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ORDER
DOE O 251.1B
Approved: 8-16-06
SUBJECT: DEPARTMENTAL DIRECTIVES PROGRAM
1. PURPOSE. The directives program is the means by which the
Department of Energy (DOE) defines policies, requirements, and
responsibilities as well as promotes safe, secure,
efficient, cost-effective DOE operations conducted in
accordance with applicable laws, regulations, Executive
orders, and technical standards. Directives include Policy
Statements, Orders, Notices, Manuals, Guides, and technical
standards. Technical standards are issued by the Office of
Environment, Safety, and Health. The objectives of the
directives program are—
a. to establish requirements and responsibilities for
management of the DOE directives program;
b. to establish requirements and responsibilities for
directives pre-coordination, development, and review;
c. to define requirements for consistency in content,
execution, and evaluation for DOE directives;
d. to promote clear, up-to-date, succinct, cost-effective, and
outcome-oriented directives; and
e. to support efforts to avoid duplication of existing
requirements contained in applicable laws, regulations, or
Executive orders.
2. CANCELLATION. DOE O 251.1A, Directives System, dated 1-30-98.
Cancellation of an Order does not, by itself, modify or otherwise
affect any contractual obligation to comply with the Order.
Contractor requirement documents (CRDs) that have been
incorporated into or attached to a contract remain in effect
until the contract is modified to either eliminate
requirements that are no longer applicable or substitute a
new set of requirements.
3. APPLICABILITY.
a. Departmental Elements. Except for the exclusions in
paragraph 3c, this Order applies to all Departmental
elements. (Go to http://www.directives.doe.gov for
the current listing of Departmental elements.)
This list automatically includes all Departmental
elements created after the Order is issued.
Directives containing classified or unclassified
controlled information (e.g., official use only or
unclassified controlled nuclear information) are not
excluded from following the formatting standards and
conducting an appropriate review.
The Administrator of the National Nuclear Security
Administration (NNSA) will assure that NNSA employees
and contractors comply with their respective
responsibilities under this Order. Nothing in this
Order will be construed to interfere with the NNSA
Administrator’s authority under section 3212(d) of
Public Law (P.L.) 106-65 to establish Administration
specific policies, unless disapproved by the
Secretary.
b. DOE Contractors. Except for the exclusions in
paragraph 3c, the CRD (Attachment1) sets forth requirements.
The CRD will apply to the extent set forth in each contract.
c. Exclusions. This Order does not apply to the development
and issuance of DOE technical standards (see DOE M 251.1-1B,
Chapter I for general information).
4. REQUIREMENTS. Detailed directives processing requirements
are described in DOE M 251.1-1B, Departmental Directives Program
Manual, dated 8-16-06, which supplements this Order.
a. Directives Management. Directives must not be developed or
revised before a documented justification memorandum is
submitted and a directives track is selected.
(1) A justification memorandum must include a description of the
compelling need for the proposed directive, a cost-benefit
analysis identifying the impact on programs and affected
entities, the value added potential, the technical impact
(positive or negative) if appropriate, the impact on other
directives, and a processing schedule. (See DOE M 251.1-1B,
Chapter II, paragraph 2b.)
(a) For non-NNSA elements, the memorandums are submitted by the
Secretarial Officer (SO) or senior level designee and concurred on by the Office of Management (see DOE M 251.1-1B, Chapter II,Appendix A).
(b) NNSA elements will coordinate with the Office of Information
Resources (within the Office of Administration, Office of
Management) prior to beginning development or revision of
directives. Justification memorandums will be reviewed and a
recommendation will be forwarded by the Office of Management to the Associate Administrator for Management and Administration for approval/disapproval to begin development or revision of a directive. (See DOE M 251.1-1B, Appendix B.)
(2) Each SO or senior level designee must appoint a directives
point of contact (DPC) to act as liaison between the organization
and the Office of Information Resources. SO or appointed senior
level designee must ensure that the DPC’s actions and submissions
properly represent the official position of the organization.
(3) Departmental elements and contractors must be afforded the
opportunity to participate in directives development (pre-
coordination and Department-wide review and comment).
(4) Directives must establish performance-based management goals
that align with program objectives and define performance
measures where appropriate.
(5) Directives must be reviewed and certified for accuracy and
continued relevance every 4 years. (See DOE M 251.1-1B,
Chapter VI).
(6) A directives feedback reporting system will be administered
and maintained for suggested improvements, best practices, and
lessons learned (see DOE M 251.1-1B, Chapter VII). Comments
reported will be considered during directives review or the next
revision.
(7) Justification memorandums must be concurred on by the
appropriate central technical authorities (CTAs) when the
proposed directive affects nuclear safety.
(8) Directives that affect nuclear safety must be pre-
coordinated with the appropriate CTA prior to submission for
Department-wide review and comment.
