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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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Suggested Citation:"Technology." National Research Council. 1971. Management of the military facilities procurement program. Final report. Washington, DC: The National Academies Press. doi: 10.17226/28198.
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A second method o f using outside assistance i s that o f T i t l e I I Inspection The Departments have used T i t l e I I t o a l i m i t e d extent i n the past, but have e:q)enenced d i f f i c u l t y i n defining s p e c i f i c tasks to be~ undertaken The Committee believes that T i t l e I I should be encouraged but not r e l i e d upon as a substitute f o r inspection c a p a b i l i t y at least u n t i l the technique has become more widely understood and has been demonstrated as capable o f producing the desired results The fee f o r these services understandably should be r e a l i s t i c a l l y and separately negotiated More outside expertise, therefore, can be e f f e c t i v e l y and e f f i c i e n t l y employed m the areas of supervision and inspec- t i o n , and costs f o r these functions can be r e a l i s t i c a l l y assessed and charged against the projects f o r which they are incurred Accordingly, i t has been recommended th a t each F a c i l i t i e s Procurement Agent maintain the p r i n c i p a l responsi- b i l i t y f o r assuring q u a l i t y of construction m behalf o f i t s m i l i t a r y Department, but that these o f f i c e s exercise every opportunity to procure supervision and inspection services from outside sources m l i e u o f maintaining and using in-house personnel 2 6 TECHNOLOGY The Committee was able to identi:fy a number o f a c t i v i t i e s w i t h i n the Office o f the Assistant Secretary of Defense ( I n s t a l l a t i o n s and Logis- t i c s ) and the three F a c i l i t i e s Procurement Agents which i t would cate- gorize as contributing t o the advancement of technology Some o f these a c t i v i t i e s are labeled as ireseardi, and others as engineering studies and investigations and experimental programs There i s l i t t l e question o f the need f o r such a c t i v i t i e s I f the Department i s t o function e f f e c t i v e l y i n the procurement of f a c i l i t i e s and as a major real property manager, i t must have available t o i t the means t o explore, develop, and experiment, and t o ensure a p o s i t i v e j o i n i n g of the results of such a p t i v i t i e s t o a l l phases of the procure- ment process and to similar a c t i v i t i e s conducted by other sectors of the b u i l d i n g community In essence there are three types of function which need to be performed to effect a reasoned approach to tedinology advancement The f i r s t deals with the analysis and a r t i c u l a t i o n o f the systems approach as applied to the e n t i r e procurement and real property management process The second deals with detailed investigation o f operational needs i d e n t i f i e d during the analysis process, and with research where new infoimation i s necessaiy The t h i r d i s the packaging o f developmental and experimental programs which must be introduced i n t o the procurement program i n order to test t h e i r v a l i d i t y and to develop the rationale f o r t h e i r application as a normal part o f the procurement process, once they are proved t o be adequate 73

Several yeaxs ago, the Building Research Advisory Board conducted a s t w i ^ o f the Corps of Engineers research, stud^, and investigation programs and recommended a t e c h n o l o ^ program strategy revolving about a systems approach to the spectrum of needs and a c t i v i t i e s Hie Coimnittee commends the re s u l t i n g reports* t o the Department o f Defense and p a r t i c u l a r l y to each of the other two F a c i l i t i e s Procurement Agents In essence, what was called f o r was an i n t e r n a l systems evaluation gtovp at the headquarters level which would have r e s p o n s i b i l i t y f o r developing the procurement system and i d e n t i f y i n g needed research and action t o adiieve a systems-onented procurement program that would be continually responsive to mission needs and technology diange Prom t h i s groiq> would come the i d e n t i f i c a t i o n o f needs, research, and investigational d i r e c t i o n , recommendations f o r developmental and e^enmental e f f o r t s , and the communication linkages The Committee believes that t h i s approach i s quite consistent with the management concept being commended t o the Department ' I n f a c t , the man- agement concept should be applied t o