Washington, DC

U.S. Office of Personnel Management
Job Grading Appeal Decision
Under section 5346 of title 5, United States Code

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Damon B. Ford
Classification Appeals and FLSA Claims
Program Manager
Agency Compliance and Evaluation
Merit System Accountability and Compliance

11/17/2021

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Date

As provided in section S7-8 of the Operating Manual: Federal Wage System, this decision constitutes a certificate that is mandatory and binding on all administrative, certifying, payroll, disbursing, and accounting officials of the Government.  There is no right of further appeal.  This decision is subject to discretionary review only under conditions specified in section 532.705(f) of title 5, Code of Federal Regulations (CFR) (address provided in the Introduction to the Position Classification Standards, appendix 4, section H).

As indicated in this decision, our findings show that the appellant’s official job description (JD) does not meet the standard of adequacy described in Federal Wage System-Appropriated Fund Operating Manual, Subchapter S6-6.d.  Since JDs must meet the standard of adequacy, the agency must revise the appellant’s JD to reflect our findings.  The servicing personnel office must submit a compliance report containing the corrected JD within 30 days of the date of this decision to the Office of Personnel Management (OPM), Agency Compliance and Evaluation (ACE), Washington, DC, office. 

Introduction

The appellant’s job is currently graded as Utility Systems Operator, WG-5406-09, but he believes it should be graded as Utility Systems Repairer-Operator, WG-4742-11, and that an additional grade should be added for “operator in charge” or “shift responsibility.”  He is assigned to the Boiler Plant-Repair-Energy Shop (BPRES), Maintenance and Operations (M&O) Section, Engineering Service (ES), Overton Brooks VA Medical Center (OBVAMC), Veteran’s Health Administration, U.S. Department of Veterans Affairs in Shreveport, Louisiana.  We have accepted and decided this appeal under section 5346 of title 5, United States Code (U.S.C.).

General issues

The appellant questions his agency’s job grading review process and compares his job to higher-graded jobs within his facility’s ES, specifically two jobs graded as Utility Systems Repairer-Operator, WG 4742-11.  In adjudicating this appeal, our responsibility is to make our own independent decision on the proper grading of his job.  By law, we must make that decision solely by comparing the appellant’s current duties and responsibilities to appropriate Job Grading Standards (JGSs).  See 5 U.S.C. 5346.  Since comparison to JGSs is the exclusive method for grading jobs, we cannot compare the appellant’s job to others within his agency which may or may not be properly graded as a basis for deciding this appeal.  Because our decision sets aside any previous agency decisions, the appellant’s statements regarding the job grading review practices used by his agency to grade his job are not germane to the job grading appeal process.

Like OPM, the appellant’s agency must grade jobs based on comparison to OPM’s JGSs and guidelines.  Consequently, the appellant’s agency has primary responsibility for ensuring its jobs are graded consistently with OPM appeal decisions.  If the appellant believes his job is graded inconsistently with others, he may pursue this matter by writing to the VA’s headquarters human resources office.  In doing so, he should specify the precise organizational location, series, title, grade, and responsibilities of the jobs in question.  If the jobs are found to be basically the same as his, the agency must correct their grading to be consistent with this appeal decision.  Otherwise, the agency should explain to him the differences between his job and the others.   

The appellant believes the Utility Systems Operating, 5406, Boiler Plant Operating (BPO), 5402, and Air Conditioning Equipment Operating (ACEO), 5415 JGSs are outdated and do not accurately represent the variety and complexity of maintenance and repair work performed in actual jobs.  However, the content of a JGS is not appealable (5 CFR 532.701).  

The appellant asserts that OBVAMC’s BPRES is under-staffed and that his job has experienced an increased volume of work, which he believes provides additional support for the requested title, series, and grade.  However, volume of work cannot be considered in determining the grade of a job (The Classifier’s Handbook, Chapter 5).

The appellant also believes he should receive back pay for the difference between WG-09 and WG-11 pay retroactive to the date he entered service in his current job.  However, a Federal employee is not entitled to back pay for periods of misclassification.  The U.S. Comptroller General states: “This rule was reaffirmed by the United States Supreme Court in United States v. Testan, 424 U.S. 392, at 406 (1976), where the Court stated that "... the federal employee is entitled to receive only the salary of the job to which he was appointed, even though he may have performed the duties of another job or claim that he should have been placed in a higher grade." (See also Wilson v. United States, 229 Ct.Cl. 510 (1981)).  Consequently, backpay is not available as a remedy for misassignments to higher level duties or improper classifications.  Regina Taylor, B-192366, Oct. 4, 1978.” (CG decision B-232695, December 15, 1989).

