Calhoun: The NPS Institutional Archive

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Theses and Dissertations Thesis and Dissertation Collection

1960

A study of inspection and quality control at

the Overhaul and Repair Department. U. S.
Naval Air Station, Quonset Point, Rhode Island.

Gray, Hugh M.
George Washington University ; School of Government, Washington, District of Columbia.

http://hdl.handle.net/10945/31161

Downloaded from NPS Archive: Calhoun

A STUDX OF IHSPBOTIO I U...LITY 30NTROL
at the
AUL A! D {EPAlR
U.J. NAVAL kJR STATI0H
.. JET POIHT, LHQDE I

by

u ;h I . 3-ray
Commander,

prepared for

Dr. A. ,iex Johnson

Navy Graduate Comptrollership rro^ram

The leor ;e ushin.yton University

.;hin;ton, D. J,

iiay I960
 TABLE OJ

Pag«
LIST OF CHA MPS ill

INTRODUCTIOH 1

Chapter

I. CHE AVAL AIR STATION 3

II. THE INSPECTIOJ E 7

III. 1 I CONTROL ... 19

IV. THE tfJAUTX OONTROL 1 tAM 28

V. SUHMARX 46

VI. CONCLUSION 55

AJMPENDIX A - BXOSRITS OMAN INTERIM I L 3TRUCTI0N . 57

APPENDIX B - QUALITX OONTROL JOLI ORTING .... 60

APPENDIX C - FEIGENBAUM'S PRINCIPLES OB jM^LL.'I CONTROL, . 66

BIBLIOGRAPHY 74

ii
 LIST ,T3

Figure Page

1. Overhaul and Repair Department Organisation . 21

2. Mana reraent service Organization 24

3. Quality Control Organization 32

iii
 INTRODUOTIQH

On October 10, 1956, the Navy' ureau of Aeronautics*

proraul >;ated the "Mana jement Control system Manual" for use by

aircraft Ore r haul and Repair Departments located at Major uir

Stations throughout the country. I he Manual established a com-

plete Integration of all Mana jement Improvement Programs such as

Production Control, Engineering Performance standards, Material

Control and Cost Control and was later expanded to Include

Industrial Funding and ..uality Control.

Ihe ..uality Control Program was Implemented at the Quonset

j-oint JNaval Air Station, uhode Island, on December 15, 1959 at

which time the Inspection Gtroup became the Quality Control Group.

This organisational ohan ;e was only one of many affecting the

inspection function through the years and lends itself to an

historical study of inspection and quality control procedures as

devised oy nana jement for a niiitary aircraft repair facility.

The objective of this paper la to study the inspection

and quality control programs as they have evolved at the ...uonset

l'oint Overhaul facility. An attempt v. ill oe i to explain the

"why" as well as the "when" of certain events in order tl t a

better understanding of managerial decisions affecting inspection

*0n January 1, I960, the Bureau of aeronautics was merged

with the Bureau of Ordnance and renaiaed the Bureau of l.aval
Weapons*
 2

and product quality may be provided.

It is re-emphasized that the Quality Control Frogran is

just one se ;;nent of the Manageaant Control System and, in itself,

Indicates the progress Kavy Coaaand hai le in the field of

scientific management.
 CH I

IT. .; . A.TIOH

In the strategic planning of the pre-.orld '.

ar II era,

the Navy began to build its fight i- ;

i chine around the aircraft

carrier and the seaplane. It developed a plan for the strategic

location of air stations with fleet loading potential for the

carriers, sea room for the seaplanes, and repair facilities for

all types of aircraft. 31r.ee Military appropriations were small,

the Navy concentrated its air power at two main bases — Norfolk,

Virginia, which serviced Atlantic Ocean aircraft and another at

San Diego, California, which serviced Pacific Ocean aircraft.

A third important base, where major flight training for prospec-

tive Naval ^viators was conducted, was established at Pensacola,

Florida.

Assembly and aepair Departments

At each of these stations, functioning shops for the

purpose of overhauling and repairing aircraft were established.

These were called aeaeably and repair Departments and provided

the main source of aircraft readiness and training of Naval

maintenance personnel.

The iissemoly and Repair Departments played an important

role in aircraft operations because aircraft had to be overhauled

 -

at specified times, scheduled in advance cy the Bureau of aero-

nautics. Operating squadrons were able bo provide general mainte-

nance and minor repair hut could not conduct complete disassembly

and process ii. ; of all components such as engines, propellers,

fuselage, etc. Therefore, Just at, surface warships returned to

the shipyard for repair, aircraft returned to the assembly and

He pair Departments for overhaul.

During the latter part of the 1930 '^ it became apparent

to Navy officials that as aircraft increased in numbers, more

facilities ould have to be constructed to support them. as a

result, several surveys of prospective areas were made.

^uonset x-oint Kaval air Station

On June 7, 1933, a ivaval Board head© y Rear Admiral

Hepburn was authorized oy Congress to study the need for and the

location of new bases on the £,ast Ooast. From this study came

the selection of uonset Point, Hhode Island, as a possible base

site, and in Mav of 1940 lf

24, 204,000 was asked from ^on jress to

finance the project. ith National Defei playing a most im-

portant role in Congress at this time, funds were immediately

provided to finance the project, and construction began at

Quonset Point in July 1940. Commissioning ceremonies were held

1
a year later on July 12, 1941. It oust be noted that Britain

at this tine was fighting the Battle of tl >rtb Atlantic, and

a lar^e Kaval air B needed in New England to fit our

defensive purposes.

.^uonset Point soon gre* to -e the largest Naval air

Station In the Northeast section of the country, consisting of

.Visitors auide, Overhaul and Repair Department,

u uonset ioint, Rhode Island, October 13, 1950, p. 1.
four runways, four landplane hangars and three seaplane hangars,

a carrier pier, and build Inge to provide all services for air-

craft and personnel. Originally, the Commanding Officer of the

Naval nir Station had nine departments under his command —

Administration | Security, Naval air Torpedo Unit, Operations,
Communications, Dental, helical, Supply and Fiscal, and Public

Vorkfi, The assembly and .Repair Department and the Inspection and

Survey Department were added later.

3ix weeks after the commissioning of the Naval air station,

the vanguard of Assemcly and Repair Department personnel reported

for duty. Some of these people were recruited from non-Navy

sources while some were transferred from the large assembly and

Repair Facility at Norfolk.

In the beginning, the assembly and Repair Department

consisted of three staff groups — Planning! administration and

aeronautical En ;ineerin ;. The main working division was the

Shops Group which was divided into seven unit3 — Structures,

Process, accessories, iissemaly, Power Plant, Plant, and Repair

and Transfer. The Department was staffer] with such officers,

enlisted personnel, and civilians as were assigned or approved

cy the Commanding Officer of the air Station. No provision was

made for inspection or quality control during the early formative

o
sta^e of the organization.

The Mission of the i*ssem.,ly and Repair Department was to

support the Integrated Aeronautical Program of the Navy by

accomplishing the overhaul, repair, modification, salvage, testing

^Information furnished by Walter F. lunster, Chief

Inspector, Overhaul and Repair Department, ,uonset Point,
Rhode Island.
 6

of engines, accessories and other related Naval aeronautical

equipment. It included the limited manufacture of aircraft parts

and assemblies! In a dition, the Department had a schedule of

Glass 265 material to overhaul, Ihls material included all types

of aeronautical equipment and accessories held by the Supply and

Fiscal Department which were not ready for issue and had been

determined to be economical to repair. 3 After rework, this

material was returned to the Supply and iv i rjcal Department to meet
replacement demands of the ope rat in- forces.

As the war started and progressed, it became apparent that

the work being turned out by the assembly and Repair Department

had to ae quality assured. To perform this function, the

Commanding Officer of the air station, with the consent of higher

authority, established an Inspection and burvey rtment.

In addition to control of quality of workmanship, this new depart-

ment was o barged with the responsibility for inspection functions

wherever needed on the Naval Air station.

The all-inclusive mission, composition, and problems

associated with the Inspection and Purvey Department will be

considered in the next chapter.

^Visitors -luide, Overhaul and Repair Department! ...uonset

Point, Island, October 13, 1950, p. 12.
.^.hode

TPhe Bureau of aeronautics letter Aer-MA-156-WCM| 11907»

dated January 20, 1945 which promulgated the "Tentative Manual
for the Inspection and Survey t merit on Naval and ine
Oorps ^iir stations.
 CHAPTER II

THE INS] IGTIOH *KD

The Inspection and Survey Department was organized as a

separate entity from the Assembly and aepair Department* It

functioned under the general concept that all items produced y

the iissembly and Repair Department would be 100 per cert examined

visually, dimensionally, and ay test in accordance with draw-

ings, specifications, process and test criteria.

Very little guidance or instruction was available for

letting up the nei. Department so that from 1942 to 1944 the

organization and procedures were established by the fen ex-

perienced inspect ion personnel available, ^lthou^h from -a ch

1942 to iarch 1943 the Department grew from six people to tv;o

hundred and fifty (military and civilian combined), 95 per cent

were without previous inspection experience.

Personnel Training

Since Inspection and Survey was plagued from the start

by a lack of experienced personnel, training presented many

problems. For example, there was a great deal of diversification

*-Inf ormation supplied by 'alter b. unster, Chief

Inspector, Overhaul and Repair Department, 4©nset Point,
Rhode Island.
 8

\-ork in the various shops and many journeyman trades were re-

quired to perform and inspect the workloads. therefore, train-

in;; pro&raras had to be established and maintained.

Basic training was handled bj the Training branch of the

Industrial Relatione Department with instructors aa signed to

various shops. Candidates for inspector assignments were selected

from the Journeyman ranks, when possible, and from personnel who

had completed their basic shop training. The Inspection and

Survey Department followed this <vith at least three months

on-the-job training after which tiae the new inspector was allowed

to "creak in" ay performing limited Inspection in an assigned area.

Under the "complete overhaul' 1

concept, all aircraft

components were completely disassemoled, visually and dimension-

ally inspected, stripped, re plated, refinished, and reassembled.

During the entire process the inspector had to oversee the work

and check test the product. With inexperienced personnel, the

job consumed more time than was considered normal, but since

-assembly and Repair personnel were also inexperienced, both

Departments were in balance on time control.

The Inspection and 3urvey Department had other problems

besides personnel. It inherited the job of flight testing air-

craft which consisted of moving aircraft to the flight test line,

preparing the aircraft for flight, and having Assembly and Repair

personnel work off the discrepancies. standard flight procedures

for teBt were prepared cy the inspectors and the officers assigned

to the flight test division.

Another problem concerned the lack of information now

contained in Maintenance Manuals, Pilot's Handbooks, Parts

 9

Catalogues, structure Repair Manuals, etc. ^ince the information

was not readily available, the Inspectors produced their own.

They kept records on the different configurations of aircraft

and aircraft components, processing procedures work completed on

aircraft, flight test Information, and lor; boo?-: information,

Soon the Depart lent became a record-keeping organization and re-

tained complete information of work accomplished on aircraft.

This was invaluable for historical reasons.