the technology program as w e l l , t h a t I S , pnmaiy emphasis should be given to the i d e n t i f i c a t i o n o f needs, continuous rigorous ^ p r a i s a l s of future organizational needs and o f trends t h a t shape or can shape those needs, and the procurement o f needed services t o carry out much of the needed research, study and investigations There i s no need to repeat what was contained m the aforementioned BRAB report t o the Corps of Engineers Nor i s there need t o review current developmental and e^enmental programs of the F a c i l i t i e s Procurement Agents or discuss the elements of a systems bu i l d i n g program "Hiese are treated adequately m Appendix B There i s need) however, to enphasize the funding relationship between tedinology development and esqpenmentation and procurement operations Developmental and experimental programs often lead t o the production o f functional f a c i l i t i e s i n numbers that go well beyond what could be described as prototype construction This also i s often the case with systems buil d i n g programs As a consequence, the f a c i l i t i e s thus produced are generally occupied and used There i s no reason why these f a c i l i t i e s should be charged o f f e n t i r e l y to ei t h e r procurement or research and development, since they have elements of both Furthermore, m v i r t u a l l y a l l programs of t h i s nature to date (many of which are described i n Appendix B), attenqpts have been made e i t h e r t o downgrade such prpgrams because of h i g ^ u nit costs or to mask h i ^ costs, leaving a false, inqpression that the f a c i l i t i e s were cost e f f e c t i v e from the outset In the Committee's opinion t h i s i s neither r e a l i s t i c nor desirable from e i t h e r point o f view The goal i s t o develop new techno- logy wisely, and apply i t only when i t i s known that i t w i l l be cost Evaluation of Corps of Engineers ConstructionJtesearch PTOgram--Final Report, June 1967, Siyplementary Report June 1968 Building Tfeseariai Advisory Board, National Academy of Sciences-National Research Council 74

e f f e c t i v e Iherefoxe, the Conunittee feels that the Department o f Defense can serve i t s own ends best and provide leadership t o the nation by developing and ^ p l y i n g a sound system f o r apportioning sudi costs f a i r l y between researdi and developofent and actual procurement Achieving a uniform cost accounting system and a coordination o f needs, programs, and budgets, should enable the Department t o be eff e c t i v e stimulators, consumers, and beneficianes of new tedinology without actually becoming the developers per se Accordingly, i t has been recommended that each of the F a c i l i t i e s Procurement Agents include, as an i n t e g r a l part of i t s f a c i l i t i e s procurement program, a b u i l d i n g technology program that i s designed to sipport and improve the management of f a c i l i t i e s procurement and r e a l property and that i s based on the concept o f the systems approach I t also has been recommended that the Office o f the Assistant Secretary of Defense ( I n s t a l l a t i o n s and Logistics) ensure that appropriate mechanisms exi s t w i t h i n each F a c i l i t i e s Procurement Agent f o r communicating needs into an integrated Department o f Defense program on a continuing basis, and that provision exists f o r t r a n s f e r r i n g the results of the three technology programs i n t o the procurement process of each F a c i l i t i e s Procurement Agent I t has been further recommended that funds f o r the integrated Department of Defense buil d i n g technology program be sought annually from the Congress under separate authorization, appropriation, and accountability, and that funding f o r each F a c i l i t i e s Procurement Agent program be coordinated by the Office o f the Assistant Secretary of Defense ( I n s t a l - l ations and Logistics) i n order t o maximize results and avoid needless difl)lication o f e f f o r t 75

APPENDIX A STATEMENT OF WORK (ANNEX B) EXCERPTED FROM CONTRACT NO DAHC15 70 C 0198 BETWEEN THE U S DEPARTMENT OF DEFENSE AND THE NATIONAL ACADEMY OF SCIENCES The Contractor shall conduct an in-depth study of exis t i n g systems of managing the design and execution o f m i l i t a r y construction programs and t o recommend improved or new systems which w i l l provide design and construction execution at the lowest practicable cost consistent with obtaining the type and q u a l i t y of real property f a c i l i t i e s specified by the Department of Defense The need f o r t h i s study stems both from,the militi;py construction system goals and the current urgency f o r reducing defense costs These goals have been given