(9) In accordance with P.L. 104-113, National Technology
Transfer and Advancement Act of 1995, and Office of Management
and Budget Circular A-119, Federal Participation in the
Development and Use of Voluntary Standards, adoption of voluntary
consensus standards in lieu of creating DOE-unique standards is
encouraged, when appropriate and applicable.
(10) Supplemental directives must not contradict or delete
provisions in DOE Policies, Orders, Notices, or Manuals (see
DOE M 251.1-1B Chapter VIII). Supplemental directives—
(a) are for local use only;
(b) are issued to address matters covered by or to implement
requirements contained in Departmental directives;
(c) are to be consistent with Departmental directives;
(d) do not duplicate requirements; and
(e) issued only if necessary to promote safe, secure,
cost-effective, and efficient operations.
(11) Contractor requirements must be clearly defined in a CRD
attached to a directive and are not to be part of the text of the
directive (see Attachment 1 of this Order).
(12) Directives must—
(a) be consistent with environment, safety, health, and security
requirements, standards, and work performed;
(b) promote efficient, cost-effective means of fulfilling
program objectives;
(c) receive concurrence for development and revision and
approval for publication;
(d) follow format and content standards established by this
Order (an Order template is available online at
http://www.directives.doe.gov/directives/writingDirective.
html#templates);
(e) reflect Headquarters responsibilities for program planning
and direction, implementation of externally imposed requirements and field responsibility for program execution;
(f) apply across at least two organizational lines (see
DOE M 251.1-1B, Chapter I).
(NOTE: Implementation decisions are made at the appropriate level commensurate with the scope of work and the hazards.)
(13) Writers, OPIs, and DPCs must work closely with the Office of
Information Resources for coordinating directives development,
processing, and approval.
(14) The Office of Information Resources will submit monthly
progress/metrics reports to the Deputy Secretary. Reports will
include adherence to and deviations from the directives schedule.
(15) The Office of Information Resources will maintain a master
schedule of directives that will be developed or revised each
calendar year, and will publish the schedule on the directives
portal at
http://www.directives.doe.gov/references/index.html#directives.
(See DOE M 251.1-1B, Chapter VI)
b. Directive Draft Review.
(1) Drafts must be processed within one of the following four
directives tracks (see DOE M 251.1-1B, Chapter III).
(a) Track 1—30 calendar days,
(b) Track 2—60 calendar days,
(c) Track 3—90 calendar days, or
(d) Track 4—120 calendar days.
(2) Non-NNSA SOs or senior level designees requests for
deviations from established processing tracks must be submitted
in writing to the Office of Information Resources.
(3) NNSA elements must coordinate requests for deviations from
established processing tracks with the Office of Information
Resources. The Office of Information Resources will forward
recommendations to the NNSA Office of the Associate Administrator
for Management and Administration for approval.
(4) Consolidated comments must be considered only when forwarded
under the authority of an SO or senior level designee.
(5) The Departmental Representative to the Defense Nuclear
Facilities Safety Board (DNFSB) will coordinate directives review
and comment resolution with the DNFSB.
(6) Before a directive is approved and issued for publication,
all major comments must be addressed and conflicts resolved (see
DOE M 251.1-1B, Chapter V).
(7) An impasse process must be followed when issues raised in
review remain unresolved (see DOE M 251.1-1B, Chapter V).
c. Review and Certification.
(1) By October 1 each year, the Office of Information Resources
will identify and forward to heads of Departmental elements a
listing of directives under their purview that are due for
review, revision, or certification in the upcoming calendar year.
(2) SOs must review Orders and Manuals under their purview every
4 years to certify their accuracy and continued relevance.
(3) The Departmental Representative to the DNFSB must concur on
cancellation of directives that affect safety and health at
defense nuclear facilities.
(4) The appropriate CTA must concur on cancellation of
directives affecting nuclear safety.
d. Training.
(1) Within 18 months of publication of this directive, all
directives writers (OPI) and DPCs/delegates must participate in
mandatory training on the directives process.
(2) Writers (OPI) and DPCs/delegates must participate in annual
refresher courses.
e. Implementation.
(1) The requirements of this directive and its associated
directives are effective immediately.
(2) Unless otherwise stated, requirements of new or revised
directives will be fully implemented within 12 months of
issuance.
(3) For safety directives, implementation methods must ensure an
adequate level of safety commensurate with the hazards associated
with the work.
(4) Guides can serve as reference sources for acceptable,
non-mandatory implementation methods to satisfy requirements of
Orders, Notices, and Manuals. NOTE: Guides do not establish
requirements or constitute the basis for a finding of
non-compliance with a specific requirement.
(5) Alternative methods that satisfy the requirements of an
Order, Notice, or Manual also may be acceptable.
5. RESPONSIBILITIES. Detailed responsibilities are described in
DOE M 251.1-1B.
a. Secretary of Energy approves or delegates the Deputy
Secretary to approve final directives.
b. Deputy Secretary.
