored,
possessed, or transmitted in or by any computer of other systems
without prior written permission of the ACG.

ISBN 0-910289-04-2

Although great care has been taken in compiling and publishing

this volume, no warranties, expressed or implied, are given in
connection herefrom and no responsibility can be taken for any
claims arising herefrom.

Comments, criticisms, and suggestions about the subject matter are

invited. Any errors or omissions should be brought to the attention
of the ACG headquarters.
Table of Contents

Foreword ...........................................................................................................1
Chapter 1 – Introduction ....................................................................................3

Chapter 2 – HVAC Commissioning Cost/Benefit Analysis ..................................7

Chapter 3 – Selecting a Commissioning Provider ..............................................11

Chapter 4 – The HVAC Commissioning Team ..................................................17

Chapter 5 – Comprehensive HVAC Commissioning .........................................25

Chapter 6 – Construction HVAC Commissioning .............................................41

Chapter 7 – HVAC Commissioning in Existing Buildings .................................53

Chapter 8 – Commissioning of Non-HVAC Building Systems ...........................61

Appendix A – Sample Request for Proposal for Commissioning Services

Appendix B – Sample Specification Covering Contractor Responsibilities for HVAC

Commissioning

Appendix C – Sample Format for System Verification and Start-up Checklists

Appendix D – Sample Functional Performance Test Checklists

Appendix E – Glossary of Acronyms

Foreword

The first edition of this guideline was published by the Associated Air Balance
Council (AABC) in 2002, and has been used as reference material for candidates
taking the AABC commissioning certification examination. In 2004, the AABC
Commissioning Group (ACG) was founded as a separate nonprofit organization
for the primary purpose of administering the AABC commissioning certification
program to architects and engineers. The copyright for the guideline was
subsequently granted to ACG and the guideline is now used as the primary reference
for the new ACG commissioning certification exam.
The only substantive change to the guideline is Chapter 3, “Selecting a
Commissioning Provider.” This chapter has been completely reorganized and
rewritten to include information about provider qualifications and the new ACG
certification program for architects and engineers.
The ACG Commissioning Guideline focuses on HVAC commissioning because it
was written by industry professionals experienced in the testing of HVAC systems.
Nevertheless, Environmental Building News referred to the guideline as “one of the
clearest descriptions of the commissioning process we’ve seen.”

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 CHAPTER 1 Introduction

1.1 1.1 HVAC Commissioning

HVAC Commissioning
Today’s HVAC systems must be energy efficient, satisfy stringent indoor air
1.2 quality and comfort expectations, and still be designed and constructed
HVAC Commissioning within tight budgets. System designs meeting these demands typically have many
Service Providers
components, sub-systems, and controls. Additionally, building construction
1.3 involves many specialized trades that often work independently of one another.
Scope Ineffective communication and coordination between designers and contractors, and
among contractors, can produce HVAC systems with installation deficiencies that do
1.4 not perform properly. Without verification of the correct interaction and operation
Purpose of all systems and components, system performance as specified and intended is
unlikely to occur.
Commissioning is a systematic process that addresses these issues. It facilitates and
ensures the required communication, coordination, testing, and verification, and
results in the delivery of a building whose HVAC systems perform as intended.
Effective HVAC commissioning is an intentional, visible, cooperative and
proactive process. It includes design review, installation verification, proper system
start-ups, functional performance tests, operations and maintenance (O&M) train-
ing, and complete documentation of the HVAC systems. It assists in the coordina-
tion of construction schedules and sequences to facilitate an efficient construction
process and challenges systems to perform as designed under all specified modes of
operation. O&M staff training provides a basis for continued optimum HVAC
systems performance throughout a facility’s existence. In summary, commissioning
serves the owner’s best interests by delivering a facility with systems that perform as
specified, intended, and paid for.
For the best possible results, commissioning should be included in all phases of
the design and construction process:
■ pre-design ■ design
■ construction ■ acceptance
■ post-acceptance