On January 20, 1945, the Bureau of aeronautics issued the

"Tentative -ianual for the Inspection and Survey Department on

Naval and /tarine Corps aIp Stations." This manual was promul-

gated b ^ureau of Aeronautics letter Nuaber Aer-MA-156- WCM f A3-l»

Serial Numoer 11907, dated January 20, 1945, a nd was the first

and only guide issued for Inspection and Purvey Departments.

Although it was "tentative," it cecarae the standard organization

for the Inspection and Survey Departments in all ftavai air

Stations.

The Manual stated that the Inspection and Survey Depart-

ment should oe organized to render complete service to the Air

Station activities concerned and should closely pattern the

activity it services.

The Mission

The Inspection and Survey Department was charged with:

Inspection for quality and conformance with

applicable directives of all aviation material manu-
factured, modified, overhauled or repaired t^ the
assembly and Repair Department on the Station? in-
spection of airplanes to be released from the
Station for ferrying; Inspection of all supplies
delivered to the Station from outside sources as
set forth in article 1611 through 1614, u. S. Mavy
 10

Regulat iona except provisions, medical supplies and

,

other supplies ordinarily inspected, by the depart-

ment concerned; conducting surveys requested by the
supply Of fleer and ordered by the Commanding
Officer, together with rendering proper reports
thereof; furnishing technical advice and inspection
service to the Supply Officer relative to handling,
preservation and condition of aviation material in
hie custody, as required by article 19-401, Bureau
of aeronautics Manual, and at other times when
requested. 2

Ada In la t rat Ion

The Inspection and Survey Department operated with such

officers, enlisted personnel and civllic a signed and approved

by the Commanding Officer. Its administration was governed by

the Manual and by other directives issued >jy the Inspection and

Survey Officer, the Commanding Officer, the Bureau of aeronautics

and other competent authority.

Duties of the Inspection and .,ur-vo;/ Officer

The duties of the Inspection and Survey Officer were a3

follows J

a. The Inspection and Survey Department shall

be administered by the Inspection and Survey Officer,
who is designated aa such by the Commanding Officer,
in accordance with U. S. Navy Regulations, bureau
of aeronaut ios Manual, and such other orders and
Instructions as may be issued by competent authority.

b. He shall be personally responsible for the

efficiency and effectiveness of the entire Depart-
ment. 1th prior approval of the bureau of Aero-
;

nautics he shall, under the direction of the

Commanding Officer, direct Buch improvements in
organization as he considers necessary and desirable
from tirae to time.

c. He shall formulate and establish policy for

the Department and shall issue such orders and
directives as are necessary to insure compliance.
These orders and directives shall be in accordance
with existing orders and directives issued by higher
authority.

p
Tentative Manual for the Inspection and Survey Depart-
ment on Naval and Marine Corps air Stations, January 20, 1945, p. 1
 3

11

d. He shall furnish inspect Ion personnel with

adequate and up-to-date technical information concern-
ing inspection standards and existing approved
specifications.

e. He shall render technical advice of an in-

spection nature to the Supply Officer, when
required.

f. lie shall act as a liaison officer for the

Station with other units or departments on technical
aviation inspection natters.

;. He shall maintain active and positive liaison

with the ^sse-Tibly and lr Officer in order to
attain a productive output of the proper quality and
quantity.

h. He shall insure that all aircraft repaired,

overhauled, or reconditioned are flight tested in
strict accordance with existing regulations.

1. He shall supervise the military activities

of the military personnel.

The Inspection and Survey Officer was assisted by an

Assistant Inspection and Survey Officer, a Supply Officer, a

Flight Test Of floor, an acceptance and Transfer Officer, a Senior

Civilian administrative Inspector, a Unit Supervising Inspector,

and an Overhaul Control Inspector.

The Senior Civilian administrative Inspector supervised

all inspectors in the Department and directed the office clerical

force in the performance of its duties. He prepared all appli-

cable orders, aircraft and engine changes, bulletins, technical

orders and notes, specifications, correspondence and other

applicable Information for dissemination to the inspectors and

units concerned. He reviewed all the log books on aircraft and

engines reconditioned, overhauled, or repaired when submitted

from the assembly and Repair Department as complete. Finally he

3 Ibid. , p. 1.
 12

handled all Batters pertaining to Jivil Service personnel of the

Department such as promotions, transfers, resignations, annual

and sick leave, and preparation of efficiency ratings.

Ins oector qualifications

Inspectors were expected to possess a thorough knowledge

of the .materials and elements of workmanship for which they were

to Inspect. They bad to read blueprints, interpret specifications,

and realize when conditions had been met, While quality was of

primary importance, the inspector had to realize also that

quantity of aircraft completed by the assembly and Repair Depart-

ment was of equal importance and he had to cooperate in every

respect to maintain production.

Methods oC Inspection

The Manual specified certain mat hods of inspection and

spelled out the responsibilities of the assembly and Repair

Department to the Inspection process:

1. The Assembly and Repair Department will

examine all parts and assenblies prior to their
being reconditioned, repaired, or overhauled. In-
spectors will not inspect parts and assemblies
before they are repaired, but rather, will serve
in an advisory capacity relative to such repairs.
Inspections will oe made only after the shop
supervisor has indicated that necessary work under
his cognizance has oeen completed.

2. Inspectors shall inspect parts and assemblies

which are in process of reconditioning, overhaul,
repair, or manufacture for the purpose of insuring
compliance with approved methods and procedures.

3« If, during the fabrication or assembly of

parts, the inspector notices any defects, discre-
pancies, or poor workmanship, he shall ca.il such

^Ibid. , p. 3.

^xuld. , p. 5«
 °

13

Items to the attention of the shop supervisor so

that they will be corrected before the parts in
question reach the inspection stage.

4. If alterations are made to any cart or

assembly after having Geen Inspected and passed by
an inspector, another inspection shall be conducted.

5. ^n inspection stamp shall be as si r;ned to

each inspector in the Inspection and Survey
De artment. "hen a stamp is lost, its number
shall be withheld from use until it has definitely
been established that the stamp cannot be recovered.
The inspection stations sha^l be notified immedi-
ately when a stamp has been lost or when one has
been restored to the active list.

6. '<hen inspectors differ in opinion on the

inspection of a part or assembly, the immediate
supervisor shall be required to inspect the item
and render a decision. In such cases the Inspector
who renders the decision shall stamp the item with
his own stamp. After an item la inspected and
stamped the inspection shall be accepted by other
inspectors, unless it is obviously in error.

7. A member of the Inspection and Survey

Department may act in an advisory capacity to the
assembly and uepair Department Aircraft aecondition-
in 3 .3oard when so requlrec}. Ke shall not act as a
member of this Board. He shall not pass on ,uestlons
of policy re;.j;ardin<5 methods and possibilities of
repair, anci disposition of aircraft parts and
assemblies during reconditioning, overhaul, or
repair.

8.Inspection may be performed in certain shops

by production shop foremen if such method of in-
spection is satisfactory to the Inspection and
Survey Officer. The size of the shop and the skill
required to obtain proper inspection should be the
determining factor.
Relations with the Supply Department

The Inspection and Survey Department provided inspection

service to the Kaval ^ir station Supply Department. In return

for such service the Supply Department provided ofi'ice space

6 Ibld.
, p. 5.
 14

and office equip lent; furnished invoices, specifications, drawings,

handling services, and other necessary services re uired for these

inspections; and furnished the inspectors with sufficient copies

of ail supply Deoartment directive* relative to storage and care

of aviation materials. '

relations vvith the Assemuly and Repair Department

Responsibilities of Inspection to Assembly and Repair were

as follows:

1. The assembly and Repair Department will exa-

mine all parts prior to processing, and will de-
termine the procedures to be used in such process-
ing. The Assembly and Repair Department will be
responsiole for the complete raagnaflux operation.
The Inspection and Purvey Department will be re-
sponsible for the inspection of all parts during
and after processing.

2. The assembly and Repair Department v*lll

prepare reports to be affixed to the log books
showing parts replaced, work accomplished, changes
and bulletins incorporated. The Inspection and
Survey Department ill review the report of v.ork
accomplished on aircraft and engines after overhaul,
modification, reconditioning, and repairs. If all
entries are in order, the report -.ill be signed or
stamped by the Inspection and Surrey Department.

3. The Inspection and burvey Department will

perform inspection in a pro-;re;>Mive manner by in-
specting each operation as it is completed, noting
all discrepancies on a discrepancy sheet attache
to the aircraft or engine. The Assembly and
Repair Department will correct discrepancies noted
by inspectors before the next ,;roup of operations
is begun.

A. The assembly and Repair Department will

provide sufficient areas in convenient locations
in the shops for tfatever inspectors are necessary
to service the assembly and Repair Department.
The Assembly and Repair Department will equip these
areas with the tables, chairs, and files which are
required for use uy inspection personnel.

^
Ibld . , p. 6.
 15

5. The assembly and Repair Department will pro-

vide the Inspection and Survey Department with
sufficient copies of all orders, process specifica-
tions, drawings, sketches, and other technical
information and instructions issued by the Assembly
and repair Department."

General organization of the Department

The Inspection and Survey Department was organized accord-

ing to the standard organization chart prepared by the Bureau of

Aeronautics. The op© rati] >oups in th« >artment were classi-

fied as "Units," while suc-sectio as of each "Unit" were named

"Inspection StatiO] . It was decreed by the Manual that the

organization would conform primarily with the approved station

Assembly and. Repair Department organization*

The general functions and operations of the Inspection

Stations in the Inspection ancl Survey Department indicate the

scope of the overhaul operation and for this reason are outlined

here:

Section 01 Disassembly
02 Gleaning
04 Fuselage Repair
05 Large surface Repair
06 all Surface Repair
07 Fabric
08 Dope
09 Hull and Float Repair
10 Tank Overhaul
11 Gable and Tie Rod
12 Electric Shop
13 Propellers
14 Paint
15 Rubber Products Overhaul
16 hydraulic Subassembly and Installations
17 Flight Control Installation
13 Fuel System Installation
19 Fixed Equipment Installation
20 Ordnance Installation
21 Engine Installation

Q
°
Xbld . , p. 6.
 16

Section 22 Final .assembly

23 Ground and Flight Teot-Aircraft-Englne
24 I ns t r ume nt In s t a nation
25 Glass and Cabin Enclosures
26 Gow ling subassembly
27 Landing Gear Overhaul
28 Cowling Subassembly
29 Surfaoe Subassembly
30 Small Parts Subassembly
31 .finished Parts Storage
32 En ;iiie Parts reconditioning
33 jlne Piston and Ring
34 En ;ine Cylinders
35 En jine Grankcase
36 Engine ftose and Power
37 tglne Blower and Rear
38 Engine Pinal Check
39 Preservation-Engine- --ire raft
40 Auxiliary Power Units
41 Minor Overhaul-Engine-Aircraft
42 Instruments
43 Oxygen and Light Gases
44 Carbon-Dioxide and Heavy Gases
45 Turco-liuperoluirgers
46 Ca p b uret rs
47 Pumps and Valves
43 Starters
49 agnetoa
50 Spark Plugs
51 Ignition Harness
53 'achutes
54 chine Guns
55 lurrets
56 Bombs 1 gh t s and S « B • A • E«
57 Pun Sights
53 Cameras
59 Optical Equipment
60 oomu racks
61 Gcellaneous Ordnance Equipment
62 Radio Overhaul
63 dar overhaul
64 Radio and Radar Installation and Test
67 Pool Manufacturing
68 Lathes and {fillers
69 Drill Presses and grinders
70 Screw Machines
71 :eavy Equipment
72 Bench Assembly
73 Plastic Manufacture
74 Layout and Pattern 3 hop
75 Machine Operations
76 Steel Manufacture and V elding
 9

17

section 77 Aluminum alloy danufacturing

78 Engine Jowl Repairs
79 Pairing Repairs
80 3 u be Manufacture
81 Plating and Anodizing
82 Heat Treating
86 Joiner Shop
92 lvagc Die assembly
93 Parts Identification
94 AK Standard Parts Re a la mat ion
95 scran Segregation
97 Flight Olothing
99 Shop Stores
150 Xneomln srials (Supply)
151 itfaterials in Storage (Supply)
152 Materials Tor Delivery (Supply)
153 Acceptance Line .here applicable)
(

15^ Tranefer Line (here applicable)

While the "Tentative ual for the Inspection and survey

Department" proved an organizational boon to the Inspection

Department, It also pointed th< j

way to 9 vent ual integration of
the Inspection Department and the Assembly lepalr Department.