(1) Resolves or appoints a designee to resolve conflicts when
Departmental elements have not achieved resolution through the
impasse process (see DOE M 251.1-1B, Chapter V).
(2) As the Secretary’s designee, approves final directives.
c. Secretarial Officers or Senior Level Designees. An SO may
delegate the following responsibilities to a senior
level designee. The Office of Information Resources
must be notified in writing of this designation.
(1) Require that organizations in their areas of responsibility
comply with the Departmental Directives Program as defined in
this Order, DOE P 251.1A, and DOE M 251.1-1B.
(2) Approve and submit to the Office of Information Resources a
justification memorandum that describes the compelling need for a
proposed directive.
(3) In consultation with the Office of Environment, Safety and
Health, encourage the adoption of voluntary consensus standards
in lieu of creating DOE-unique standards, when appropriate and
applicable.
(4) Review their organizations’ directives for accuracy and
continued relevance every 4 years to determine whether revision,
cancellation, or recertification is needed (see DOE M 251.1-1B,
Chapter VI).
(5) By January 15 of each year, submit to the Office of
Information Resources (within the Office of Administration,
Office of Management) a projected list of and schedule for
directives to be processed (new or revised) that year (see
DOE M 251.1-1B, Chapter VI).
(6) Designate and inform the Office of Information Resources in
writing of responsible individuals to serve as DPCs.
(7) Approve and submit to the Office of Information Resources,
through the DPC, consolidated comments for consideration on
directives.
(8) Designate responsible individuals to notify contracting
officers when CRDs must be included in existing contracts as
determined by the heads of field elements.
(9) Participate in the impasse process when agreement between
Departmental elements cannot be reached within designated time
frames.
(10) Elevate unresolved conflicts through the Office of
Information Resources to the Deputy Secretary or designee.
(11) Require DPCs, writers, and others involved in directives
development to participate in mandatory initial and annual
refresher training.
(12) Ensure that directives are written to reflect
performance-based management goals that align with program
objectives and defined performance measures, where appropriate.
d. Director, Office of Management.
(1) Manages the DOE Directives Program.
(2) Maintains the system through which Departmental elements
comply with directives program requirements set forth in this
Order, DOE P 251.1A, and DOE M 251.1-1B.
(3) Concurs/non-concurs and assigns a directives track for
non-NNSA elements’ justification memorandum for processing in the
Directives Program.
(4) Reviews and recommends to NNSA approval/disapproval on
proposals for development or revision of directives.
(5) Establishes and maintains a directives feedback reporting
system through which suggested improvements, lessons learned, and
best practices are reported and considered during directives
review or revision.
(6) Manages Directives Program mandatory training.
(7) Manages the impasse process.
(8) By October 1 each year, notifies SOs that directives under
their purview are due for review in the coming year.
(9) Reviews and approves non-NNSA SOs’ annual schedules for new
or revised directives.
(10) Reviews and coordinates NNSA’s annual schedule for new or
revised directives with the NNSA Office of the Associate
Administrator for Management and Administration.
e. NNSA Office of Associate Administrator for Management and
Administration.
(1) Approves or disapproves NNSA elements’ justification
memorandums for development or revision of directives.
(2) Approves or disapproves NNSA elements’ deviations from
established processing tracks.
(3) Approves or disapproves NNSA elements’ proposed annual
schedule for new or revised directives.
f. Heads of Field Elements.
(1) Ensure that employees within their organizations participate
in the development and coordination of directives through the
Directives Program as required by this Order and DOE M 251.1-1B.
(2) Designate responsible individuals to serve as DPCs.
(3) Report suggested comments, lessons learned, and best
practices in DOE directives to the responsible OPIs and Office of
Information Resources.
(4) Determine which CRDs should be incorporated into contracts.
(5) Require that DPCs, writers, and others involved in the
directives process participate in directives program mandatory
initial and annual refresher training.
g. DOE or NNSA Central Technical Authorities.
(1) Maintain a list of directives of interest to CTAs.
(2) Concur with—
(a) the determination of the applicability of DOE directives involving nuclear safety included in DOE/NNSA contracts
pursuant to Department of Energy Acquisition Requirements
(DEAR) 970.5204-2(b);
(b) directives that affect nuclear safety and are included in
DOE/NNSA contracts pursuant to DEAR 970.5204-2(c);
(c) justification memorandums that involve nuclear safety
directives;
(d) all exemptions requirements in nuclear safety directives
that were added to DOE/NNSA contracts pursuant to DEAR
970.5204-2; and
(e) cancellation of directives affecting nuclear safety.
h. Offices of Primary Interest/Writers. (See definition in DOE M 251.1-1B.)
(1) Under the direction of SOs, develop justification
memorandums in accordance with paragraph 4a(1) of this Order.