Both the appellant and his supervisor initially certified to the accuracy of the major duties described in the appellant’s JD number 667-07347-A.  However, the appellant now asserts his JD is not fully accurate because it does not detail the variety, complexity, and volume of preventative and routine maintenance and repairs and safety and performance tests performed by him on the central boilers and various auxiliary equipment and systems within OBVAMC’s Boiler Plant.  A JD is the official record of the major duties and responsibilities assigned to a job by an official with the authority to assign work.  A job is the duties and responsibilities that make up the work performed by a Federal Wage System (FWS) employee.  Classification appeal regulations permit OPM to investigate or audit a job and decide an appeal based on the actual duties and responsibilities currently assigned by management and performed by the employee.  An OPM decision classifies a real operating job, and not simply a JD.  This decision is based on the work currently assigned to and performed by the appellant.

The appellant’s official JD contains duties and responsibilities which are overstated or not performed by the appellant.  For example, the JD mentions a variety of work primarily associated with gas and auxiliary oil powered boilers and states he operates bottom and fly ash removal equipment.  It also states he adjusts fuel feeds and the volume and velocity of draft and other fire box variables to achieve maximum combustion efficiency with changing load demands or variations in fuel quality.  However, because OBVAMC’s Boiler Plant does not operate on solid fuels (e.g., coal), the system utilized by OBVAMC do not require the appellant to operate bottom and fly ash removal equipment or adjust fuel feeds and the volume and velocity of draft and other fire box variables to achieve maximum combustion efficiency with changing load demands or variations in fuel quality.

The JD states the appellant must know the location and purpose of equipment used to operate and maintain groundwater treatment plants; knowledge of filtration systems, methods and techniques, as well as a knowledge of a variety of chemicals and chemical compounds in order to alter, in a variety of ways, the content of water and/or industrial wastewater; and knowledge of air stripping and carbon absorption for the remediation of groundwater contamination.  However, this type of knowledge is only required for boiler systems that utilize solid fuel for combustion.  The appellant’s facility does not utilize solid fuel for combustion and does not produce industrial wastewater or require ground water remediation.

The JD states the appellant acts as the senior (only) engineering representative during afterhours, holidays, and weekends.  However, this is an overstatement as the appellant is one of four employees (i.e., two Utility Systems Operators, WG-5406-09, and two Utility Systems Operator-Repairers, WG-4742-11s) who share responsibility for operating and performing routine maintenance and repairs to OBVAMC’s Boiler Plant equipment during afterhours, holidays, and weekends via a rotating work schedule.

The JD indicates the appellant is required to meet Federal, State, and local license requirements to perform the work of the job and that he must be certified in proper refrigerant practices with CORE, TYPE I and TYPE II as required by 40 CFR part 82, subpart F, approved by the U.S. Environmental Protection Agency.  However, our records show the appellant is not required to possess a Federal, State, or local license to perform the work of his job.  Instead, the appellant is only required to complete a VA Safe Steaming course within six months of starting work in the Boiler Plant. 

The JD lists a variety of electrical work regularly performed by the appellant, such as removing, replacing, tightening, splicing, soldering, and insulating defective wiring, controls, equipment, and fixtures, e.g., broken and bare wiring, burned out switches and relays, damaged light fixtures, and poorly operating controls; installing or repairing electrical systems incident to the construction or maintenance of the boiler and chiller plant; locating broken, worn, damaged, or poorly operating wiring, fixtures, controls, and equipment through visual check or through use of a small variety of test equipment (e.g., test lamps, voltage testers, ammeters, and polarity testers); measuring, cutting, and bending wire and conduit to specified lengths and angles; rearranging old or installing new outlets, relays, switches, and light fixtures in existing systems, and testing circuits to see if they are complete after making repairs or installations; replacing worn or bad switches, relays, and outlets by unscrewing or cutting wiring from connections, inserting the replacement, and splicing, tightening, and soldering wiring to connections; completing needed repairs to installed systems; and rearranging and hooking up items such as outlets, electric motors, switches, relays, controllers, light fixtures, regulators, and circuit breakers.  However, for safety reasons, BPRES standard operating procedure (SOP) requires that operators only perform electrical repair when assigned to the maintenance shift during daytime work hours when supplies and services are available and when other BPRES personnel are present.  In addition, much of the more complex electrical repair described in the appellant’s JD are typically performed by one of BPRES’s two Maintenance Mechanics (i.e., Lead Maintenance Mechanic WL 4749-10 or Maintenance Mechanic WG-4749-10), who also work during the day shift.

The JD states the appellant is required to have specialized knowledge of electronic and pneumatic controls and the construction characteristics of air conditioning, refrigeration, and heating systems to maintain critical or extreme climatic conditions.  However, the appellant’s job does not require a specialized knowledge of electrical, electronic, and pneumatic controls nor does the job require him to have specialized knowledge of the construction characteristics of air conditioning and refrigeration to maintain critical or extreme climatic conditions.  Instead, the job requires the appellant to have a working knowledge of electronics and electrical systems, pneumatic controls, and the construction characteristics of steam and hot water systems sufficient to monitor, operate, and perform routine and preventative maintenance and repairs to AC and refrigeration equipment and systems.  Repairs are limited to equipment physically housed within the Boiler Plant and the appellant can only perform electrical work on these components during maintenance shift rotations.