Since Inspection was actually performing a service to the assembly

and Repair Department, it was indicated that the two departments

would merge at the first available opportunity.

The Merger

In 1948, as a result of post-war studies on standardiza-

tion and modernization, the assembly and repair Department was

renamed the Overhaul and Repair rtment and the Inspection

Department cecane the Inspection Group within the new Overhaul

and Repair organization, °

From the Inspection point of view, there was one distinct

advantage in the nev organization — its complement would remain

fairly constant. Since the Overhaul and Repair Department

9 lbld . » p. a and p.b,

^Visitors duide, Overhaul and Repair Department, ^uonset

Point, Abode Island, October 13, 1950, p. 1.
 18

received a separate operating allotment, distinct froa IMaval air

Station funds, It possessed a more stable work force. The Air

tlon, on the other hand, could not budget for severe winter

weather where heatin; bills and snov, removal sometimes ran over
budgeted estimates. In these cases, the complement of the

Inspection Department and other Laval air station departments were

sharply reduced to make up for a rapid depletion in working funds.

On the administration side of the merger, Inspection lost

prestige. Being downgraded froa a department with equal status

to the Overhaul and »ir r baent, it now found, itself a

Group within the Overhaul an: Repair Department. ..here the

Inspection Officer previously reported directly to the Executive

Officer and Commanding officer of the Station, he now reported

directly to the Overhaul and Repair Officer.

The 1943 reorganization of the Overhaul and Repair

Department was the first of any real oonse uence and marked an

important milestone in military industrial management. It indi-

cated that the military was payin: considerable attention to the

"scientific management" processes being implemented cy private

cusiness at the time.

In the years that followed, standard organizations and

control systems were developed for Overhaul and Repair Department

management implementation, were collected and developed

into the "Management Control Oystom llanual" issued in 1956. Oince

Inspection and Quality Control have now been included in this

Manual, a discussion of the Manual and its contents is considered

necessary and proper.

 .

CHAPTER III

THE K&Nj ,'i CONTROL SYSTEM

t'or the past ten years (the period from 1946

to 1956), the Navy has undergone a technological
revolution of a magnitude and a rate never before
witnessed in the history of naval arms. Not only
have atomic weapons oeen introduced, but also
high-performance jet aircraft, complicated elec-
tronics, guided missiles, ballistic missiles, and
nuclear propulsion. .

Throughout this period, the U. S. Navy struggled

with a packed Pandora's box of its own internal
problems — falling prestige of career service,
agin.!; ships, drooping enlistment rates, eroding
career benefits, blossoming overseas commitments,
soaring costs of naval supplies and equipment.

Each of these events had a profound impact on

the Navy, its missions, and expanding capabilities.
Each also had an effect upon the development of
a naval atomic philosophy.

This technical revolution carried over into the industrial

plants of the Navy. "Higher aircraft speeds made demands across

the board — better instruments, new safety devices, longer

runways ashore, better metals, better training, more skillful

maintenance.... All of the material changes cost money." Thus

economy through control oecame a byword within all sections of

the Navy and on the maintenance side plans were unfolded for

controlling costs through program management.

^United states Naval Institute, ,-tfina polls, Maryland,

1957, pp. 123, 124.
19
 5

20

A bta< dard Organization

In 1951 » the Bureau of .ieronaut ioa sponsored the installa-

tion and operation of all Management Improvement Programs, and

Implementing processes were carried out under a gradual installa-

tion plan calculated to accomplish complete integration of all

programs under a B Ingle system.^ ^irst came a standard organisa-

tion for all Overhaul and Repair Departments.

The degree of economy and efficiency attained in

any government agency or private industrial concern
may he traced directly to the alignment of its
organizational structure and the pattern of responsi-
bilities fixed for all of its segments. Without
a proper organizational alignment a clear cut —
division of labor at each lanagement level with a
corresponding pattern of a single 'hat' of responsi-
bility with authority to act for each organizational
se -ment at each management level any attempt to—
install and operate any one or all of the orinciple
business techniques as a system is futile.

The Bureau standard Organization for all Overhaul and

Repair Departments was promulgated by BUAER Instruction 54-51.12

dated September 1, 1954, as revised. The structure was mandatory

at 3-roup and Division levels in title and functions specified

while necessary deviations at the Branch level were authorized

with prior Sureau approval. Insofar as thi 1 is concerned,

the organization was motivated as follows:

a. aeronautical En ;lneerln Group Re leases

?, s

specifications on hov* to overhaul, repair or

modify work to oe processed.

b. Production Bn.>-,ineerin iroup t Ux)on receipt

~,

of these work spec If lea t ions , this group determines

^Management Oontrol Syste ual, Biuver Instruction

5200.11, October 11, 1956, p. 16.

3 Ibid . , p. 2.
 ) 8

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 22

ere work to be processed will be performed, in-

volving the workmanship of the following divisions:
(1) Operations analysis Division Identi- :

fies work to be processed in terms o assemblies, i'

families of related assemblies and their components,

the work routing sequence, elapsed work days to
process, and the type of manpower, material, and
facilities to oe utilized.
(2) Methods and, standards Division Utili- :

zing the identification pattern established by the

Operations Analysis Division, establishes manpower
standards for each assembly identified.

c. Production Planning group Upon receipt

:

of the identification pattern prescribed 'q-j the

Operations /inalysis Division, the Workload Division
of this ^roup determli es when wor) to bs processed
is to be performed cy release of ..;aster Schedule*
on a program and shop basis; renders service to the
Shops Oroup by 'executing a schedule in terms of
rout in work required and to oe repaired accomplished
,

by Production Uontrolmen of the Dispatch Division;

and finally, schedules and requisitions material
availability, the responsioility of the Material
Planners and Estimators of the Hate rial Division
workin in concert with Production Uontrolmen of
;

the Dispatch Division*

d. Shops ;lroup Performs overhaul, repair or

:

modification of work in accordance with aeronautical

1';ineerin^ Group specification work.

e. Inspection 3-roup : Inspects finished work

in accordance with the Aeronautical Engineering
Group work specifications.

f. aircraft iransfer Group : deceives aircraft

to be overhauled, and schedules delivery of air-
craft overhauled.

g.Administration services Oroup Renders :

service to whole organisation in terms of manpower

ceilln ;s, military and industrial relations matters,
and internal and external correspondence processing.

h. Hang \e raent U on t ro i s .fro up Designs and

:

installs the Management Control System and

renders services to the whole organisation after
its operation oy providing at regular intervals
internal Performance Summer? reports to all points
of supervision, external reports on total department
 ^ '

23

effort and progress, financial status and re-

quirement records and reports equated to work-
loads set by higher authority and timekeeping
and technical services and equipment to facili-
tate the operation of the system.

The System

The Management Control System established a complete

integration of all Management Improvement Programs — Production

Control, Engineered Performance Standards, Material Control,

Cost Control, Quality Control, and Industrial Funding, The

system was "founded on the adoption of the following principles

and concepts of ousiness administration in the conduct of

Overhaul and He pair Department operations: -5

a. •The Principle of Identifying First Things

First,' which sets the above order for install-
ing eaob Management Improvement Program;

b. 'The Principle of Identifying the Depth

of Control,' which requires the alignment and
use of SAM documents, standard rates, and oast
data for Kanageaent Control purposes on a group
or 'chunk' basis of application;

c. 'The Principle of Identify in Business 5

Technique Relationships,' requiring the Integra-

tion of data generated from all Management
Improvement Programs v.hich include the commonly
identified busli ess technique titlet: of 'Production
Control, ''ork simplification,' all measurement
'

techniques (* Direct Time Study, 'Methods Time

'
,
measurement 'Standard Data,' 'Multi-Man,'
'

''.ork Sampling,' and ultiple Correlation'),

'

'Material Control,' and 'Cost Jontrol;

d. 'The Principle of Identifying Croup

Performance,' which requires a focus on an immediate
supervisor and the preparation and use of
standard rates and applicable time expenditures
on a ^roup accomplishment basis rather than an
individual employee basis;

4 Ibid p. 2.
. ,

5 Ibid. , p. ii.
 UN

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 ' '

25

e.'The concept of Coordinated ichedullngj,'

which requires the use of rive scheduling factors
to Insure production shop loadii bo the extent
of available facilities;

f. 'The Concept of [Inlmum Process Time,'

which requires the induction, disassembly,
processing, and. assembly of work in an uninter-
rupted chain of everts; and

g. 'The Concept o alnatlon and Evaluation*

which requires the performance of examination and
evaluation during the various at age a of overhaul,
repair and manufacturing v/ork."

The System's Objectives

The oojecuives of the Management Control System were;

The first objective of the System is to con-

trol production material availability by integrat-
ing the requisitioning and usare recordi
procedures of an Ovemaul and Repair Department
With the ordering and delivery procedures of the
local Supply Department, and thence with the pro-
curement and distribution procedures of the aviation
Supply Office. These procedures were designed in
a manner to pinpoint the responsibility for material
shortages— the greatest waste of all production
resources. The second object ive of this System
is to control the amount of time a supervisor
devotes to supervising his workers by furnishing
him with a periodic Performance Summary report
reflect in his group's Production and Efficiency
;

Indices; thus relievin him of an administrative

;

ourden calculated to avera ^e 2 hours per day

without the System. A third objective of the
System is to control manpower utilization oy the
use of standard rates which spotlight excess man-
power existing in one area, for immediate transfer
to another area experiencing manpower deficits.