(2) Develop draft directives in accordance with legislative,
regulatory, program, and mission needs and management direction.
(3) Develop directives to reflect performance-based management
that aligns with program objectives and defined performance
measures, where appropriate.
(4) Ensure that contractor requirements are clearly defined in a
CRD attached to a directive and not part of the body of the
directive.
(5) Prior to Department-wide review and comment, pre-coordinate
with the Departmental Representative to the DNFSB on all draft
directives affecting safety and health at defense nuclear
facilities.
(6) Consult with the Departmental Representative to the DNFSB
when canceling directives that affect safety and health at
defense nuclear facilities.
(7) Pre-coordinate draft directives affecting nuclear safety
with CTA staff prior to Department-wide review and comment.
(8) Consult with the CTA when canceling directives that affect
nuclear safety.
(9) Respond to all comments and obtain resolution on all major
comments.
(10) Complete review and comment processing using one of the four
directives tracks as identified in paragraph 4b(1) of this Order.
(11) When resolution on major issues cannot be obtained, refer
resolution to the impasse process (see DOE M 251.1-1B,
Chapter V).
(12) Participate in directives program mandatory initial and
annual refresher training.
i. Departmental Representative to the Defense Nuclear
Facilities Safety Board.
(1) Maintains a current list of directives of interest to the
DNFSB.
(2) Coordinates directives review and comment resolution with
the DNFSB.
(3) Obtains successful resolution of DNFSB comments or obtains
concurrence from the Department’s senior management to move
forward with directive publication without receiving DNFSB
clearance.
(4) Concurs on cancellation of directives affecting safety and
health at non-NNSA defense nuclear facilities.
(5) Consults on cancellation of directives affecting safety and
health at NNSA defense nuclear facilities.
j. Directives Points of Contact/Delegates (see definition in DOE M 251.1-1B).
(1) Represent their Departmental elements in complying with this
Order, DOE P 251.1A, and DOE M 251.1-1B.
(2) In consultation with their organizations’ management,
appoint subject matter experts to review directives that address
operations in their areas of expertise.
(3) Submit consolidated comments to the OPI on behalf of the SO
or senior level designee.
(4) Participate in directives program mandatory initial and
annual refresher training.
k. Contracting Officers/Contracting Officer Representatives.
Once notified that contracts under their purview are affected
by a CRD, negotiate requirements of the CRD into the
laws, regulations, and DOE directives clause of
affected contracts.
6. NECESSITY FINDING STATEMENT. In compliance with the statutory
requirements in P.L. 104-201,
Sec. 3174, Orders relating to the execution of environmental
restoration, waste management, or technology development
activities at a defense nuclear facility under the Atomic
Energy Act of 1954 (42 U.S.C. 2011 et seq), may be imposed
by the Secretary at the defense nuclear facility only if the
Secretary finds that the Order is necessary for the
protection of human health and the environment or safety,
the fulfillment of current legal requirements, or the
conduct of critical administrative functions.
7. REFERENCES. The following references are applicable to this Order.
a. P.L. 106-65, Title 32, National Nuclear Security
Administration Act, as amended, which established a separately
organized agency within the Department of Energy.
b. P.L. 104-201, Section 3174, National Defense Authorization
Act for FY 1997.
c. P.L. 104-113, National Technology Transfer and Advancement
Act of 1995.
d. Title 41, Code of Federal Regulations (CFR), Part
102-193.25.
e. OMB Circular A-119, Federal Participation in the Development
and Use of Voluntary Standards.
f. DOE P 251.1A, Departmental Directives Program Policy, dated
8-16-06.
g. DOE M 251.1-1B, Departmental Directives Program Manual,
dated 8-16-06.
8. DEFINITIONS. Directives terms and definitions are available in
DOE M 251.1-1B, Departmental Directives Program Manual, or
online at http://www.directives.doe.gov.
9. CONTACT. Address questions concerning this Order to the Office of
Information Resources at 202-586-4716 or by electronic mail
at dmteam@hq.doe.gov.
SAMUEL W. BODMAN
Secretary of Energy
CONTRACTOR REQUIREMENTS DOCUMENT
DOE O 251.1B, DEPARTMENTAL DIRECTIVES PROGRAM, DATED 8-16-06
Regardless of the performer of the work, the contractor is
responsible for complying with the requirements of this
contractor requirements document (CRD). The contractor is
responsible for flowing down the requirements of this CRD to
subcontractors at any tier to the extent necessary to ensure the
contractor’s compliance with the requirements.
1. The contractor must comply with directions from the
contracting officer regarding participation in DOE’s directives
comment and review process.
2. The contractor must comply with requirements stated in the
CRD (Appendix A of DOE M 251.1-1B) when it believes an exemption
is necessary or appropriate for a requirement that has been made
a part of its contract.