t o include 1 High q u a l i t y construction at reasonable cost 2 Minimum design, construction, supervision, and overall administrative costs consistent with 1, above 3 Maintenance of a t o t a l construction management system or systems which are responsive t o program changes, volume and type o f work, location o f work worldwide and under a l l environmental conditions-- e g , normal conditions, natural disasters, m i l i t a r y emergencies The Contractor i n conducting the study and i n d r a f t i n g the recommendations, s h a l l , not only give f u l l consideration t o ex i s t i n g systems and techniques, but exercise his f u l l imagination and ingenuity i n adapting or developing new procedures and techniques which o f f e r promise o f achieving the stipulated goals The Contractor shall execute i t s study and advisory r e s p o n s i b i l i t y by appointing a highly q u a l i f i e d Special Advisory Committee responsible t o the Board, and submit reports to the Office o f the Deputy Assistant Secretary of Defense f o r Ins t a l l a t i o n s and Housing The Contractor shall 1 Study a l l aspects o f m i l i t a r y construction management systems (except troop construction) by the three Services from program or project d e f i n i t i o n t h r o u ^ acceptance o f the completed program or proj e c t , including (a) d e f i n i t i o n o f project scope, c r i t e r i a and cost by each of the three Services and, i n the case o f construction agents, design, construction, supervision, inspection procedures, systems and organization structure employed, (b) related a c t i v i t i e s supporting m i l i t a r y construction programs, such as personnel administration, legal counsel, f i s c a l management

The study s h a l l include, but not be l i m i t e d to (a) evaluation o f current design procedures and the underlying rationale, (b) evaluation o f current construction management techniques, and (c) evaluation o f current policies and t h e i r impact on program execution Investigate construction management systems used by other agencies of gpvexnment (e g , FHA, GSA, VA, P 0 ) and private organizations t o ascertain desirable aspects which may be adaptable to m i l i t a r y construction management systems I d e n t i f y , evaluate, and include where appropriate i n the recommended construction management system, promising techniques, procedures, and organizational relationships, such as a Use of prefabricated or pre-engineered components, including modular relocatable structures b Application of commercially available products m l i e u of specially or custom-made items c Use of one-step, two-step and other turnkey procurement methods d Use of T i t l e I I Inspection e Branded application of ASPR, Section 7-602 10, Contractor Inspection System (Contractor Quality Control) f More general use o f standard design, s i t e adopted to job s i t e requirements g Use of stronger warranty or guarantee clauses with respect t o part or a l l of constructions projects h Use of new techniques f o r further reducing design-construction time 1 Use o f alternate project organizations, e g , systems-team concept, including p a r t i a l or f u l l y mobile organization J Use of alternative procedures f o r checking and approving shop drawings k Reductions i n annual variations of woricloads 1 Use o f t o t a l design-construction-maintenance approach, e g t o t a l cost bidding A - 2

4 Develop a recommended construction management system or systems consisting of p o l i c i e s , procedures, and techniques which w i l l result i n lowest design and construction management costs consistent with obtaining adequate bids and construction q u a l i t y , i d e n t i f y and portray m d e t a i l the role of the engineering and construction agents and the militazy departments and other government agencies as c l i e n t s , and i d e n t i f y and relate currently used techniques and procedures which appear most cost ben e f i c i a l when conpared to feasible alternatives Recommendations f o r improvement to e x i s t i n g systems must i d e n t i f y and consider the need f o r providing an ef f e c t i v e base f o r mobilization i n time of war or emergency, a capability f o r recovering m the wake o f natural and man-made disasters, and a capability f o r continued operation and maintenance o f bases 5 Develop and recommend a procedural sdiedule f o r e f f e c t i n g t r a n s i t i o n from e x i s t i n g to recommended approaches, s p e c i f i c a l l y a Changes to e x i s t i n g systems which can be effected over the near-term, including those which would e n t a i l removal of constraints b Changes i n e x i s t i n g systems which can be effected over the longer-term, including