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 Commissioning requirements are then considered and incorporated from
project inception. The ACG Commissioning Guideline refers to this
recommended approach as “comprehensive HVAC commissioning.”
In many cases, however, commissioning is not considered until a project
reaches the construction phase. While still valuable, implementing commissioning
after construction begins will be less effective than comprehensive commission-
ing, which starts at the pre-design phase, because there is less opportunity to
organize and plan ahead. Because construction commissioning is widely used,
this Guideline includes a “construction HVAC commissioning” methodology as
an alternative to comprehensive commissioning.
The commissioning
authority works directly Regardless of the commissioning process used, there are many benefits from
for the owner and is commissioning. Some of these benefits are:
independent of designers, ■ Reduction of change orders and additional claims
contractors, vendors and ■ Fewer project delays
suppliers on the project. ■ Managed start-up requirements
■ Shorter building turn-over transition period
■ Less post-occupancy corrective work
■ Minimized effects from design changes
■ Improved indoor air quality and occupant productivity
■ Better operation, maintenance and reliability
■ Lower energy and operations costs
■ Value-added quality construction
■ Complete and useful O&M documentation
■ Owner advocacy for design and construction decisions
■ Documentation of the entire construction process

1.2 HVAC Commissioning Service Providers

HVAC commissioning requires a team approach. The leader of the
commissioning team is the commissioning authority.
The HVAC commissioning authority works directly for the owner and
is independent of designers, contractors, vendors and suppliers on the
project. Such independence is essential for the authority to be seen as
totally objective in leading the commissioning process. The HVAC
commissioning authority must maintain an unbiased approach to
problem solving and conflict resolution.

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Important qualifications and skills of HVAC Commissioning Agencies include:
■ Knowledge of HVAC systems, covering design, common control strategies,
installation, operations and maintenance
■ Experience in controls for HVAC systems, including familiarity with current
technology, both conventional and direct digital control
■ Practical field construction background
■ Demonstrated ability to organize many specific activities into a coherent
commissioning plan
■ Communications skills, both written and verbal
ACG has established its
■ Proficiency in documentation
Commissioning Certification
■ Experience working with multi-disciplinary teams Program to ensure quality
■ Familiarity with testing and balancing performance in the industry
and to help owners select a
Commissioning is a quality assurance process, and ACG has established its
commissioning authority.
Commissioning Certification Program to ensure quality performance in the
industry and to help owners select a commissioning authority that has the
requisite skills and expertise. The program provides a way to identify and
certify companies with the qualifications needed to provide superior HVAC
commissioning services.

1.3 Scope
The scope of the ACG Commissioning Guideline:
■ Provides information on the ACG commissioning certification program
■ Provides detailed methodology for both comprehensive and construction
HVAC commissioning
■ Covers commissioning in both new construction and existing buildings
■ Covers HVAC systems typically found in commercial and institutional
buildings
■ Provides standards for proper documentation and reporting, with sample
forms
■ Defines the roles and responsibilities of all commissioning team members

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 The detailed methodology contained in this Guideline for HVAC
commissioning can be adapted to the commissioning of non-HVAC systems.
Organization, coordination, scheduling, and documentation concepts and
basic methodology will be similar for all types of systems. However, the
commissioning team membership and content of the system verification, start-up,
and functional performance test checklists and system documentation will have
to reflect the technical requirements of whatever system is being commissioned.

1.4 Purpose
The purposes of the Guideline are:
■ To educate the industry about the commissioning process
■ To provide standardized, practical methodologies for commissioning
■ To introduce a program for certifying qualified commissioning providers

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 CHAPTER 2 HVAC Commissioning Cost/Benefit Analysis