The JD states the appellant must possess a high degree of knowledge and skills to modify and redesign control-systems.  However, the appellant is not responsible for modifying or redesigning manual or automated control systems for the facility’s Boiler Plant or AC systems.  Instead, automated and manual control systems are designed and maintained by authorized Federal contractors or manufacturers’ representatives.

The JD states that few technical guides exist which may be used to guide and direct the operation of equipment and systems associated with the boiler plant.  However, the record shows there is sufficient guidance in the form of laws, regulations, manufacturer specifications, operating manuals, industry standards, facility SOPs, and written and oral instructions to guide and direct the appellant’s daily work.

The JD also estimates that the appellant spends 40 percent of his time operating and maintaining Boiler Plant equipment and systems; 35 percent of his time operating and maintaining HVAC equipment and systems; and 25 percent of his time performing a variety of additional duties.  However, we find these estimates to be inaccurate and have provided an accurate estimate of time spent performing the aforementioned types of work in the “Job information” section of this decision.

Based on our fact-finding and given the preceding inaccuracies described above, the appellant’s JD does not meet the standard of adequacy addressed in Federal Wage System – Appropriated fund Operating Manual, Subchapter S6-6.d.    Therefore, the agency must revise the JD to reflect our findings.

Job information

OBVAMC’s M&O Section manages the work of the BPRES; Electrical Shop (ES); Heating, Ventilating, Air Conditioning (HVAC) Shop; General Maintenance (GM) Shop; and Night Construction (NC) Shop.  The appellant’s job is assigned to the BPRES and reports directly to the Operations Supervisor, WS-4701-10, who is present during normal first shift workhours (i.e., 8:00 a.m.-4:00 p.m.) Monday through Friday.

The Boiler Plant operates 24 hours a day, 7 days a week during four shifts (i.e., first, second, third, and maintenance shifts).  The appellant is one of four employees performing work on a rotating schedule through each of the four shifts.  The appellant follows established guidelines (e.g., Federal, State, local guidelines, VHA boiler plant operational requirements, industry standards, manufacturer guidelines and operational manuals, and facility and written and oral BPRES shop directives and SOPs) while performing his daily duties and responsibilities.

As previously noted, the appellant spends approximately 70 percent of his time monitoring, operating, and performing routine maintenance and repair to equipment and systems associated with OBVAMC’s Boiler Plant, which consists of three Keeler type DS high pressure 1374 horsepower natural gas fired boilers (oil is the backup fuel), operating at approximately 90 psi.  Work performed by the appellant varies in degree of complexity depending on his shift rotation.  For example, the appellant performs moderate to major maintenance and repairs while serving on the maintenance shift.  However, he performs no maintenance or repair on first shift and only routine and preventative maintenance and minor repairs on second and third shifts that do not involve electrical work, climbing ladders, interfere with his operator duties, or endanger the functionality of the Boiler Plant or AC systems.

The Boiler Plant and AC equipment are primarily controlled by a Johnson Controls Metasys automated control system, which electronically and remotely monitors and controls the most of the plant’s primary functions, such as stack temperature, water and steam temperature and pressures, flow rates, and sulfur and carbons emissions.  The system requires a variety of routine and situational manual adjustments (e.g., flame intensity; gas, water, and steam flow rates; and water chemistry), regularly performed by the appellant to ensure optimal performance and safety.

The appellant observes and records readings from various boiler gauges, meters, and computer readouts and making appropriate adjustments; performs a variety of tests, such as steam and water pressure tests, voltage, amperage, and polarity tests, and water chemical tests; using electronic, hydraulic, and pneumatic controls, zone charts, meters, gauges, and computer generated data to determine if/when adjustments or corrections are necessary to ensure proper boiler operations; performs routine and preventative maintenance and repairs to equipment and systems (e.g., boilers, feed water pumps, supply and return lines, electronically controlled air compressors and water control dampers, de-aerating and condensate tanks and the 210 KW Boiler Plant emergency generator); and performs regular visual inspections of measuring devices (e.g., gauges, meters, and computer readouts), as well as electric and mechanical components and equipment, such as shafts, bearings, motors, belts, pumps, generators, and turbines.

He responds to and records various alarms (e.g., elevator, temperature and humidity, fire, and gas pressure), as well as calls for repairs or adjustments to equipment and systems located outside the Boiler Plant (e.g., clogged toilets, broken windows, faulty light fixtures, and leaky water lines) during second and third shifts and on weekends and holidays when he is the only BPRES employee on duty.

He uses a variety of test equipment (e.g., test lamps, volt meters, ohm meters, and polarity testers) to identify various issues and uses hand tools (e.g., hand wrenches, battery-powered impact wrenches, hammers, and plyers) to affect most repairs and drafts and submits work orders for all repairs and other issues which he cannot personally address.  In emergency situations, he may recall off-duty personnel or engage the services of Federal contractors in order to ensure the safe continuous operation of OBVAMC’s Boiler Plant, as per established protocol, and informs his direct supervisor and/or the Maintenance and Operations Supervisor (i.e., his second-level supervisor) concerning issues and events which precipitated the need for additional personnel.  He also maintains a record of shift-related events and work orders and passes down all appropriate information to the operator on the next shift.