Finally, this System is designed to control

the recording, reporting ^nd use of management
data. Any management decision to increase, decrease,
or project a static condition in terms of workload,
people, and money is endangered by the use of
fragmentary or 'tailored' statistical data. The
System affords a supervisor and the executive at

6 Ibld.
.. p. ii.
 7

26

any level and position In the organization with

the means to make the right decision rapidly am;
with the assurance of maintaining the proper
balance amon^ workload, people, material, and
money, in the order propounded, as a practical
matter, any mar tent official must first
consider a volume of workload, then formulate
manpower requirements cy the use of relative
standards applied against that volume of work-
load, and finally translate formulated require-
ments for manpower an iterial into equivalent
dollars. No other sequenoe of consideration and
determination will withstand a thorough management
audit.

x-ianap;ement service

Management Service was invested in the Management Controls

Group which had the full responsibility for the design and in-

stallation of the Management Control system:

The Group's operation begins with ement '

Method* whereunder 'Organization and Directives'

releases a directive to pinpoint the responsibility
of all organizational segments. Second, 'Systems'
designs procedures tailored to the pattern of
responsibilities created in the first instance.
Third, 'Forms, Reports and Records create the
1

forms, records an jorts which depict the pro-

;

cedures design, rourth, the 'Finance Division 1

operation takes over —

the 'Accounting .ranch'
classifies and records manpower time and dollar
expenditures on the f ormt; records, and reports
,

created in the third instance. Fifth, past expendi-

tures documented by '.account in;-' provides 'Budget'
with the historical base to forecast future
monetary requirements equated to projected work-
load volumes. Finally, the dual operations of
'Performance neview' are introduced first, :

determination of shop and office production and

efficiency indices by Evaluat ion, and finally,
' '

investigation of poor accomplishment trends by

1
Investigation. '8

'
10 id* , p. v.
Q Ibid 6.
. . p.
 27

Quality J octroi and the ManL- /.e.-aent Control System

On Decemoer 15» 1959, the Inspection Group of the Overhaul

and Repair Department became the Quality Control Iroup under

the Management Control System, ihe impact of this a Ban ;e is

described in the next chapter.

 CHAPTER IV

i i
; tuALiTx go] moh I iq&ra

Shortly after the promulgation of the Management Control

System, a different work processing procedure for aircraft and

their components was installed in the Overhaul and Repair

Department. This was called the Interim Rework Program and was

designed to reduce Overhaul and Repair In-process time of air-

craft and their components to a specific number of days depending

upon the type aircraft and the item beim* processed.

The basic requirements for Interim Rework of aircraft

consisted of a structural airframe examination, incorporation of

aircraft service changes, correction of squadron reported dis-

crepancies, and correction of other discrepancies found during

the processi< j; which would affect safety of flight conditions.

The process was predicated on the fact that regular maintenance

and minor repair v«ere within the capauility of the squadron

maintenance department. (.f»lx&NDlX A presents excerots from the

Interim Rework Instruction.)

^Bureau of Aeronaut ios Maintenance representative,

Eastern District, Instruction 5442.1 issued June 9, 1958.

>8
 29

It was conceived that at the completion of Interim Rework,

an aircraft, with its power plant and accessories, would be

reasonably able to perform satisfactorily for a complete service

tour with a minimum requirement of replacement parts and that the

safety and Integrity of the aircraft would in no way be compromised,

I
ese drastic changes in processing work presented problems

in controlling quality, particularly from the inspection point

of view, ihe Interim Rework Instruction stated that "The quality

of the inspection v.' ill be as logic dictates but will attain the

proper standards in order for the aircraft to operate satisfactorily

for the period prior to the next rework or overhaul," This decreed

that inspection determine proper standards — a responsioility

rightfully belonging to engineering*

as time passed, this processing concept was enlarged to

include engines, propellors, instruments, accessories, and elec-

tronic gear, all of which greatly compounded the problem of main-

taining a high quality standard within the depart lent, Realizing

that inspection alone was not the answer to controlling quality

under the Interim Rework process, the Bureau of aeronautics,

working with the different Overhaul an Repair Departments, brought

out the Quality Control Program,

The Quality Control Concept

Quality Control was considered a management tool in the

sane sense as rroduction Control, Cost Control and Material Control

were management tools. From the viewpoint of the Bureau of

aeronautics :
 30

The basic ooncept of Quality Control for Overhaul

and ite pair Departments la primarily the estab-
lishment of a program, the functions of which will
reasonably insure the coord inat ion of material,
nan and taohlnes in such a manner as to detect
difficulties, prevent recurrences, and provide
an effective neasure of assurance to product re-
liability, essentially the decree to hich the v.

activity products are refined by work processes

directly reflects the efficiency and value exer-
cised on the control of ^uality. It must be
corne in Bind that "excess quality" or "unnecessary
refinement" can be costly in tLne and material
and greatly effect the objectives of ,uality
Control, as well as Insufficient processing can
adversely effect the desired standard. In order
to place quality Control in the proper perspec-
tive, it must oe realized that purely statistical
control measures are not adaptable to the varia-
tions in Overhaul and Repair Department workloads
because of the individuality of components con-
sidered under the "depth of overhaul concept,"
Therefore, it must ce remembered and emphasized
that a practical approact: to controlling quality
must be made. The most practical method hat; been
found to be by investigation of circumstances
surrounding discrepant workmanship and/or material
failures, he collection of pertinent informa-
tion, compilation of factual data records will
provide a means of inprovin; practices, assure
necessary specific i- struct ions and aid in
promptness of communications. ..uality Control
is a staff function, the proper performance of
which requires the authority and assumpt ion of
responsibility for action. ..uaiity Control
necessitates cutting across organizational lines
at division level and celov throughout the
Department, in order to determine facts, develop
case histories, compile data, and make possible
comprehensive reporting with hich Management
v.

may take corrective action.^

The Quality Control lanual

The Quality Control lanual, issued by the Bureau of

aeronautics on august 13, 1959, provided the philosophy, or^anlza-

2 ,uality
, Control Manual for Overhaul and Repair Departments
l

at Kaval and Marine Corps air Stations, BUAJJR Instruction 5214.1,

•u^ust 13, 1959, p. 2.
 31

tlonal considerations, outline of the basic system, and management

considerations surrounding the design of a Quality Control

Program. The contents allowed the activities necessary leeway

In pre pa ring local detailed implementing directives. The over-all

objective of the manual was to "provide the stimulus by presenting

the general framework of a ,uality Control ystem to challenge

all Overhaul and Repair Department personnel to show by their

actions that quality consciousness prevails throughout the entire

Overhaul and Repair Department."

It indicated management's view that quality of products

produced had to be controlled and that instances of poor quality,

for whatever reason, should first be corrected and reasons for

the poor quality analyzed to eliminate the cause. The analysis

would automatically indicate the responsibility for tne discrepancy.

The Manual established a general pattern for gatherixi ,,

analyzing, and reporting information concerning the quality of

products. Each activity, because of local peculiar characteristics,

was authorized to apply these procedures to conform with local

conditions, but it was desirable for all to adhere to the basic

concepts and principles contained in the Manual so that there

would be uniformity in the techniques applied. The closer the

Manual was followed, the cetter would be the comparison of data

and exchange of information concerning the quality of products

between the activities.

Objective of the Program

The objective of the Quality Control Program was to pin-

point problem areas and provide sufficient factual information to

 BUREAU OF AERONAUTICS BUAER 521L.1
13 Aug 1959

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 33

which management could make decisions and reply. i ho implementa-

tion of the program ttaa designed to;

1. Improve quality and reliability of material.

2. Aeduce costs.

3. Minimize production problems and prevent similar

occurrences.

4. Improve inspection and processing methods.

5. Stimulate quality and cost consciousness,

6. Assure product reliability by Increasing knowledge and

improving work processes to meet production schedules with

dependable units .3

Scope

Conventional statistical quality control methods were only

applicable to an Overhaul and Repair Department In certain special

cases. As a result thifi jraa was developed on a fen oasic

principles such as improvement of product reliability, reduction

of costs, the improvement of supervisory skills, end the renewal

of employees pride of accomplishment.

Organizational and r'unctional Relationships

The quality Jontrol i

J
ronra:i provided factu:.L Information

on quality of workmanship and product to management . Slnoe the

vouality Control function Mae that of a staff, the responsibility

for producing quality products remained with the Jhops Group.

3loid . , p. 3.

4 Ibld ., p. 3.
 5

34
Paralleling the fundamental responsibility of the Shops

Group in this regard, the Quality Control Group ascertained that

workmanship of production personnel met applicable specifications,

that causes of poor workmanship were determined, and that such

information was reported to appropriate levels of management.

a close coordination of production and inspection pro-

cedures Mai necessary to as cure the meeting of schedules with an

acceptable product. Shops Group and Inspection "roup personnel

shared the responsibility for high productivity on one hand and

hi \h quality on the other.

Progressive inspection and correction of discre-

pancies should he performed simultaneously, in
order to avoid reprocessi, bile at the same
time progressive production improvements should
De instituted to avoid repetitions of discre-
pancies, wince the Quality Control Group is a
service organization for the Shops Group, it
should conduct inspections in a manner which does
not Jeopardize action schedules.

In harmony with thu. concept, the ,uallty Control

function becomes an essential element of the
production-inspection procedures. .At the point
where the inspection function is accomplished,
it is the responsibility of the Quality Control
>roup to complete the cycle in the communication
of Information concerning quality, cost, discrepant
material, and work which fails to meet specifica-
tions. Without such information, management
cannot hope to evaluate and control quality,
reliability, and cost Of their output.

Quality Control had to blend with the interests of the

total organization. Management had to realize that "quality was

everybody's business" and responsibilities for it existed in

every section of the organization. Furthermore, the quality Control

5 Ibid. , p. 4.
 35

Program encompassed prevention as well an correction of discre-

pancies, Responsibilities of the different Croups toward the

Quality Control Program were state! as

a, ADMIff lLv. _, .
-
.
I l
1H.0UP . Has re-
sponsibility for organized employee train-
ing. Takes corrective action on problems
of quality revealed by the Quality Control
Program and attributed to this group's
functional area of department responsibility.

b. MANAOEME 1 OOr-^-jLo axOUP Has responsi- .

bility for coordinating the desi;;n elements

for the agement Controls System including
the Quality Control Program* Reviews and
approves installation of these systems.
Provides statistical and oost data as re-
quired. Takes corrective action on problems
of quality revealed by the .uality Control
Program and attributed to this group's
functional area of department responsibility.

c« AERONAUTIC T j
,:. .1
- G-KOUP . Releases )

specifications concerning work to be pro-

cessed. Provides engineering services to
correct quality discrepancies including
those revealed by tbe uality Control Program*

d. QUALITY c >L, Determines inspection

requirements. Inspects work and materials
in accordance with applicable directives
and specifications. Conducts the operating
phases of the Quality Control Program to
determine cuases of substandard quality, to
initiate and follow-up on corrective action
If here other groups are involved, and to im-
prove the uality Control procedures.
, Takes
corrective action on problems of quality
revealed by the Quality Control Program and
attributed to this group's functional area
of department responsibility.

e. PliCPUCTICr: PLi.NNI. PUP Plans, pre-

j
j
.

pares, and releases sc. edules of work to oe

performed; performs the E&& function; deter-
mines material availability and requisitions
materials required. Following the reporting
of discrepancies, this :roup reschedules items
requiring reprocessir, takes corrective
action to eliminate problems of quality
attributed to the Production Planning Croup's
operations.
 .