2.1 2.1 HVAC Commissioning Benefits

HVAC
Commissioning HVAC commissioning promotes a quality assurance approach resulting in
Benefits significant value to the owner. The specific benefits of the HVAC commissioning
process include:
2.2 HVAC
Commissioning Cost/ ■ Reduction of change orders and additional claims—In Comprehensive
Benefit Analysis HVAC Commissioning, the commissioning authority carries out reviews
of the design and of contractor submittals as part of planning for commis-
sioning. These reviews often identify potential problems that can be consid-
ered by the designer and result in revisions that avoid future change orders
and claims.
■ Fewer deficiencies at substantial completion—During construction,
commissioning identifies incorrect or incomplete work early, allowing
corrections to be done, documented, followed-up, and re-tested. Thus most
problems are corrected before substantial completion so the building will
be fully operational at that time.
When deficiencies do remain at substantial completion, commissioning
ensures they are well documented and that responsibility for correction has
been established.
■ Fewer project delays—The detailed schedule and coordination information
provided by the commissioning process allows contractors to schedule and
sequence the required work efficiently. Problems are therefore identified and
resolved with minimal delay, and the project stays on schedule.
■ Managed start-up procedures—Preparations for equipment and system
start-up involve many interrelated contractor tasks. Commissioning’s
focus on planning and coordination facilitates implementing those tasks more
efficiently.
■ Shorter building turnover transition period—When a building’s HVAC
systems operate as intended, and its O&M staff is properly trained, the
building moves quickly to a fully operational status. The O&M staff can
focus on keeping the systems operating properly, and not on modifying
poorly performing systems to correct installation problems.

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 ■ Less post-occupancy corrective work—Functional performance tests,
as part of the commissioning process, identify problems that a physical
inspection cannot detect. Diagnosis is facilitated by the logical test protocols
used in commissioning, and because contractors are still on-site, correction
and re-testing occur quickly. As a result, fewer problems show up after
occupancy, and any corrective work is minimized in cost and disruption.
■ Minimized impact from design changes—Comprehensive commissioning
identifies, early on, potential design problems, such as lack of access for
commissioning or maintenance, provisions (or lack thereof) for TAB work,
and incomplete control sequence descriptions. Design revisions can be made
Functional performance on paper, and not in the form of physical changes on-site, greatly reducing
tests identify problems their negative impact.
that a physical inspection ■ Improved indoor air quality and occupant productivity—When HVAC
cannot detect. system designs meet occupancy needs, and they are operated and maintained
properly, good indoor air quality results. This includes good temperature
and humidity control, correct outside airflows, good air distribution
within the space, cleaner air, and reduced odors. Good indoor air quality
contributes to satisfied occupants and improved productivity.
■ Better operation, maintenance and reliability—Effective training ensures the
O&M staff has the information and documentation needed to operate and
maintain the HVAC systems correctly. This includes a planned preventive
maintenance (PM) program that results in maintaining efficiency, keeping
systems clean, keeping accurate temperature control, reducing equipment
failures, extending equipment life, and keeping good records.
■ Lower energy and operations costs—HVAC systems typically use a
substantial portion of a building’s total energy consumption. Thus improved
efficiency is an important and tangible benefit. An optimized PM program
improves reliability and extends equipment life.
■ Value-added construction quality—Commissioning produces a focus
on schedule, sequence of work, coordination, and ensuring a quality
product. Quality buildings result in satisfied occupants, more lease renewals
for tenant-occupied buildings, and a favorable reputation as a good place
to work or visit.
■ Complete and useful documentation—The commissioning process
produces valuable documentation throughout the project that has value in
providing owners and O&M staff with relevant information. Examples are:
the commissioning plan and final commissioning report (both including
systems verification, start-up and functional performance test checklists),
complete and usable O&M manuals, and a videotape record of O&M
training sessions.

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 ■ More knowledgeable O&M staff—Even the best building will encounter
problems from time to time. The commissioning process emphasis on
training and documentation should result in a more knowledgeable
O&M staff, both initially and over time as personnel change. Thus, when
problems do arise, the O&M staff is better equipped to diagnose and correct
the problems themselves, or to understand when outside expertise is needed.
■ Improved future designs—Feedback from additional design reviews and
from documentation of on-site commissioning activities give planners
and designers a broader perspective and knowledge of installation and
commissioning issues needing design attention. This information can be
applied to improve future designs. Most commissioning benefits
■ Owner advocacy for design and construction decisions—As owners continue for the life of the
experience all the foregoing benefits of commissioning, they will have building.
information that enables them to advocate its use more widely and to
put a greater emphasis on quality and value in their projects from design
through construction to operation and maintenance.