The appellant spends approximately 20 percent of his time monitoring and operating OBVAMC’s automated AC system (i.e., Johnson Controls “Metasys” Automated System) and performing routine and preventative maintenance and repair to the portion of the system physically located within the facility’s Boiler Plant (e.g., the three 300-ton York centrifugal chillers, three cooling towers, dampers, and back-up generators) to varying degrees based on his assigned shift.

He remotely adjusts environmental conditions (e.g., temperature, humidity, and air flow) and performs preventative and routine maintenance and repairs to AC equipment such as lubricating motors and bearings, replacing hazed gage lenses and light bulbs, and replacing damaged water supply and return lines.

He responds to requests for remote adjustments to the temperature, humidity and other similar environmental control from individuals located in buildings outside the confines of the Boiler Plant.  He reports issues and failures which may affect the safe operation of the facility’s AC system to the HVAC supervisor, his direct supervisor, and/or the M&O supervisor.  In emergency situations, he may recall off-duty personnel or engage the services of Federal contractors in order to ensure the safe continuous operation of OBVAMC’s HVAC system, as per established protocol, and informs the HVAC supervisor, his direct supervisor and/or the Maintenance and Operations Supervisor (i.e., his second-level supervisor) concerning issues and events which precipitated the need for additional personnel.  He also maintains a record of AC-related events and work orders occurring during the shift and performs prescribed pass-downs to operators on the next shift.

The appellant spends approximately 10 percent of his time performing additional duties, such as, recording and responding to calls associated with general maintenance needs originating outside the facility’s Boiler Plant and alerting the appropriate shop personnel or Federal contractor concerning work order-related issues.

In reaching our decision, we carefully reviewed all information provided by both the appellant and his agency, including his official JD which, although not completely accurate, we have incorporated by reference into this decision.  In addition, to help decide the appeal we conducted separate telephone interviews and e-mail communications with the appellant’s immediate and second-level supervisor; the facility’s Heating, Ventilation, and Air Conditioning (HVAC) Shop supervisor; and staff of the servicing Human Resources (HR) office.

Occupational series, title, and standard determination

FWS jobs are assigned to the occupation that represents the best match between the actual work of the job and the definitions of work as defined in an appropriate JGS.  Jobs requiring the performance of work in two or more occupational series are classified to the series that is most important for recruitment, selection, placement, promotion, or reduction-in-force purposes.  This is ordinarily the occupation which represents the primary duties of the job; has the highest skill and knowledge requirements; and whose duties and responsibilities are regular and recurring. 

The agency assigned the appellant’s job in the Utility Systems Operating, 5406 occupational series, titling it Utility Systems Operator.  The appellant disagrees and believes his job should be assigned to the Utility Systems Repairing-Operating, 4742 occupational series, titling it Utility Systems Repairer-Operator, because he operates and repairs boilers and air conditioning equipment at the OBVAMC.  Therefore, our following analysis evaluates the applicability of the principal occupational series and JGSs in question including the 4742, Boiler Plant Operating (BPO), 5402, 5406, and Air Conditioning Equipment Operating (ACEO), 5415.    

The 4742 JGS covers nonsupervisory work primarily involving repairing and operating one or more utility systems (air conditioning, heating, water, wastewater, etc.).  Such work requires the ability to start, stop, and regulate the utility or utilities for optimum efficiency and troubleshoot, maintain, and repair them.  Work requires knowledge of user requirements and the locations and functions of all equipment in the system(s) and the repair procedures and specifications.  Work in this occupation includes a combination of at least two trade practices (repair work and operation), with the grade level of work performed in utility repair and operation evaluated at the same grade level by reference to the appropriate JGSs.  The combined utility repair and operation must represent the highest grade level of work performed in the job.

The 5402 JGS covers nonsupervisory work primarily concerned with the operation and operational maintenance of single and multiple fuel water or fire tube boilers and associated auxiliary and pollution control equipment, which operate at various pressures and temperatures in automatic or manual modes to produce steam or high temperature hot water necessary for providing heat for buildings, operating industrial and institutional facilities and equipment, and generating electricity. 

The 5406 JGS covers nonsupervisory work primarily concerned with operating two or more utility systems such as boiler plants, air conditioning, wastewater treatment, water treatment, and natural gas distribution systems for large buildings or small complexes, on a continuing basis.  Operators must be familiar with and have the ability to adjust and regulate a variety of automatic or manually controlled auxiliary equipment to insure maximum operating efficiency of the systems.  The 5406 JGS covers those jobs that entail operation of two or more utility systems, evaluated at the same grade level by reference to the appropriate JGSs, when no single skill or knowledge of a single utility is predominant for recruitment, promotion, reduction-in-force, pay setting, and other personnel processes.