those which would e n t a i l removal o f constraints c Actions whidi would need t o be taken by others to make the recommended approach attainable i n i t s ideal form The Contractor shall also 1 Hold such meetings and f i e l d t r i p s as i t deems necessary, but, s p e c i f i c a l l y , to include v i s i t s by i t s ment>ership and/or s t a f f to at least two design and construction management centers of Coips of Engineers and of the Naval F a c i l i t i e s Engineering Command, and two using agency i n s t a l l a t i o n s of each Service, as agreed on by the Building Research Advisoiy Board and the Office o f the Secretary of Defense Hie Office of the Assistant f o r Construction Operations w i l l make available on a timely basis, requested non-secunty information m readily usesible form, and access to the selected f a c i l i t i e s A - 3

APPENDIX B INDUSTRIALIZED BUILDING AND BUILDING TECHNOLOGY Both the structure of the bui l d i n g industry and building technology are undergoing change at an accelerating rate Furthermore, projections of future demand upon the industry and the t o t a l economic system suggest that pressures f o r futher change i n how and what we b u i l d w i l l continue t o grow "Diese pressures f o r change i n large measure re s u l t from r i s i n g costs of land, money, labor, materials and products, and from increased demand f o r greater q u a l i t y , d i v e r s i t y and f l e x i b i l i t y i n the f a c i l i t i e s and the ultimate environment produced As a r e s u l t , a l l segments of the industry -have been seeking ways to better organize the t o t a l building process and i n so doing, t o provide f o r more ef f e c t i v e development and use of b u i l d i n g technology The implication i s that t h i s " i n d u s t r i a l i z a t i o n " of the t o t a l b u i l d i n g process w i l l provide the much needed pro d u c t i v i t y gams, and tha t , i f properly directed, these e f f o r t s w i l l provide the means f o r achieving the desired improved performance as well Hie Department of Defense, i n i t s m i l i t a r y f a c i l i t i e s procurement and management, i s subjected t o these same pressures f o r change, and can con- t r i b u t e s i g n i f i c a n t l y to and derive benefit from constructive change m the structure of the building industry and i n bui l d i n g technology The purpose of t h i s discussion i s (1) to provide insight i n t o the nature and reasons f o r the change which has been occurring and i s yet t o come, (2) to suggest terminology that w i l l f a c i l i t a t e i n t e l l i g e n t discussion of emerging concepts and technology, (3) to summarize the more s i g n i f i c a n t experimental and developmental programs of the past decade, (4) to recog- nize the constraints that i n h i b i t change and impose re a l as wel l as a r t i - f i c i a l l i m i t s on what can be accomplished, and, (5) to amplify the recom- mended technology program which the Committee believes w i l l enable the Department of Defense to maximize i t s contributions to and benefits from t h i s period of intense search f o r increased pr o d u c t i v i t y and performance NATURE AND REASON FOR CHANGE During the past decade and more, the supply of s k i l l e d labor and invest- ment ca p i t a l has become increasingly short i n r e l a t i o n t o demand, and thus more expensive Land prices have risen dramatically The materials and products mix has expanded but prices have climbed steadily and supply i s more and more subject t o conditions not easily controlled And, expecta- tions f o r ever greater physical and functional performance of f a c i l i t i e s , persist B-1

Labor Presumably the labor supply, including s k i l l e d labor, could be i n - creased by providing more job opportunities f o r the less s k i l l e d , by providing greater v e r t i c a l mobility through t r a i n i n g , by creating new trades, and by providing f o r s k i l l combinations where the level of s k i l l required i s less than that f o r which the journeyman i s normally q u a l i f i e d However, the continuing trend toward higher education f o r a larger percentage of the population and the slowness with which impediments to expanding the labor supply are apt t o be removed, indicate that the most hopeful d i r e c t i o n f o r r e s t r a i n i n g labor costs l i e s i n productivity gains through reduction i n the t o t a l labor input t o construction Investment Capital Competition f o r available investment c a p i t a l i s l i k e l y t o continue to be intense, p a r t i c u l a r l y f o r long-term investment c a p i t a l as re- quired for real property development, and during periods of expan- sion I