2.2 HVAC Commissioning Cost/Benefit Analysis

Experience indicates that the overall cost of comprehensive HVAC
commissioning is usually between 2% and 5% of the HVAC construction cost.
A building with simple HVAC systems, few zones, and simple control strategies
will be at the lower end of this cost range. Buildings with complex systems and
intricate control strategies, particularly with interfaces between systems, will be
at the upper end of this cost range.
The overall cost of construction HVAC commissioning is approximately
80% of that for comprehensive commissioning because commissioning work
is concentrated in the construction and acceptance phases. The cost of the
commissioning planning and organizational work carried out during the
pre-design and design phases in comprehensive commissioning is minimal
compared to the value added.
The exact value placed on each of the foregoing benefits will vary from
owner to owner, and from building to building. Generally, however, the value of
benefits will be greater for larger, more complex buildings—more than
compensating for the higher commissioning costs in these buildings. Most
commissioning benefits continue for the life of the building, whereas
implementing the commissioning process is a one-time cost. Therefore, any
realistic analysis of the initial and ongoing benefits of commissioning,
compared to its modest cost, will demonstrate that commissioning can be justified
in virtually every building.

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 CHAPTER 3 Selecting a Commissioning Provider

3.1 Request Selecting the commissioning provider represents one of the most important
for Qualifications commissioning decisions that a building owner makes. The provider should
and Proposals be certified by a nationally recognized organization and have the requisite
qualifications for the project that is being commissioned.
3.2 Commissioning
Authority
3.1 Request for Qualifications and Proposals
3.2.1 Independent
Third Party Under Request for Qualifications (RFQ) documents ask for details concerning previous
Contract to the relevant commissioning experience. The selection process warrants a thorough
Owner
interview and verification of past performance. The RFQ will help narrow the
3.3 ACG list of commissioning providers that receive a Request for Proposal (RFP), thus
Commissioning reducing the number of RFP reviews required of the owner and consultants. An
Certification interview process, a Request for Proposal (RFP) process, and contract negotiations
for the selected respondent typically follows the RFQ process.
3.3.1 HVAC
Commissioning The RFQ should include as much information about the project as possible.
Qualifications As a minimum, the RFQ should contain the following information:
■ Date of Issuance
3.4 TAB and
Functional ■ RFQ Due Date
Preformance ■ Owner/Program Manager Contact Information
Testing
■ Project/Program Description
■ Project/Program Schedule
■ Small Business/Minority Business Participation Goals
■ Characterization of the Request
■ Qualification Requirements
■ RFQ and Selection Process Description
■ Selection Criteria
■ Notification of Selection/Unsuccessful Respondent Protocol

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 Request for Proposal (RFP) requirements typically involve greater characterization
of commissioning services provided by the respondent, with particular emphasis
on the procedures and application of these services to the specific project. The
RFP should also include as much information about the project as possible, and
usually provides details of schematic design for the systems to be commissioned.
Proposed cost for services will be requested for review. As a minimum, the RFP
should contain the following information:
■ Date of Issuance
■ RFP due date

The commissioning RFP

■ Owner/program manager contact information
should include as much ■ Project name and location
information about the ■ Project/program description
project as possible. ■ Project/program schedule
■ Small Business/Minority Business participation goals
■ Characterization of the request
■ Qualification requirements
■ RFQ and selection process description
■ Selection criteria
■ Notification of selection/unsuccessful respondent protocol
■ Approximate size, use and occupancy of the facility
■ Types of systems to be commissioned
■ Special project considerations
■ Design team identification
■ Design and construction document development and distribution process
■ Submittal requirements
■ Request for scope of proposed services
■ Request for cost of services
■ Detailed break-out of services costs
■ Hourly charge-out rates for services applying to duly authorized extra work
■ Interview or pre-proposal conference schedules
■ Restrictions on communications with selection team members
■ Rules of withdrawal
■ Non-collusion affidavit
■ Insurance requirements
■ Contract requirements

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3.2 Commissioning Authority
The commissioning authority is the leader of the commissioning team and
is responsible for planning, organizing, and facilitating the commissioning
process on behalf of the owner. In addition to having good technical knowledge
of the systems being commissioned, the commissioning authority must also have
a complete understanding of the commissioning process. The commissioning au-
thority must possess organizational, documentation, communications, and team-
building skills to effectively lead and coordinate the commissioning team.