The 5415 JGS covers nonsupervisory work primarily concerned with operating air-conditioning systems for large buildings or complexes of buildings.  Also included are jobs that involve the operation and regulation of cold storage and specialized climate simulation facilities.  The work requires the ability to adjust equipment to maintain desired temperatures and humidity, start, operate, and stop the air handling equipment and centrifugal compressors or absorbers, and detect and diagnose malfunctions in equipment.  Operators must know the purposes and locations of all equipment in the systems and the auxiliary equipment such as cooling towers, water pumps, air compressors, liquid circulating pumps, and fans.

The appellant’s job does not meet the 4742 occupational series.  Unlike the 4742 series, “repair” of one or more utilities is not a principal function of the appellant’s job.  Instead, the primary function of the appellant’s job is to operate the facility’s Boiler Plant and AC equipment and perform routine operator maintenance, while occasionally tasked to perform limited repairs to boilers and AC equipment located within the Boiler Plant such as chillers, cooling towers, and auxiliary generators.  In addition, BPRES standard operating procedure (SOP) limits repair work performed during evening (i.e., second and third shifts), weekend, and holiday shifts to non-electrical repairs and such repairs which do not distract the appellant from his operating duties and/or pose a risk to the continuous operation of Boiler Plant and AC equipment.  Thus, most limited repair work is performed during daytime work hours by the employee who is scheduled to work the maintenance shift.  However, the appellant is only one of four employees who are regularly scheduled to work the maintenance shift on a rotating basis.  Consequently, “repair” represents a relatively small percentage of the appellant’s overall time and cannot be construed as a primary function of the position.  Unlike the 4742 series, the appellant is not required to know repair procedures and specifications for all OBVAMC’s AC equipment.  Instead, he is only responsible for knowing how to perform preventative and routine maintenance and repairs to AC-related equipment physically located within the Boiler Plant.  Responsibility for knowing the repair procedures and specifications and performing repairs for all AC systems throughout OBVAMC’s campus rests with the HVAC shop.  Therefore, the appellant’s job does not meet the 4742 occupational series.

The appellant’s job does not meet the 5406 occupational series.  Assignment to the 5406 series requires that work regularly and recurringly involves the performance of duties operating two or more utility systems evaluated at the same grade level, when no single skill or knowledge of a single utility is predominant for personnel processes such as recruitment.  Unlike the 5406 series, although the appellant regularly and recurringly performs work associated with both the 5402 BPO series and the 5415 ACEO series, the appellant’s supervisor stated BPO is the primary work performed and that recruitment and selection for the appellant’s job is based predominantly on an applicant’s skill in and knowledge of boiler plant operation and maintenance.  The supervisor emphasized that skill and knowledge associated with AC equipment and systems are given less consideration during recruitment and selection of new employees for the appellant’s job because new employees are trained in job-related AC duties and responsibilities within the first 30 days of hire into the position.  The supervisor also noted that all new hires are required to complete a boiler plant equipment operator training and safety course before they are assigned to evening, weekend, and holiday shifts where they would be expected to independently operate Boiler Plant equipment and systems.  However, new hires are not required to complete an AC equipment operator training and safety course before they are assigned to evening, weekend, and holiday shifts where they are expected to independently operate AC-related equipment and systems.  Thus, 5402 BPO duties constitute the primary work of the job requiring paramount skill and knowledge in that occupation and is clearly predominant over 5415 ACEO skill and knowledge with respect to recruitment for the appellant’s job.  Consequently, the appellant’s job does not meet the 5406 occupational series.

The appellant’s job fully meets the knowledge and skill typical of jobs assigned to the 5402, occupational series.  Like the 5402 series, the appellant’s job is primarily concerned with the operation and operating maintenance of single and multiple fuel water or fire tube boilers.  The prescribed title for jobs in the 5402 series above the WG-8 level is Boiler Plant Operator and jobs in this series are evaluated by reference to the grading criteria in the 5402 JGS as applied below.

Grade determination

The 5402 JGS does not describe all possible grade levels for the occupation, e.g., grade 9.  If jobs differ substantially from the skill, knowledge, and other work requirements described in the grade levels of the JGS, they may be graded either above or below the described grades based on application of sound job grading principles.  The 5402 JGS provides for grade-level determination based on four factors: Skill and Knowledge, Responsibility, Physical Effort, and Working Conditions.  Our application of the standard to the appellant’s job follows. 

As previously discussed, the appellant also performs work operating and maintaining AC equipment which we have determined is not his primary duty.  Our review of the work disclosed it would not exceed the WG-09 level.  Consequently, we find that work is neither series nor grade controlling and thus have not discussed it further in this decision. 