t matters l i t t l e whether tax dollars or private c a p i t a l are involved TTierefore, i t appears that pressure on the available supply of money by Government as well as by private f a c i l i t i e s pro- curement can best be alleviated by reducing the time and cost of construction i t s e l f and by making f a c i l i t i e s produced physically and functionally more e f f i c i e n t and e f f e c t i v e Land Although land i t s e l f i s not i n scarce supply, land which i s available and suitable f o r development and building i s becoming increasingly scarce--! e , land which i s free of s i g n i f i c a n t imperfections and does not require vast new investment to make i t accessible and pro- vide I t with essential community services Even i f land-use policies were adopted so as to r e s t r a i n speculative rises i n the cost of land per se, whether private or public lands are involved, competition for good land and developmental needs would s t i l l produce cost i n - creases However, productivity gains i n construction and, where possible, more e f f i c i e n t land use can help offset these r i s i n g costs Materials and Products The cost of materials and products tends t o r i s e m l i n e with i n f l a - tionary pressures i n the economy as a whole, and not infrequently because productivity gains cannot offs e t increased performance re- quirements Supply and demand factors also affect price, however, with an adequate materials and products mix, the net e f f e c t on con- struction can be minimized But, raw material prices, p a r t i c u l a r l y where they are affected by decisions beyond the a b i l i t y of our nation to control, also could become an increasingly c r i t i c a l factor i n cost escalation Therefore, a major area f o r productivity and performance improvement l i e s i n increasing the d i v e r s i t y and f l e x i b i l i t y of end B-2

products, m further reducing waste through dimensional and func- t i o n a l precoordination, and i n increasing the! e f f i c i e n c y of the d i s - t r i b u t i o n system as a whole Performance The increasing demand f o r higher q u a l i t y and greater d i v e r s i t y and f l e x i b i l i t y of f a c i l i t i e s , whether created by an expanding concept of need or an expanding supply of new, more, and better products and services, becomes a major factor m increasing costs To a consider- able extent, the increased demand f o r d i v e r s i t y and f l e x i b i l i t y of f a c i l i t i e s i s the r e s u l t of accelerated a c t i v i t y and m o b i l i t y Again, speeding the time of delivery and creating an e f f i c i e n t and highly adaptable technology are foreseen as essential elements i n s a t i s f y i n g t h i s demand f o r better performance while c o n t r o l l i n g costs A l l these factors and more have been responsible f o r focusing ever- increasing attention on the potentials of i n d u s t r i a l i z e d concepts o f real property development and management, and of i n d u s t r i a l i z e d b u i l d i n g technology Precise answers are not available Many constraints remain, some real and some a r t i f i c i a l , and cost- and quality-effectiveness are not assured Nevertheless, change i s inevitable and necessary, but t o achieve constructive advance, the directions must be car e f u l l y set TERMINOLOGY A new language and a new unifying conceptual approach have emerged i n an e f f o r t t o provide a rationale and framework, and a means of communicating, i n terms of the new i n d u s t r i a l i z a t i o n and i n d u s t r i a l i z e d b u i l d i n g tech- nology Broadly speaking, t h i s language i s engendered by the "performance concept" and the "systems approach," which embodies the "performance approach " The performance concept and approach were f i r s t a r t i c u l a t e d by BRAB m the la t e 1950's and early 1960's i n an e f f o r t t o improve com- prehension and documentation of the t o t a l b u i l d i n g process and to speed the development and use of new technology Shortly thereafter, the systems approach, although not new, began t o be applied t o the b u i l d i n g process with the continuing attempt t o equate the performance approach t o emerging building systems hardware Even though i t may not yet be possible t o arrive at a commonly accepted terminology f o r t h i s new i n d u s t r i a l i z a t i o n movement, key terms and tenta- t i v e d e f i n i t i o n s are set f o r t h here t o eliminate confusion as to t h e i r meaning, p a r t i c u l a r l y i n t h i s disciission, and i n r e l a t i o n t o the buil d i n g process i n general • Systems Approach Analysis (applying the performance approach), int e g r a t i o n , and or- ganization of an entire process to achieve the required functional objectives of that process B-3