36

f - PRODUCTION ENGI&ESRINQ- GROUP. Determines

"where work to be processed will be performed
by Identify in/, components of work, estab-
lishing rout in g sequences, process time,
skills, required materials and facilities,
and by setting labor standards. Provide!
revised production operation sequences and
plant layout as necessary to eliminate
quality discrepancies revealed by the u&litj
G on t r o 1 P r o 5 ra a

g. .a.Ir:OHiii''l 'i'^ ...'•;. rvjup Consolidates

.

correct log book information for completed

end products, Provides aircraft upkeep
services. Takes corrective action on problems
of quality revealed by the Quality Control
Program and attributed to this group's
functional area of department responsibility.

h. ariOro CaOUP .
Performs specified shop work
in accordance all applicaolo work
it:
specifications. lakes corrective action to
eliminate causes of substandard processes
such as faulty workmanship or unwarranted
• disposal revealed by the quality control pro-
cesses. Provides basic labor cost data on
the cost of correcting discrepant ier? .6

Functions of t he qu ality Control Croup

The Manual prescribed the following functions for the

Quality Control Croup:

1. The quality Control Group is assigned

responsicility for the implementation and
operation of the Quality Control Program,
.it bin the scope of this responsicility is
the maintenance and operation of the departmental
control point for all quality control in-
formation, the coor:ii at ion and collection
of necessary data, the assimilation, analysis,
interpretation and reporting of these data
and the preparation of quality control
directives. Tbene responsibilities are
vested in the lualltf Coordination office.

6 lb id* . p. 5.
 37

2. The assignment of this Quality Control

funotion calls for the ^uality Control Croup
to stimulate trie following lines of thought
and action in all personnel concerned:
a. Concentrate on analysis and correction
of proolems.
ecom« auditors of the practice of
quality rather than restrict functions
to inspection of th finlshe oduot.
c. Provide on-the-spot analysis of
defects, find the cauae and recommend
appropriate corrective action.
d. Feed-back faeti o defects for
correction cy cognisant groups*
e. Develop cost-cons cioua and submit
recommendations on ways and means to
alntaln or Increase quality at
reduced cost.
f. Recognize production, planning and
engineering problems, and vjherever
possible, assist in finding a satis-
factory solution.

3. This concept of full Quality Control ,ives

the Individual inspector and the .uality
Control Group a positive role in assist!;
other Members of the Overhaul tepair
i

Department toward attaint:. ^oali in quality

;

improvement, th eductlc eduction

costs and maintenance of production schedules.
It spells: our not only the res pom 11 ility of
the individual inspector for detecting and
reporting disci I fcerlal ;ut also
the authority and responsibility for reporting
other problems com! La attention which
.

raay lov.er the quality or Increase the cost of

end products.

4. To be effective a snta o_ u llty control,

inspectors must ce consistent >rting
discrepancies and .;ul^ no P luoe the intensity
of their inspection or change their reporting
practices unless so authorized or instructed
oy higher authority.?

The quality Control System "

The uality Control system was "designed to encompass the

principle of total -uality Control." Through use of this system,

' I'cid . , p. 6.

8 Ieid. 8.
, p.
 9 .

36

management based its decisions on facts pertaining to the complete

picture and not on fragmentary data.

The processing shop personnel* including the inspectors,

furnished initial information on the condition of items returned

for re-proc«ssin g, notion taken to prevent recurrent of similar

deficiencies was included in the report. Responsibility for

monitoring conditions causin -
items to oe returned for re-process lni

remained with the processing area, unless it was determined that

another specified shop or service group Was responsible

The Shops iroup and Quality Control 3-roup wen considered

the primary source of internal quality information* The data

collected furnished management with

1. In-process discrepancies which are defined

as material considered uon~acceptabls jy
inspection personnel during the routine in-
spection oi materials being processed, which
does not leot current applicable technical
directives or oontains faulty and/or incom-
plete workmanship.

2. He-processed items are those previously

accepted as satisfactory , which during subse-
quent use or test in another shop are found
to contain defective parts or workmanship and
are physically returned to the responsiole
feeder shop for correction*

3. Material classified as "Beyond Econo

w
!,
Repair" , or iJeyo: Lr which is being
scrapped oe cause of controllable causes such
as faulty workmanship, materials dama 3 ed by
abuse, unrealistic standards, etc. Defined
as Material Reviev Board actions.

In-rrpcess Discrepancies

'i ho primary responsibility for monitoring conditions

which caused discrepancies was assigned to the major Division

9 Ibid ., p. 8.
 39

Groups within the Overhaul and Repair Department by the type of

discrepancy found.

1. The Production Planning J-roup monitored discrepancies

caused by Control Centers, Transoortation, examination and kvalua-

tion and Manufacturing; Planning Branches.

2. The Shops Jroup determined when the required 'work viae

not accomplished to the extent necessary to assure operational

reliability of the product. It also determined when the work was

sub-standard.

3. The Aeronautical Engineering 3-roup monitored discre-

pancies caused by erroneous technical instructions and drawings*

4. The Quality Jontrol Jroup monitored conditions which

permitted defective material to pass inspection points.

Source Data for In-ir'rocess discrepancies

Inspection personnel originated appropriate discrepancy

documents whenever a discrepancy waa found. The shop inspector

and shop supervisor monitored the reliability of all discrepancy

documents and time changes Inspection personnel also originated

a separate document for each category of discrepancy in order to

account for responsibility when multiple discrepancies occurred.

3hops group personnel recorded the direct labor used in

correct in -
the discrepancy document. The completed document and

material affected were resubmitted to inspection for final passage*

The completed document contained all information necessary for

identification of the defective part, the cause of the discre-

pancy, the area or areas of responsibility and any other informa-

tion required to descrioe the reported defect.

10 Ibid., pp. 9, 10.

 40

All In-process discrepancy documents were forwarded to

the quality Jontrol Division. To denote the seriousness of the

discrepancy the inspector classified each discrepancy as either

critical, major or minor as defined cy .iIL-bTD-105. 11

rte -Processed Items 12

The Shops Group and/or quality Jontrol 3-roup personnel of

the Initiating shop were responsiole for as slating the Production

Planning Troup in preparing "tie-processed Item" documents. There

applicable, the Production Plannin ;
Troup personnel entered the

essential information on the re-process e<3 item document when an

init latin ; shop found it necessary to send items to a responsible

shop for testing, repair, or overhaul.

The process in.; shoo of the Shops Troup examined and

determined the extent of reprocessing required, and coordinated

with the in it latin.;; shop when it was required or desirable to

exchange technical Information. The processing shop conducted

test or repair necessary to assure the reliaoility of the item,

recorded the direct labor use], and entered an accurate, concise

statement concerning the condition found and action to be taken

to prevent recurrence. The shop indicated whether the defect

was its responsibility or was caused by an external shop. Upon

competion of the necessary work, the item was returned to the

control center for routing.

i:L
Ibld «. pp. 10, 11.
12 Ibid. , p. 11.
 41

The Quality Jontrol iroup of the Processing Shop reviewed

comments on the Re-processed item document for clarity, complete-

ness and accuracy and indicated concurrence or non-concurrence

with the statement made. In the event of non-concurrence, an

explanatory statement was entered on the Re-processed item document

To reduce errors in source information and assure maximum

accuracy of statistical data, the shop supervisor and the shop

inspector were charged jointly with the respond iDility for the

accuracy of time and technical decisions for all Re-processed

items.

Material Review Boards - -^

The Overhaul and Repair Department had control over the

costs of parts or materials damaged by abuse, extravagant use of

replacement parts, faulty workmanship or the unwarranted disposal

of repairable items. "Lower operating budgets dictate that all

possible savings must ce realized and the losses In this area must

be isolated and minimized." Therefore the iaterial Review Board

members were cautioned to exercise due consideration in the

surveillance over "scrap can" cits and pieces as well as the

larger and more expensive accountable items.

Jontrollable scrap consisted of "articles manufactured

by the Overhaul and Repair Department that do not conform to

current specifications; parts damaged through accident or care-

lessness; and/or the unwarranted disposal of parts which are

economically repairable."

Non-controllable scrap consisted of "articles or parts

which have become unserviceable due to normal wear and tear;
machine set up scrap and experimental material."

15 Ibid. p. 12.
,
 42

A Senior Material Review Board was activated am iposed

of representatives of cognizant Groups. This Board formulated

policies under which subordinate boards operated and rendered

decisions on the disposition of material hen a unanimous decision

could not be reached by subordinate Boards.

Subordinate Material Review Boards will

service the shops in each branch of the
Shops Group, Each Board snail be composed
of 3 members, one from each of the following
groups: quality Control Group (400) chairman;
Shops Group (1000) member; Production Planning
G-roup(500) member. The Shops Group member
shall be the cognizant branch supervisor.
Other members shall be drawn from the
corresponding level in their respective group
.segments.

a. Personnel from shops involved,

engineers or other appropriate personnel
ill se called upon as necessary in order
to assure that Material Review Board Decisions
are consistent with operating procedures and
technical directives.
b. Decisions of the subordinate Material
Review Board must be unanimous on th< Ls-
positlon of the material. A brief report
shall be prepared by the chairman and for-
warded to the Senior Material Review >oard
en the decision is not unanimous. The
Senior Board shall then make disposition of
the material, sign the appropriate documents
and forward the information to the Quality
Jontrol Division. 12 *-

Compilation and analysis of Source Data 1 ^

The concepts:

a. The individual Shops Group supervisor

should be recognized as a lr.e y man in the
uality Control system. The improvement of
quality be -ins with his leadership and
direction. It is for this reason that the

14loid. , p. 14.

iSlpid. , pp. 16, 17.

 43

quality Control System must not recognize

routine discrepancy source data as valid
information if it does not contain the
signature of a shop supervisor.

b. Processing Uhop (feeder shop) super-

visors and inspectors are responsible for
furnishing initial information on the
condition of items returned for re-process-
ing and the action necessary to prevent
recurrence of similar deficiencies.
uality Control will accept processing
shop statements and assign responsibilities
conoemin re-processed items on the strength
5

of this information.

c. When the processing areas indicate that

some other area or service group is at
fault concernin,- the reprocessing of an
item, .uality Control will assign the re-
sponsibility for further action to the
specified area or :roup.

The conr ilation;

a. In-process, Re-process and Haterial Review

Board action source data ill be reviewed
by Quality Control for completeness and
accuracy. Data containing apparent in-
accuracies will be returned to responsible
personnel for re-evaluation.

b. The Quality Jontrol -rroup workln in co-

operation with the Management Controls Group
manhour clerks should prepare appropriate
work sheets ay shop that will document a
progressive posting of man hours and the
discrepancy classification that were used
for the correction of In-process and Re-
process defects. The total direct man hours
used in the reporting shops should also be
posted, along with the manhours. is
latter posting is already an inherent aspect
of the Overhaul and Repair Department Manage-
ment Control System,

c. At the close of 8 selected reporting period

all manhour totals should be converted to
Dollar Costs by multiplying manhours by the
Overhaul and Repair average pay rates. Dis-
crepancy costs are divided oy total direct
labor costs and the resulting ratio is sub-
tracted from one and aultiplied by 100^. The
resulting percentage value, termed a '..uality
 .

44

Control Factor, will be a measurement of

qualitative efficiency within the Overhaul
and He pa i r a rt me n t
Discrepancy Labor Cost
1 — - X lOOfo z QOF (quality
Total direct labor cost Control
Factor)
Quality Control Internal .ie porta

The data contained in In-process, Re-process and Material

Review Board elements of the program was combined into one report

and published periodically.