Boiler Plant Operating, 5402

Factor 1, Skill and Knowledge

Grade 8 boiler plant workers require a working knowledge of the structure and operating characteristics of boilers and associated auxiliary equipment, including the location and function of numerous pumps, valves, regulators, gauges, recording instruments, controls, power operated dampers, conveyors, and other equipment associated with clean, safe, and efficient boiler operation.  Grade 8 work entails: (1) knowledge of fuel handling and distribution equipment and systems, fuel firing mechanisms, feed water treatment systems, electrostatic precipitators, flue gas scrubbers, and lime slurry systems; (2) a basic knowledge of the chemical and physical characteristics of fuels and principles of combustion, steam generation, and heat transfer; (3) a working knowledge of the relationship between fuel quality and efficient combustion characteristics; (4) a working knowledge of water tending, analysis, and basic chemical treatments; (5) a general understanding of the individual and combined effects of chemical additives; and (6) knowledge of basic operations necessary on start-up, shutdown, and re-start procedures and in casualty control.

Grade 8 workers have skill in: (1) adjusting various conditions such as air temperature, draft, and other furnace conditions; (2) interpreting meter and gauge readings; (3) using hand tools, electric and pneumatic power tools, and specialized tools of the trade; and (4) applying preventive maintenance procedures and performing limited operational repairs such as cleaning equipment, greasing and oiling moving parts of machinery, re-painting equipment, tightening packing bonnets and glands on valves and pumps, re-packing valves, replacing pumps, and assisting higher grade workers in more difficult repairs and replacements.  They can recognize malfunctioning equipment and systems and potentially dangerous operating conditions.

Grade 10 boiler plant operators apply a comprehensive knowledge of all operational phases of power boiler plant operations (e.g., water treatment, fuel systems, steam generation, and pollution control) and their interrelationships for efficient and economical generation of steam or high temperature hot water (HTHW).  They apply knowledge of the principles and theories pertaining to combustion, heat transfer, and steam or HTHW generation in the operation of power boiler plants.

Grade 10 employees also apply a thorough knowledge of the structural and operating characteristics of single and multiple fuel power boilers and associated auxiliary and pollution control equipment or systems (e.g., computerized or microprocessor control systems, fuel handling and distribution equipment and systems, fuel firing mechanisms, feed water and boiler water treatment systems, steam and electrical pumps, pressurization systems, compressors, electrostatic precipitators, and flue-gas desulfurization systems) to properly operate, adjust, troubleshoot, and maintain the equipment and systems.  They apply a thorough knowledge of water treatment procedures and water analysis, using standard chemical tests.  They have a thorough knowledge of water treatment equipment and systems, e.g., cation/anion exchange units for demineralization of feed water.

Grade 10 operators have a thorough knowledge of chemical and physical aspects of sulfur-containing fuels (e.g., oil, coal, lignite), the chemical reactions involved in combustion, and the relationship between fuel quality and combustion efficiency.  They have: (1) a practical knowledge of environmental law and a thorough knowledge of procedures or adjustments during combustion to control pollutants in flue emissions (e.g., control combustion time, stack temperature, and excess air flow); and (2) a thorough knowledge of the steam or HTHW distribution systems, user requirements, casualty control procedures, and how to bypass a section of the system to maintain service.  They are knowledgeable of maintenance requirements (e.g., cleaning fuel guns, lubricating equipment, and power cleaning water tubes) and procedures necessary to perform operational repairs of limited to moderate complexity, e.g., repair or replace valves, gauges, water pipes, and refractory linings.  In some work situations, operators at this level may have basic knowledge of electricity to test and replace wires, switches, and other basic electrical components.

Grade 10 operators have skill: (1) in procedures and adjustments necessary to start, operate, and maintain a power boiler facility (i.e., power boilers and auxiliary and pollution control equipment) to meet load demands and maintain efficient levels of combustion and compliance with pollution laws; (2) in operating power boilers from cold starts through normal operation and hot or emergency shut downs; (3) in operating and adjusting associated auxiliary and pollution control equipment; (4) in reading and analyzing information from gauges, meters, recorders, analog displays, and computer generated data to determine the operational status of the facility and necessary adjustments; (5) in specialized combustion techniques and adjustments to firebox variables such as fuel flow or feed, fuel/air ratio, temperature, combustion time, and over air or under air feeds to control chemical pollutants in flue gas emissions and maintain combustion efficiency; (6) in setting and adjusting flame patterns in power boilers with single or multiple burners to ensure safe and efficient combustion; and (7) in adjusting various combustion settings to compensate for varying qualities or conditions of fuels.

Grade 10 operators can: (1) stabilize boilers in a closed system when one boiler starts to go down while maintaining safe levels and efficient combustion; and (2) make individual and sequential adjustments to a variety of controls and equipment to achieve and maintain maximum efficiency of equipment and systems being operated.

The skill and knowledge necessary to perform the appellant’s job substantially exceeds the grade 8 level but does not fully meet the grade 10 level.  Unlike the grade 8 level and similar to the grade 10 level, the appellant applies a comprehensive knowledge of procedures, adjustments and operational phases associated with OBVAMC’s power boiler plant system; is skilled in operational and technical procedures necessary to start, stop, and operate all boiler equipment needed to meet load demands, including monitoring alarms, reading gauges, and manually changing temperature and rate of combustion when appropriate; is knowledgeable of the methods and processes necessary to produce and distribute steam and high temperature hot water (HTHW), and the processes associated with analyzing and treating water used in various applications for the boiler system; and independently performs a variety of moderately complex preventative and routine operator maintenance to equipment associated with OBVAMC’s boiler system, such as lubricating pumps, replacing motor drive belts and gauges and damaged sections of water supply and return lines.