Performance Approach The application of s c i e n t i f i c or dynamic systems analysis methods t o developing and st a t i n g performance objectives and t o applying evalu- ative techniques to the proposed solution so as t o predetermine that objectives w i l l be reached, including Influences;--1 e , documented user needs and desires, and con- s t r a i n t s such as climate, geography, conmrunity r e s t r i c t i o n s , and labor practices. Performance C r i t e r i a — i e , stipulated functional requirements and technical characteristics f o r generic or s p e c i f i c f a c i l i - t i e s t o be created. Evaluative Techniques—i e , ana l y t i c a l and t e s t procedures t o be used to predict performance, together with q u a l i t y control and s i m i l a r performance assurance techniques. Performance StMidards S Codes—i e , regulatory documents and procedures based upon performance c r i t e r i a and evaluative techniques. Performance Feedback--i e , measurement or achievement and feed- back of information f o r improvement m a l l aspects of the per- formance approach Systems Building Use of the systems approach t o organizing and carrying out the t o t a l b u i l d i n g process, including design, construction and assembly, main- tenance, a l t e r a t i o n , and replacement, using a high degree of coordi- nated parts, continuity of production, and a h i g ^ degree of mechani- zation to replace manual labor Building System A set of dimensionally and funct i o n a l l y precoordinated and i n t e r - related parts which when assembled, produce one or more essentially whole structures Theoretically, there are two basic classes of buil d i n g system * * No exi s t i n g system can be considered either t o t a l l y closed or t o t a l l y open A closed system may liave the po t e n t i a l f o r producing only one type, size, and shape of structure, or several types i f coniponent parts may be assenibled i n a variety of patterns An open system i s more a concept of dimensional and functional precoordination m that a wide va r i e t y of structure types, sizes, and shapes can be created from alternative com- ponent parts, each category of which i s compatible with the others and thus can be used together t o create a whole B-4

Closed System--i e , a system i n which component parts are unique t o the given system m dimension and design and therefore preclude the use or subs t i t u t i o n of other component parts whether unique m themselves or from other systems Open System--i e , a system i n which a l l component parts are dimensionally and functionally compatible but not being unique to any one system, are mterchangable Subsystems Major elemental components or the t o t a l of l i k e components of a system, characterized by dimensional and functional precoordmation f o r t h e i r intended use as major segments of a t o t a l system—e g , a weather envelope subsystem including a l l components making up the weather envelope, a f l o o r - c e i l i n g subsystem including a l l components making up the integrated f l o o r - c e i l i n g Components Any constituent part of a bui l d i n g , whether small or large and whether system oriented or n o t - - i e , any material, product, sub- system, or combination thereof used i n b u i l d i n g Industrialized Building The entire process of building--characterized by any combination of the systems approach t o building and buil d i n g systems, a steady flow of demand f o r production, and a high degree of organization and maxi- mization of labor saving equipment and procedures SIGNIFICANT DEVELOPMENTAL PROGRAMS Industry has made substantial progress m i n d u s t r i a l i z e d b u i l d i n g tech- nology Thus f a r , however, t h i s has been true p r i n c i p a l l y m the area of materials and p r o d u c t s — i e , components f o r buil d i n g which do not neces- s a r i l y bear a di r e c t relationship t o systems building Such progress has been acconiplished by achieving a degree of dimensional and functional standardization and coordination w i t h i n and between segments of the building industry where high volume production i s possible and large markets have existed or could be created To some extent, t h i s now has been extended i n t o and blended with various of the emerging b t i i l d i n g systems concepts However, neither a t r u l y h i g ^ degree o f dimensional and functional coordination nor t r u l y high-volume production of systems, subsystems, and systems-oriented components have been achieved For these to be achieved, two pr i n c i p a l actions are required the market f o r such technology must be increased, and greater attention must be given t o development of r a t i o n a l standards aimed at dimensional and functional precoordmation I f these forces are set i n motion, more and more of the building community can and are l i k e l y t o p a r t i c i p a t e , and the various constraints can be i d e n t i f i e d and dealt with B-.5