The report defines the "Dollar Cost Concept"

into a ratio of discrepancy labor cost to
the cost of direct labor. This percentage
value, termed a quality Control factor
( ,..0. Factor) is used in all segments of
the Overhaul and Repair and will apply
equally well whether considering the dis-
crepancy rate (cost) per man, shop, branch
or division. It provides an accurate index
for determining the decree of management
action which should oe taken, 1°

Local Design Consideration

The Quality Control Program was promulgated at the Overhaul

and Repair Department v^uonset Point on December 15» 1959 and

followed the general pattern prescrioed ay the Quality Control

Manual. The following significant aspects of the manual were

included in the program:

1. The name of the Inspection 3-roup was formally changed

to the quality control Croup.

2. A Quality Coordination Office was established as a

staff office to the .uality Control Group.

3. The operation of the system to document discrepancies

and their underlying causes was vested primarily in the inspector
who initiated the source data upon which the system was founded.

4. Re-processing of work because of a discrepancy was

performed in accordance with existing production control
procedures.

16 Ibid., p. 17.
 45

5. Identification, collection, and tabulation of manhours

and costs associated with the re-processing of work because of
a discrepancy was performed in accordance with exist, in; raanhour
and cost collecting procedures.

6. Preparation and analysis of quality control reports

was performed by the quality Coordination Office.

7. Mana ,ement action to correct the causes of discrepan-

r

cies is vested in the line organization directly responsible

for the discrepancy.

8. Overall monitoring of the system design and the

necessary integration considerations with other management programs
is vested in the Management Control Oroup.^7

Collateral He porting;

In addition to the basic system and the oeriodic reporting

of In-process, He-process, and Material Review Board information

the duality Control Program consisted of the situation type re-

ports which were developed on a non-routine basis. These reports

are found in Appendix B.

^10 id* . p. vii.

 GHAPT ! . V

SUMMARY.

A \i lity Jor.trol Program provides a

systematic and efficient -net hod of gather-
ing and maintaining information on the
quality characteristics of products, the
source and nature of defects, and their
immediate impact upon the current opera-
tions. It peralte decisions to be based
on facts rather than intuition or memory.
It will provide comparison data which will
be useful long after the details of given
periods are forgotten* ^ince Manageaent
is responsible for corrective action, the
success of the quality Control Progran
depends upon the manner in which they
utilize the information riven them. Any
successful applloatlon requires the con-
certed effort of management. Teamwork
must be cultivated and achieved before any
substantial benefits can be obtained.-*-

The Tentative Manual for the Inspection and Survey

Department af 194-5 indicated that ,,T

hile quality is of primary

importance to the inspector, he must realize also that the

quantity of aircraft completed. •• is of equal importance and he

must cooperate in every respect to maintain production."

"hen the Inspection Department became a part of the

Overhaul and Repair Department In 1943 , little waa done to

J
-lDld . . p. 3.

46
 47

establish communications along the line of a quality reporting

system. Inspection's mission was merely to determine "the quali-

tative result a of production operations and, if sub-standard,

recommend to appropriate levels of management that corrective

action to be taken,"

The inspector was at all tines "in the middle" on the

question of quality. On the one side was the worker who expected

him to pass the work, quality or no quality. On the other side

was the "Fleet" represented by the pilot who expected him to pass

nothing out the very beat workmanship. And on a third Bide was
•a ;e merit with the desire for the greatest production record,

the finest reputation for quality of product, the lowest cost per

unit produced, and above all a "happy ship."

It frequently happened that the only time that concern was

shown in the quality area was when the rejection rate reached

unusual proportions — when aircraft stopped flying or engines

failed to roll off the assembly line on schedule.

through the inflection methods devised, Overhaul and

Repair Department's Management maintained a measure of control

over quality, out with the ^reat technical advances in overhaul

procedures of the last decade it

found that the product quality would

frequently drift to an extreme before it
was called to the attention of aanage-
ent« Adverse quality trend:.-; were not
detected until they had reacued critical
proportion . r was a need for keeping
.

a finger on the pulse of production at

the working level in order that variations
in product quality would be detected at
the earliest possible moment and appropriate
action be taken to correct abnormal condi-
tions at their source. For many years
 43

inspect ore have charted and tabulated

various kinds of discrepancy information.
Very few of these efforts, however* were
related to overall quality and cost
considerations. xhe need for quality con-
trol on a departmental scope wa3 recognized
by the Bureau ox aeronautics, and prototype
program were sponsored at several activities. 2
Quality Control concerned the management principle that

management's authority is not completely

exercised until it has checked compliance
with its orders through the use of controls*
Control is the process of assuring that per-
formance corresponds with plans, standards
are the neasureaents used for control. Vhcn
orders are aeeoopanied uy instructions,
performance is being guided by the standards
contained in, or suggested oy, the instruc-
tions, rhese stated or implied standards
can be used to seasurc or control perform-
ee. Control provides the means for
determining whether or not, and to what
extent, all the suudivisions of the organi-
zation are performing the functions assigned
to them, and in the manner provided. It is
a form of management inspection wnich
measures performance against established
standards, effective controx. is practically
unworkable under any system of divided
responsibility. Centralized management
control of properly grouped and delegated
functions is the direct in principle, while
;

integrate:' responsibility is the tool by

which control is effected, standards are
necessary for control, and controls are
necessary for balanced ana coord ieted
z lent. 3 (

The Purpose of Control

Control was established as an aid to management in making

correct decision in a shorter tire than it has in the past.

Time is' of the essence for action cased

on controls. Since control has a dis-
tinctly scientific approach, it is a
^

2 Ibjjd p. 1.
. ,

"lidnry G. Hodges, .'lana ement-rririclplej

, practices,
ProbJLems, (Cambridge, Massachusetts: The Riverside I'ress, 1956)
I, 71.
 49

keener management tool than the methods

which it replaces. Control is preceded
by a collection of the facts bearing on a
specific problem; these facts are passed
on to management with recommendations
based On their analysis and synthesis.

J octrois are the guidin factors of easi-

;

ness; they are the warning signals for

management; they are one of the important
bases for scientific management. Because
they are ail of these, they are an essential
substitute for rule-of-thumo decisions.
Properly planned and used, controls are
the indicators or acceptable standards
for production, finance, sales and numerous
other activities. C\ period of time
thejf mark out the path by which the- present
situation waa reael sd 1e any activity suc-
Jected to their restraints. They supply
experienced human Judgement with an
opportunity for charting th< th ahead
by lndioating the means and methods for
following that >ath**

The Mana ;ement bontrol center

The introduction o£' the ement Control system into

Overhaul and Repair rtment organization Integrated the use of

all business techniques for controlling movement, manpower per-

formance and cost of work. rhis was a cer.trali2.ed control

center developed to bring all control activities into a single

unit and "improve the balance and coordination between staff and

line functions, thereby minimizing unhealthy rivalries and

duplication of effort and, at the same time, affecting operating

economies."

Mans ;ement Control had been revised

to find out the facts and recommend action

to management. Its activities are those
of an advisory staff, with no line powers

*Ibld.. p. 159
 e 5

50

of action. It aids raana jeaent cy analyzing

its findings and suggesting remedies whara
faults are discovered. It aids com munica-
tions —
whan executive members of the line
so order —
Dy issuing directives in
management's name. Planning, forecasting,
methods-engineering, and internal audits
(ay all oe considered phases of the central
control section's duties.

Mana ;e me n t ,.i e rv i c

The rendering of integrated 'Management Service" by one

segment of an organization to all of its segments has, over the

years, ..een called liana ement En glneerin :., Managaaant Control,

Industrial Management, management Staff, Cost Control, etc. The

new Overhaul and aepair Department organization featured the

identification of this single segment at the "Mana ;ement Controls

Group."

The Management Controls .rroup was assigned the full

responsibility for the design and installation of the '-ement

Control System. r

uhe exercise of this responsibility was not con-

fined to the limits of the Management Controls Croup, but also

included certain technical aspects of aana ;ement control eertinent

to the design and installation of the System. In general, these

technical aspects were identified as those which make the inte-

gration of all Mana ;ement Improvement Programs possiole and which

linked the various points of responsibility for thee programs.

Specifically, such technical aspects were:

1. The design or the format of all forms,

records, and reports for identifying
and recording detailed and group data.

5 Ioio. , p. 170.
 51

2. The scheduling of the System's Installa-

tion uy program and area.

3. The establishment of code series for

identify in. 5 programs and worli unit
process in ;.

4. The conduct of training sessions or

seminars on the System s operation.

5. The preparation of all graphic or narra-

tive publications pertaining to the
design, installation and operation of
the Cystem.

The Mission of the Management Controls G-roup:

Prepares organisational charts, policy and

functional statements, and all departmental
instructions (.lay Direct ires System) on
responsibilities and procedures for the entire
artment and reviews and certifies the
proper alignment and adequacy of all
departmental supervisory position descrip-
tions. Prepares plans and pre-survey and
post-survey instructions, including reports
thereon specified by internal authorities
or conducted external authorities. Jon-
ducts training sessions and seminars on all
phases of management controls. Prepares
all illustrative or narrative publications
pertaining to conferences, the Q& Department
Management Control System or any special
project concerned with departmental manage-
ment controls. Desi ;ns arid installs the
Q&d Department Management Controls Cystem,
which integrates all Management Improvement
Programs through the application of improved
business administration techniques. Designs
forms, records, reports and code series used
for identifying, routing and reporting
management facts and data and the procedures
relating thereto* Insures effective utiliza-
tion of office equipment which is used to
create, process or store departmental records,
analyzes oersormel ceiling requirements and
recoramnds to the .assistant Overhaul and Repair

^Management Control System Manual, inter Instruction

5200.11, October 10, 1956.
 52

Officer the allocation thereof to organi-

zational units* Prepares the departmental
master budget, develops all supporting
financial accounting and budgeting procedures
for the entire department (including the
administration of regulations and" the pre-
paration and maintenance of monetary reports
and records pertaining thereto), reviews
and certifies the availability and propriety
of allotment or project requests or ex-
penditures, and renders, timekeeping and
related clerical services to all production
shops. Evaluates performance accomplishment
of all segments of the organization, prepares
internal performance summary reports for all
points of departmental supervision and external
reports on departmental performance and
progress | investigates sub-marginal performance
trends and charts performance accomplishment
for all Be jmenta of the organization."

Management Views quality Control

The 3ureau of Aeronautics considered management's role

in the Quality Control field of paramount importance. The quality

Control Manual stated that

Nana jement should be vitally concerned with

the weekly, monthly or quarterly reports on
in-process discrepancies, re-processed dis-
crepancies and action of the Material Review
•ards. i± careful analysis by management
should be nude of the reports submitted and
management should watch:
- j
v

a. The rejection rate and cost of discre-

pancies within each shop or area.

o. The nature of the defects being found,

c. The group held responsible for the

corrective action.

The reason or apparent cause for any

d.
appreciable ohan &e in the percentage of
later ial being rejected.