However, the appellant’s job does not fully meet the grade 10 level.  Unlike the grade 10 level, the job does not require the appellant to possess the knowledge and skill needed to monitor, operate, maintain, and repair the pollution control equipment necessary to meet Federal, State, and local emission standards, including knowledge of the procedures and adjustments necessary to control pollutants in flue emissions (e.g., combustion time, stack temperature, and emissions recirculation/reburn).  This is because OBVAMC’s boiler system does not utilize unrefined fuel sources (e.g., coal, lignite, wood, and unrefined petroleum products) which contain high levels of sulfur and produce large quantities of solid waste such as ash or soot requiring knowledge of auxiliary pollution equipment including compressors, electrostatic precipitators, and flue-gas desulfurization systems.  Thus, the appellant does not need to possess a thorough knowledge of the procedures or adjustments needed during combustion to control pollutants in flue emissions.  Instead, OBVAMC boiler system utilizes clean-burning natural gas as a primary fuel source with highly refined fuel oil as a secondary source, which do not contain high levels of sulfur nor produce large quantities of solid waste.  Consequently, the skill and knowledge needed to perform the appellant’s job substantially exceeds the grade 08 level but does not fully meet the grade 10 level so is properly credited at the grade 09 level for Factor 1. 

Factor 2, Responsibility

Grade 8 boiler plant workers receive work assignments from a supervisor or a higher graded worker in the form of written or oral instructions.  The instructions outline the work to be performed and the methods and materials to be used.  Workers at this level are responsible for observing meters and gauges to ensure proper combustion and prescribed temperatures, pressures, and emissions and for performing routine operator maintenance of equipment.  They are responsible for understanding and responding to a variety of conditions indicated by meters and gauges.  Workers are alert and recognize dangerous conditions in boilers, controls, valves, piping, and other equipment inherent to boiler operations to prevent equipment damage or explosion.  They perform work in accordance with local, state, and Federal pollution control requirements.  Problems are reported to a higher graded worker or supervisor. Work at this level is checked through observation of work methods and procedures.  A higher graded worker or supervisor is available for advice and assistance on any work problem encountered and checks to see that assignments are completed according to instructions and established practices.

Grade 10 boiler plant operators receive work assignments from a supervisor or a higher graded operator who is in charge of the facility or work shift.  They provide written or oral instructions which may be accompanied by diagrams, drawings, operating manuals, or special facility procedures to be followed during emergencies, equipment failure, or system malfunction.  They are familiar with the total plant layout including drawings and circuit diagrams of the boilers and auxiliary and pollution control equipment, in order to locate problems and determine appropriate action necessary to maintain adequate steam or HTHW production.  As compared to the predetermined methods and procedures at the grade 8 level, grade 10 boiler plant operators make more independent decisions and judgments regarding boiler plan operations (e.g., combustion and pollution control adjustments, troubleshooting techniques, and equipment maintenance and repair procedures).  In maintenance and repair operations, they complete all work in accordance with required specifications and use a variety of standard mechanical and basic electrical processes.  Boiler plant operators at this level typically have primary responsibility for checking boilers and auxiliary and pollution control equipment to insure the operational efficiency of equipment and safety of personnel.  They take immediate action to prevent interruptions to plant operations and report all emergencies or dangerous conditions.  The supervisor or higher graded operator with shift level responsibility is usually available to provide technical assistance on difficult or unusual problems.  Work is checked through occasional observation of operational efficiency, production reports, and adherence to established operating techniques and procedures.

The appellant’s responsibility substantially exceeds the grade 8 level but does not fully meet the grade 10 level.  Unlike the grade 08 level and similar to the grade 10 level, the appellant independently operates the boiler plant in accordance with accepted methods and procedures and makes a variety of decisions which could affect the continuous operation of the boiler system on shifts where the supervisor is not present, e.g., starting and stopping boilers and other equipment; making a variety of adjustments, such as temperature and water/steam flow rate; and performing routine to moderately complex maintenance and equipment repair in accordance with established written and oral guidelines and specifications.  He also uses his knowledge of the layout of OBVAMC’s boiler plant to locate problems and take necessary actions to maintain steam and HTHW production.  Similar to the grade 10 level, the supervisor provides oral or written instructions and reviews work orders, daily log entries, and the appellant’s final work products for overall quality and productivity.

However, unlike the grade 10 level OBVAMC’s boiler system does not utilize unclean fuel sources (e.g., coal, lignite, wood, and unrefined petroleum products) and the more complex pollution control equipment is not required or included in OBVAMC’s boiler system.  Therefore, the appellant does not bear the additional responsibilities associated with operating, maintaining, or repairing pollution control equipment, which is required to meet the grade 10 level.  Consequently, the responsibilities associated with the appellant’s job substantially exceed the grade 8 level but do not fully meet the grade 10 level.  Therefore, Factor 2 is properly credited at the grade 9 level.