No one form of in d u s t r i a l i z e d building process organization or bu i l d i n g technology has yet emerged as predominant or has shown a clear and s i g n i - f i c a n t cost- and performance-effective gain However, several experimen- t a l and developmental programs have been i n i t i a t e d i n the past decade Among the more s i g n i f i c a n t of these programs are those which follow School Systems Development Projects Widely publicized have been the several school systems development projects, many of which were i n i t i a t e d under the sponsorship of the Education F a c i l i t i e s Laboratories, Inc The Cupertino Project—Begun i n 1960, t h i s was a small-scale f i r s t e f f o r t designed t o t e s t the value of using a range o f co- ordinated building subsystems Two school projects m C a l i - fornia's Cupertino School D i s t r i c t were used Itiouf^ generally recognized as unsuccessful, t h i s project led t o a number of decisions related t o establishing a systematic approach t o school design and construction, and t o formulation of the con- cept f o r the well known Ca l i f o r n i a School Construction System Development (SCSD) project The more important o f these decisions can be summarized from the l i t e r a t u r e as follows (1) In order to in t e r e s t manufacturers m providing com- ponents designed s p e c i f i c a l l y t o new performance and dimensional c r i t e r i a , the volume of work that such manufacturers could reasonably expect t o obtain would need to be large enough t o enable them t o "write down" a substantial portion o f t h e i r development cost (2) Effective coordination of system components and t h e i r respective producers would require a single authority which controlled a s u f f i c i e n t volume of p o t e n t i a l work to make cooperation advantageous t o the manufacturers (3) Any development work on the part of industry would require the p a r t i c i p a t i o n of larger companies than those which had been involved i n the Cupertino Pro- j e c t (4) The volume of work necessaxy t o accomplishment of (1) and (2) above would need t o be established through further investigation School Construction Systems Development (SCSD)—Capitalizing on the results learned from the Cupertino e f f o r t , the SCSD program was begun i n 1961 with a f e a s i b i l i t y study S u f f i c i e n t market was to be provided by binding 13 school d i s t r i c t s i n t o a legal mechanism having an immediate need f o r 20 to 40 m i l l i o n dollars m buildings In examining education needs, f l e x i b i l i t y , space B-6

layout, a i r conditioning, height increments, and s i m i l a r needs were isolated f o r special study Both horizontal and v e r t i c a l planning and design modules were established The following subsystems were i d e n t i f i e d f o r development (1) st r u c t u r a l , (2) l i g h t m g / c e i l i n g , (3) a i r conditioning,, and (4) i n t e r i o r p a r t i t i o n s Performance specifications were prepared ind i c a t i n g the dimensional and functional requirements—i e , how each subsystem should perform m response t o loads, f i r e , etc , what environmental conditions must r e s u l t , what spec i f i c horizontal and v e r t i c a l planning modules must be adhered t o , and, what would constitute compatibility between siibsystems Hie f i n a l choice of subsystems followed a complex bidding pro- cess involving prebidding, prebid conferences and a two-stage review process, to assure compatability between subsystems offered by d i f f e r e n t manufacturers The importance of compati- b i l i t y and i n p a r t i c u l a r , compatibility i n r e l a t i o n t o cost, was demonstrated by the reported fact that one successful bidder gave a price f o r a i r conditioning that was twice as much f o r tise with one s t r u c t u r a l system as f o r another Further development of the program involved t e s t i n g of components i n a 3,600-square- foot mockup structure The school d i s t r i c t bore the responsi- b i l i t y f o r h i r i n g architects, monitoring design, and bidding ind i v i d u a l projects The general contractor was not asked to include the cost of components i n his b i d , but to concern him- s e l f only with nonsystems construction and management of the construction/assembly process The inherent f l e x i b i l i t y b u i