3.2.1 Independent Third Party Under Contract to the Owner A third party professional
brings objectivity and practi-
Independent certified commissioning authority under direct contract to the cal experience to the project
owner represents the preferred delivery model for commissioning services to provide a consistent level
advocated by ACG. A third party professional brings objectivity and of assurance that the owner’s
practical experience to the project to provide a consistent level of assurance best interests will be served.
that the owner’s best interests will be served.
Although many contractors possess the knowledge and capability to test
the equipment they install, they may not be skilled at testing, documenting,
or diagnosing integration problems. It is difficult for contractors to objective-
ly test and assess their own work, especially since repairing deficiencies found
through commissioning may increase their costs. While it is essential that
contractors verify and test their installations, this required practice does not result
in formal commissioning without appropriate independent oversight. Similar
discussions concerning designer/consutant roles in the construction, installation,
and acceptance of building systems leads to the preferred model of independent
third party commissioning services.
It is important to involve the independent commissioning authority as early
in the project as possible. This allows the provider the opportunity to review
the design intent for the project, begin scheduling commissioning activities, and
begin writing specifications into bid documents for other contractors.

3.3 ACG Commissioning Certification

Since 2002, the Associated Air Balance Council (AABC) has administered a
successful commissioning certification program for Test and Balance
Engineers. The AABC Commissioning Group (ACG) was established in 2004 as a
separate non-profit association dedicated to advancing professional, independent
commissioning services through education, training, and certification of
qualified providers.

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 Candidates for certification must be a registered architect (AIA), a licensed
professional engineer (PE), or a certified Test and Balance Engineer (TBE).
Through a detailed application and examination process, ACG awards the
designation Certified commissioning authority (CxA) to successful candidates,
providing a meaningful commissioning credential that owners can request when
selecting a qualified provider.

3.3.1 HVAC Commissioning Qualifications

These qualifications are focused on HVAC and control systems. Additional
technical qualifications will apply for commissioning of other systems, such as
electrical. When commissioning authorities do not have the expertise on staff
for specific systems, they will often team with other professionals to address all
systems being commissioned.
■ Experience in the testing, design, specification, or installation of
commercial building mechanical and control systems and other systems
being commissioned.
■ Experience working with project teams, project management and
conducting scoping meetings; good team-building skills; strong
communication skills, especially documentation.
■ Experience commissioning at least two projects of similar size and of
similar equipment to the current project. This experience should include
writing functional performance test plans and assembling a complete
commissioning plan.
■ Direct responsibility for project management of at least two commercial
construction or installation projects with mechanical costs greater than or
equal to current project costs.
■ Experience in design installation and/or troubleshooting of direct digital
controls and energy management systems, if applicable.
■ Demonstrated familiarity with metering and monitoring procedures.
■ Knowledge and familiarity with air and water testing and balancing.
■ Experience in planning and delivering O&M training.

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3.4 TAB and Functional Performance Testing
Testing and balancing (TAB) is an integral part of the commissioning process.
It is therefore recommended that an independent third party be retained to
perform testing and balancing services on commissioning projects. ACG
advocates providing TAB as a direct to owner contractual service.
Functional performance testing (FPT) of equipment and systems is at the heart
of the commissioning process. Equipment operation during FPT’s is performed
by the appropriate contractor or equipment manufacturer, but the responsibility
for directing, witnessing, and documenting the tests rests with the commission-
ing authority. The CxA may utilize an independent third party with field experi- Functional performance
ence in the testing and analysis of equipment and systems, who becomes part testing is at the heart of the
of the commissioning team. This arrangement is especially desirable when the commissioning process.
commissioning authority does not have significant experience and expertise with
field testing of the equipment and systems to be commissioned.
AABC certified test and balance engineers (TBEs) are independent and they
possess the technical expertise to carry out both HVAC functional performance
testing and TAB services. The Associated Air Balance Council (AABC) was
founded on the principle of independence, and has been certifying TBEs since
1965. Independence will continue to be the hallmark of both AABC and ACG.

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