Factor 3, Physical Effort

Physical effort is the same at both the grade 8 and 10 levels.  Grade 8 boiler plant workers frequently work in confined areas in and around boilers and support equipment, i.e., auxiliary and pollution control equipment.  The work requires moderate to strenuous effort and long periods of walking, standing, climbing, bending, and crouching. Workers frequently lift and carry boiler parts and chemical supplies weighing up to 18 kilograms (40 pounds) unassisted and occasionally items weighing over 18 kilograms (40 pounds) with assistance of other workers or weight handling equipment.  The appellant’s job meets this level.

Because this factor is the same at both the 8 and 10 grade levels, it has no significant impact on the overall grade level of the appellant’s job.

Factor 4, Working Conditions

Working conditions are the same at both the grade 8 and 10 levels.  Grade 8 boiler plant workers work indoors and occasionally work outside for short periods where they are subject to prevailing weather conditions.  Workers are subject to high temperatures, constant noise, rotating machinery, soot, dirt, grease, chemicals, oil, and fumes in the work area.  Boiler plant workers at this level are subject to cuts and abrasions from the use of tools and equipment and burns from acids, caustics, hot water, steam, and contact with piping and boilers.  In addition, they work on catwalks and ladders.  The appellant’s job meets this level. 

Because this factor is the same at both the 8 and 10 grade levels, it has no significant impact on the overall grade level of the appellant’s job.

Based on application of the job grading criteria in the 5402 JGS, we find the appellant’s boiler plant operating duties are properly evaluated at the grade 9 level.

Special Additional Responsibilities

The 5402 JGS provides guidance for grading normal boiler plant operating work.  However, it also provides guidance for grading operator activities which fall outside the parameters of normal boiler plant operating work and credits an additional grade for special additional responsibilities, such as “operator in charge”, when all five of the following responsibilities are clearly met.

1) The operator must be working at the full-performance level and must be assigned shift responsibility on a regular and recurring basis.  Only one operator on a shift can be assigned this responsibility.

2) The operator follows written instructions supplied by the supervisor or by the “operator in charge” on the previous shift.

3) The “operator in charge” typically performs duties that are more responsible and require a slightly higher level of skill and knowledge than the full-performance level operators who are on duty where a supervisor is available.  This includes a thorough knowledge of the entire utility system and the user requirements to locate problems and initiate immediate corrective action.

4) In the absence of written contingency procedures, the “operator in charge” has responsibility to decide whether to shut down the operation or attempt to bypass problems until corrective action has been completed if the equipment still in operation can handle the load; and

5) The “operator in charge” has responsibility to determine what work must be done and has the authority to approve overtime or call in necessary maintenance personnel.  The operator is responsible for relaying instructions to the next shift operator including problems encountered and actions taken.

The appellant’s job meets responsibilities 1 and 2.  Like responsibility 1, the appellant is one of four full-performance employees assigned shift responsibility on a regular basis.  Like responsibility 2, the appellant receives and follows written and oral instructions and/or log information supplied by the supervisor or the operator from the previous shift and passes down pertinent information, instructions, and a description of any problems encountered and actions taken by him to the next shift operator.

However, the record shows the appellant’s job does not meet responsibilities 3, 4, and 5.  Unlike responsibility 3, the appellant applies the same skill and knowledge when scheduled as the sole operator on evening, weekend, and holiday shifts as he does when scheduled as an operator during first shift when the supervisor and other employees are available who all operate at the same full performance level.  Unlike responsibility 4, existing contingency procedures (e.g., written and oral guidelines, instructions, protocols, and SOPs) provide sufficient structure and direction to help the appellant determine when it would be necessary and appropriate to shut down or bypass Boiler Plant and AC equipment.  Unlike responsibility 5, the appellant uses existing guidelines to determine what work must be done.  If he encounters unusual or significant issues, problems, or emergencies while assigned to work as the sole operator during evening (i.e., second and third shifts), weekend, and holiday shifts, he is required to contact his supervisor or the M&O supervisor to inform them of the issues and discuss appropriate actions to be taken.  In addition, unlike responsibility 5 the appellant does not have the authority to approve overtime or to call in off-duty personnel and/or engage the services of authorized Federal contractors.  Instead, the appellant must contact his supervisor or the M&O supervisor to obtain permission to recall off-duty personnel and/or engage the services of authorized Federal contractors.  Therefore, although the appellant’s job meets responsibilities 1 and 2, he does not meet all five responsibilities as required by the JGS and the job cannot be granted an additional grade credit.

Summary

By application of the job grading criteria in the 5402 JGS we find the appellant’s job is properly graded at the grade 9 level.

Decision

The appellant’s job is properly graded as Boiler Plant Operator, WG-5402-09.

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