'Overhaul and Repair Department, ...uonset Point, Instruc-

tion Note 5451, February 5, 1957.
 9

53

e. other facts cq. oeraing the quality

of products and production costs of whloh
nanageaent should be advised.

f. The extent and value of nater'ial being

scrapped due to faulty handling, sub-standard
workmanship or other causes."

From the viewpoint of management it is

essential that honest and objective acceptance
of responsibility be stimulated and achieved
throughout the organization cefore the basic
cause of discrepancies can be revealed and
corrected.

'hen considering the quality level of pro-

ducts, top management must place emphasis
00 the "Ions haul" as well as the "here and
now". The importance of dealing with
individual quality problems must not minimize
the importance of recognizing that the control
of quality is basically a lonq range program,
and that it involves the work of the entire
organization ratter than an individual part
or an individual worker. The primary objec-
tive of a quality control program is to find
and correct conditions causin defects rather 5

than tolerate the correction of defects after

they have occurred.

Line Officer Responsibility

Line officers had the sole responsicility for taking

corrective action "when reports of the Management Control G-roup

indicated unsatisfactory findings* However, here, too, the Line

learned to look for advice from the Management Control C-roup which

was almost as close to the staff and operating personnel as their

own Managers, An important point about corrective action under

management control was that the section might often correct

troublesome conditions by making direct suggestions to organiza-

tion segments.

"Quality Control Manual for Overhaul and Repair Depart-

ments at Naval and iiarine Corps ^ir otations, BuAer Instruction
5214.1, p. 19.
9 Ioid
. , p. 19.
 54

A prominent service of the Management Control Croup was

•ivin ; aid and advice to all department B and their suoordinate

units. nlthou^h this phase of control was not so directly v it- isle

to manage merit as were faults brought out in the survey reports,

any improvement in the smooth operation of the Overhaul and repair

Department was likely to he oooerved by the Overhaul and Repair

Officer.

quality Control Principles

Armand V. ^ei.^enDaum in his book' c uallty Control-Principles

Practice and administration lias developed thirty important prin-

ciples of .uulity Control. Hit. rinciples have been included

in Appendix C.
 "

GHaP2 SR VI

COKCLUSIOB

The foregoing history of Inspection an I

uality Control

In the Overhaul and Repair Department at •..uonset Point presented

a study of scientific management In evolution in a Navy commercial-

industrial plant, .he nev* quality Control Program was devised

to fit the need of modern management through the Management

Control System with the bureau of aeronautics emphasizing local

management's need for cieepenln;; interest in The subject.

The ..uality Control Manual stressed that mana3ement "should

be vitally concerned with the weekly, monthly or quarterly reports"

and that "from the viewpoint of management it is essential that

honest and objective acceptance of responsibility he stimulated

and achieved throughout the or ^nizat ion.

Reporting procedure was the basic difference between the

former Inspection organization and the newer quality Control

Program. Ihe nei program established a uality Coordination

Officer to "keep the score" and pass the results along to the

i-iana^ement Controls Croup for further amplification and rout in g

to management as well as other co ;nizant Croups. Under the old

system much leeway was -,iven management In designating the

55
 36

inspection reporting procedure. Under the new system the report-

ing system had oeen designated from outside the Overhaul and

Repair activity and the rejports were available for external as

well as internal consumption.

The introduction of the Management Control System indi-

cated a shift to a controller function in Overhaul and Repair

Departments. It may serve as in impetus to wider acceptance of

the Controller function into Navy activities. The Management

Control Officer may well be called the Overhaul and Repair

Department's Controller.

This study has not concerned itself with inspector morale

which has deteriorated to a critical decree since 1954 when the

inspectors were taken out froa under the Classification uct in

Civil Service and put under the Wage Board Schedule. Specifically

this meant removin them fron the category of salaried employees

and changing than to the status of per diem employees. A return

of inspectors to salaried employee ranks would strengthen the

competence of inspection workmanship within the Quality Control

Grroup.
 APPENDIX a

EXCERPTS FROM A 1 [ tIM REWORK IHSTRUCTIQir1

Interim Rework... Is a special rework performed at Inter-

mediate period:- within the service tour of: (a) aircraft operating

or the "calendar month" service tour concept; and (b) aircraft

under the "cieratin; month" service tour concept when such

aircraft are currently operating on or planned to operate on a

lengthened service tour in order to meet operating requirements.

The work to be perforned will include: (1) examination of aircraft

to the depth necessary to reveaJ (discrepancies that must be

corrected to permit satisfactory operation for the period specified

by the major operating command; (2) incorporation of changes and

compliance with bulletins (determination of those to be installed

will recognize availability of materials); and, (3) correction

of discrepancies resulting from the examination and those specified

by the operating unit.

In the broad perspective aircraft in the Interim Rework

Program will normally receive such rework twice during the first

service tour of thirty ««eight Months and once during the second

tour, f'or planning purposes this program is based ( generally, on

a twelve calendar month basis for the first tour and a fifteen

^aiureuu of Aeronautics Maintenance representative,

Eastern District, Instruction 5442.1 dated 9 June 1958.

57
 58

or eighteen month oasis during the second tour. The o derating

interval of the aircraft is very flexible and the aircraft do

not necessarily have to be turned in specifically at twelve

months, Controllin , custody of the aircraft remains with the

major operating command.

The policies governing Interim rework are not intended to

limit the amount of work to a fixed number of aan hours or amount

of money, but rather to allow flexibility of work to be performed

to remain with the custodian and the Bureau of Aeronautics

Maintenance Representative to accomplish the work re quired. An

excessive "out of service time" will void the concept of interim

rework and impose unacceptable limitations or the operating

activity.

"ork to be -.ceo aollshe.i oy the overhaul i-n"1

iepalr

Department

(1) Preserve engines on aircraft.

{2) Drain and pur^e aircraft fuel system.

(3) Correct specific discrepancies outlined on the

work request submitted by td o crating
activity.

(4) Incorporate all requested aircraft service

changes for which aaterial is available.

(5) .accomplish anini it ion of the airframe,

control surfaces and flight controls, to
the depth necessary, which shall insure
continued safe operation of the aircraft for
an additional twelve nonths provided it
receives the normal squadron maintenance
during this period.

(6) Correct discrepancies uncovered durin

processing (as agreed upon with the liaison
off ioesr).
 59

(7) Assist in correction of fli ;ht test dis-

crepancies, iven though this work is not
included in the thirty days "in process
time" limitation, it shall be accomplished
expeditiously to insure early return of
the aircraft to the operating activity.

(8) Refuel (fuel and oil) arid de pre serve engines

on aircraft at the completion of Interim
Rework,

(9) i-round check aircraft after completion of

Interim Rework,

Inspection Criteria

(1) Ihe quality of the inspection will oe as

lo^ic dictates cut v ill attair the proper
etandards lxi order for the ir craft to
o erate satisfactorily for the period prior
tu the rjext rework or overhaul.
 APPENDIX 3

COLLATE l&L REPQRXBKJ 1

Part A. General

In addition to the basic system and the periodic reporting

of In-process, Ke-^rocess and Material Aevie; Board information

the quality Jontrol Program consists of the situation type reports

which are developed on a now-routing basis. Following is a listing

of these situation type reports, each of which is described in

a subsequent part of this chapter.

a. Product quality audits .

°' quality J heck on ..easurln g Devices .

c. Material Reliability deports .

&• Special Investigations and projects.

e. Customer Discrepancy deports .

Part B. Component ...uality audits

a. ( uality Audits should be conducted on major components

to evaluate the quality level of craf taans hip and the effective-

ness of inspection procedures exercised when the component was

processed.

b. Quality Audit components should be selected at random

at a :oint following final acceptance inspection and prior to

L

use in the next operational sequence • Regular intervals for the

^Quality ..Control Manual for Overhaul and Hepalr Depart-

ments at Naval and Marine Corps Air Stations, BuAer Instruction
5214.1, pp. 20, 31, 22, 23.
60
 61

conduct of a quality Audit of random components should be

scheduled, "hen selecting an item for audit, care should be

exerciser] to Insure that the audit is coordinated with other

i- terested personnel so that interruptions of production flow is

kept to a minimum.

c. The deptn of disassembly and audit will depend on the

type of component be in-; examined and the extent of evaluation

deemed necessary to reach positive conclusions on the quality of

the component bein^ audited.

d. The Quality Control Croup selects the item to be

examined and conducts the Quality Audits. The uallty Control

analyst determines, disassembly and audit procedures; classifies

all defects found; and coordinates the results of the audit with

Shops Group and Inspection supervisors immediately concerned.

e. The quality Control analyst prepares a report in rou ;

;h

draft which includes a description of the defects found; the

classification of each defect; and the corrective action taken to

preclude recurrence of similar discrepancies, .appropriate re-

commendations are also included in this report.

f. Ihe Quality Control Croup completes the Quality Audit

Reports for distrioutlon to cognizant personnel,

;. The Chops Croup provides personnel, tools and space

necessary to perform the work required.

h. Oefects are classified as follows:

Class I defect . A serious defect which

could cause the item to fail or malfunction
before the next periodic overhaul or
regularly scheduled -naintenance period; and
ich can he found only by disassembly or
partial disassembly of the item.
 62

Class II defeat . A serious defect which

could cause the itea to fa 12 before the
next overhaul or regularly scheduled main-
tenance period, bat Li readily detectable
thout disassembly 4

Class III defect A :ninor defect which

.

would not cause failure or ma If unction prior

to the next overhaul or periodic maintenance
period, hut is so indication of carelessness
or lack of skill used in processing the item.

Part C. Measuring Devices-- ^uality Check

It is the responsibility of the Quality Control Group

to conduct quality checks of all test equipment, measuring devices

and tools.

Part D. Material Reliability Reports

Overhaul and Repair departments are participants in the

Material Reliability Program (MRP), In addition to contributing

information to the program they receive data concerning the

reliability of the products they process.

To take the fullest advantage of the routine information

provided by the Naval Air Technical oervlce Facility (NATSF),

Overhaul Repair irtments must recognize that the Reliability

Program le based primarily on the collection, of mass data, and

that many of the reports processed do not contain information of

Immediate or significant importance. Each report must be handled

in accordance with its apparent value and its relationship to

other knoun facts.

1. Overhaul .opair Departments receive information

from the RATSF in the form of punched cards, microfilms and. the

contents of the Reliability Digest,

2. The data on punched cards must be converted to visual

information before it can be used. This is accomplished by

 63

processing the oarda through standard SAM machines to obtain a

tabulated list in ;. .he "tan run" provides information on the

service life of each item and La used in conjunction with the

microfilm reports from to establish the extent of problem

areas already under invest i -at ion by others aa indicated on the

microfilm reports. This analysis provides the point of departure

for additional investigation of items on the tabulated listin .

3. iill microfilms must be reviewed to determine if they

provide information which demands further investigation,

4. Data process oy the Quality Control droup will provide

the following information:

a. Indications that Overhaul and Repair pro-

cessed material is not performing to the
standards re uired while in the custody of
fleet activities.

b. Undesiraole conditions which can ce correc-

ted before they reach epidemic proportions.

5. Ihe receipt of data indlcatin ; either of the two above

conditions ill af for .: oasis for a review by cognisant G-roups

of nractlces and policies for conformance with applicable current

directives.

Part E . special Investigations and i-ro.jects

Overhaul and Repair Departments are frequently confronted

with complex problems concerning the quality of products which

require accumulation of information from several sources and which

must be approached with an unbiased point of view. Pome of these

proclems may be resolved by a single invest igat ion while others

may require lengthy monitoring action involving several investi-

gations and a large number of observations.

 64
eeial investigations and projects will normally be
initiated oy management to obtain additional information not

covered or furnished in periodic Quality Control reports, and nay

range froa finding the cause of a prematura failure of a single

Itea to the faulty handling of Bate rial throughout the Overhaul

and Repair Department,

r
-ben the u :lity Control Iroup la assigned a special

Investigation or project, Quality Control personnel Mill research

the problem to the extent necessary to assure that all of the

pertinent facts are exposed. Where it is apparent that corrective

action is required cognisant supervision is advised.

.any corrective action taken during the investigation to

correct the problem and/or corrective actions pending, will become

part of the report. The report \ ill outline the problem; findings

during the investigation; corrective actions put into effect;

corrective actions pending] and the recommendations of the

Investigator.

Part F. Customer bl sere pane y sports

Customer Discrepancy reports include the miscellaneous

information concerning the equality and reliability of products

produced by OAR Departments. They consist of 3UASH Messages,

direct communications with operating activities, information from

such publications as: accident Reports; flight Landing Incident

or Ground Accident Report (FLICJA)j and Reliability Digests.

These reports provide Overhaul and Repair Departments

with valuable information on the over-all reliacility of

 65

finished products when operating under actual service conditions.

The effectiveness of the Overhaul and Repair Departments' quality

bontroi Program can ue neasured by the frequency and content

of these reports.

Each report should be investigated in accordance with

its apparent urgency and. importance, and precautionary or

corrective neaeurea initiated as necessary.

 APi>Bl DC C

FEXOENBAOM'S PRINCIPLES OF QUALITY CONTROL1

a series of "principles" has begun to simmer out of

industry's experience with Modern Quality Control.

An interpretation of these principles la presented below.

It is offered us a summary of the administrative point of view

tov.ard quality control. It may also be used as a list of

operating rules for organising uality-control programs.

1. Quality control nay be defined as

An effective system for coordinating the

quality maintenance and quality improvement
efforts of the various groups in an
organization so as to enable production at
the most economical levels which allow for
full customer satisfaction.

2. In the phrase "quality control" the world quality does

not have the popular meaning of "best" in any absolute sense.

It means "oest for certain customer conditions." These conditions

are (a) the aetual use and (b) the selling price of the product.

Product quality cannot be thought of apart from product cost.

3. In the phrase "quality control" the word control

represents a management tool with four steps I

fArmand v. FSlgenbaua, quality Control-Principles Practice, .

and Administration (New York: McGraw-Hill book Company, Inc.,

,

1951) I, 1-5.
66
 67

a. .jettln- quality standards.

b. Appraising conformance to these standards.

c. Acting when the standards are exceeded.
d. Planning for improvements in the standards.
4. several of the ;uality-control methods have oeen

carried on in industry for many years. What are new in the

modern approach to quality control are integration of these

often uncoordinated activities into an over-all administrative

program for a factory and the addition to the time-tested methods

used of a few ne-.» technique:', which have been found useful in

dealing ith and thinking about the Increased emphasis upon

precision in manufactured parts.

5. Modern Quality Jontrol is an aid to, not a substitute

for, the q;ood engineering designs, good manufacturing methods,

and conscientious inspection activity that have always been re-

quired for the production of hi^h-quality articles.

6. The fundamentals of quality control are basic to any

manufacturing process, and the tools have been and can be used

in Industries ranging froa radios, electric motors, and turbines

to bakery, drug, and brewery products, although the approach is

somewhat different if the production la Jon shop rather than

large quantity, or small components rather th 3 urge apparatus,

the same fundamentals still obtain. This difference in approach

can be readily summarised: In mass-production manufacturing,

they are a natter of controlling the process.

7. The details for each quality-control pro jram must be

tailored to fit the needs of individual plants.

 |

68

8. The core of the uality-control approach is control

of product quality during the process of design and manufacture

so as to prevent poor quality rather than to correct poor quality

after an article has been produced.

9. benefits often resulting from Modern Quality Jontrol

progra ts are improvements in product quality and design, reductions

in operating costs and losses, improvement in employee morale

and reduction of production-line bottlenecks. By-product benefits

are improved inspeotion set hods, sounder setting of time standards

for labor, definite schedules for preventive maintenance, the

availability of powerful data for use in company advertising,

and the furnishing of a factual basis for cost-account in ; standards

for scrap, rework, and inspection,

10. dost reductions are possible results of quality control

for tvjo reasons. (a) Many of the "costs of quality" result

from expenditures to correct mistakes or to police them, (b) In-

dustry has often lacked quality standards. It has therefore

unreal Is tloally tilted the scales in the balance between the

cost of quality in a product and the service that the product

is to render.

11. Present-day factors affect in ; industrial product

quality have developed around two major trends:

a. Toward customer demands for greater

precision in the articles tney
purchase —a technological matter.

b. Toward the wide distrlDution of re-

sponsibility for product quality among
a number of line, staff, and functional
groups in contrast to the previous era,
 61

when this responsibility was largely in

the hands of the factory foreman; and
toward the substitution of green operators
in once-stable work /-roups —
a matter of
human relations.

12. These two trends (see paragraph 11) can be handled

by Modern Quality Control so that

a. Greater precision, involving more

frequent ana more accurate quality
measurement , may be treated by practi-
cal common-sense use of the "science
of measurements" - statistics.

b. Treater distribution of responsibility

for quality may be treated uy new
methods of organizing for quality
control.

13. The factors affecting product quality may be divided

into two major groupings! (a) the technological, that is,

machines, materials, and processes; (b) the human, that is,

operators, foremen, and other factory personnel. Of these two

factors, the human is of the greater importance by far. Quality

control la primarily, therefore, a natter of human relations.

14. Quality control enters into all phases of the indus-

trial production process, starting with the customer's specifi-

cation and the sals to him on through design engineering and

assembly and ending with the shipment of the product to a customer

Who is satisfied with it.

15. Effective control over the factors affecting product

quality demands controls at all important stages of the production

process. These controls may be termed the jobs of quality

control, and they fall into four natural classifications:

 70

a. Rew**design control.

b. Incoraln ^-material control.

c. Product control.

d. Special process studies.

16. New -design control involves the establishment and

specification of the desin cost-quality and oerf ormance-quality

standards for the product, Including the elimination or location

of possible sources of nanufaeturlng troubles before the start

of formal production.

17. Incoming- material oontrol involves the receiving and

at oo king, at the aost economical levels of quality, of only those

parts the quality of which conforms to the specification

requirements.

18. Product control involves the control of products at

the source of production, so that departures from the quality

specification can be corrected cefore defective products are

manufactured.

19. Sped- 1 process studies involve investigations and

tests to locate the causes of defective products and to determine

the possibility of improving quality characteristics.

20. Statistics are used in an over-all quality-control

prograa whenever and wherever they may be useful, but statistics

are only one part of the over-all administrative quality-control

pattern, they are not the pattern itself. The four statistical

tools that have come to ce used in quality-control activities are

a. Frequency distributions.

b. Oortrol charts.
 71

o. Sampling tables,

d. Special methods.
The point of vie'., represented by these statistical

methods has, however, bad a profound effect upon the entire area

of Moderr iity Control.

23. i'ne statistical point of vie.- in Modern ^uality Control

resolves essentially into this. Variation In product quality

must be constantly studied — within batches of product, on

processing equipments, be1 different lots of the same article,

on critical quality characteristic- irda, TUXa variation

j best be studied by the analysis o~£ samples selected from the

lots of product or f produced by trooeseln

eqipments.

22. an important feature of i lity Control is its

positive effect in stimulating and in building up operator re-

sponsibility fo interest in product quality.

23. Necessary to the eucoesa of quality control in a

plant is the very intangible Out extremely important spirit of

"quality-mindedness," extending from top aaa > ;e tent right to the

men and women at tl nch.

24. "
Uatever to j be Lew about th lity Control

pro ;r ^

for i
i ills suet be sold to the entire plant organiza-

tion eo ss to obtain its willing acceptance and cooperation.

Participation by mmj members of the factory organization in

developing details of the quality-control 5 is very

desirable.
 72

25. A plant quality-control program must have the complete

support of top management. ith lukewarm management support,

no amount of sellin *
3
t > the rest of the organization can be

genuinely effective.

26. Management must reco ;;nizc at the outset of its Modern

-lity Control program that the tool is not a temporary cost-

reduction project. Only when the inefficiencies represented oy

the cost reductions are out of the way can the quality-control

program take over its lon^-ran^e role of the »nent control

over quality.

27. Organization-wise, quality control is management's

tool for dele^atin^ authority and responsibility for product

quality, thus relieving itself of unncessary detail, yet retaining

for itself the means of assurin* that quality results will be

satisfactory. The type or organization required to implement

this program is a staff ,rouo reporting directly to top

management.

28. From the human relations point of view, the quality-

control organization is both

a. A "channel of communication" for product-
quality information araon^ all concerned
employees and groups.

b. h "means of participation" in the

over-all plant quality-control program
by these employees and groups.

The quality-control organization is a means of breaking

down the attitude so ;etlmes held ay factory operators and

functional specialists that "our quality responsibility is so

 73

small a part of the whole that we're really not a part of the

plant quality-control program or important to it."

29. The duty of the quality-control staff is that of

act in; In an advisory and a control capacity. It usually does

not have any responsibility for the actual quality-control

activities, which are carried on by groups such as Engineering

and Manufacturing.

30. Modern quality Control programs should be allowed

to develop gradually within a given plant. It is often found

Hiss to oclect one or two troublesome quality problems, to

achieve successful results in attacking them, and to allow the

quality-control program to grow step by step in this fashion.

 BIBLIOGRAPHIC

Books

j/ei^enbaugi, a«V #? quality Control Principles, Practice, and

,M ninlst ration . New York: McGraw-Hill Book Company, Inc.,
1951.

Hodges, Henry M. , Management , Principles, Practices, Problems .

dost on: Houghton ilifflin Company, 1956.

Navy Manuals and If... struct Ions

Bureau of Aeronautic a Maintenance Representative, Eastern

Lstrlet, Instruction 5442.1, June 9, 1958 on Interim
Rework*

;eaent Control System Manual, BuAer Instruction 5200.11,

tober 10, 1956.

Overhaul and Repair Department, .

u uonset Point, Visitors Muide,
October "15, 1950.

Overhaul and Repair Department, -uonset Point, Instruction Mote

5451, February 5, 1957.

uallty Control Manual for Overhaul and Repair Departments,

tiAer Instruction 5214.1, August 13, 1959.

Tentative Manual for th€ Inspection and Surrey Department on

Naval and Marine Dorps air Stations, January 20, 1945.

United States Haval Institute, Annapolis, Maryland, 1957.

Air Operations in Naval farfare Heading Supplement.

Unpublished Material

Interviews with Inspection Personnel at the overhaul and Repair

Department, .uonset Point, Rhode Island.

74
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