l t i n t o the component subsystems i s reported to be one of the most important achievements A number of other objectives were realized as wel l Hie systems buil d i n g concept was appreciably advanced and i t was learned that manu- facturers would respond to an adequate, organized market Further, i t was learned that q u a l i t y buildings could be procured withm a reasonable length of time and at reasonable cost using developed subsystems The SCSD project was considered by the C a l i f o r n i a school d i s - t r i c t s p a r t i c i p a t i n g to be successful With continued help from the Educational F a c i l i t i e s Laboratories Inc , t h i s general approach to school f a c i l i t i e s procurement spread to other parts of the country, and inadvertently t o f a c i l i t i e s other than schools as subsystem manufacturers, both winners and nonwinners of the competition, sought markets f o r t h e i r new products and services For example, even before the construction phase of the SCSD program was underway, bidders were successfully mar- keting t h e i r components i n other school d i s t r i c t s i n Nevada and I l l i n o i s In 1965, Inland Steel Company and Lennox Industries were engaged by Lockheed A i r c r a f t Corporation to produce t h e i r subsystems f o r a 300,000-square-foot o f f i c e f a c i l i t y t o house 3,500 engineers working on the development of the C5A transport B-7

plane Space was needed quickly and the stibsystems developed for SCSD were available Lockheed was able to state i t s needs m the same language the manufacturers were using, and t o accept performance c r i t e r i a developed f o r a si m i l a r though qiute d i f - ferent application--1 e , f o r schools As a r e s u l t , the f a c i l - i t y was b u i l t i n nine months at a reported cost of $15 10 per square foot By applying the systems approach to the p r o j e c t , the f a c i l i t y was produced i n an orderly, cohesive fashion to meet the owners needs Application of CPM became simple and ef f e c t i v e , but only because the owner recognized the p o t e n t i a l and organized an appropriate procurement management system to plan and coordinate the e n t i r e project Schoolhouse System Project (SSP) — I n 1966 m Florida, the basic SCSD approach again was applied, i n i t i a l l y using the same four subsystems However, the State Department of Education, m or- ganizing and coordinating the program, spared the local school d i s t r i c t s the task of l e g a l l y organizing themselves As each group of school d i s t r i c t s became part i c i p a n t s , specifications were modified and bids sought The project s t a f f has expressed the view that t h i s approach provides f o r a continuing and evolving manufacturer, technical, cost, and performance re- sponse University Residential Building System (URBS)--In t h i s project an e f f o r t was made to apply the SCSD approach to student housing f o r the University of C a l i f o r n i a Subsystems were redefined to include (1) structure, (2) p a r t i t i o n s , (3) bathrooms, (4) furnishings, and (5) HVAC Despite a caref u l l y developed pro- gram only three of the f i v e subsystems came i n under cost, only one bid came m under the fourth category, and the f i f t h cate- gory had to be reconsidered altogether At the same time, the University experienced a period of reduced funding which i n turn necessitated a reduction i n the o r i g i n a l commitment of 4,500 units to 2,000 units However, these problems were f i n a l l y sur- mounted, and the project now i s continuing Several s i g n i f i c a n t lessons were learned, among which were the following (1) While providing many inherent benefits, systems build- ing of I t s e l f can do l i t t l e to overcome economic and p o l i t i c a l problems, (2) The market provided was neither s u f f i c i e n t l y large nor stable to meet the needs of manufacturers Nevertheless, the URBS project, by applying systems building concepts to student housing, demonstrated the p o t e n t i a l f o r application to other building types—e g , to housing, hotels, motels, nursing homes--each of which, although imposing special requirements, could be characterized by r e p e t i t i v e elements B-8

The Montreal Catholic School Commission (RAS)--The RAS project approach d i f f e r e d from that of SCSD, SSP and URBS which r e l i e d upon resolving most detailed problems a f t e r bidding i n mock-ups and p i l o t structures Already having an organized market and having many performance specifications already w r i t t e n , a set of specifications f o r f i v e compatible subsystems was produced Manufacturers were i n v i t e d to form together i n t o i n d u s t r i a l consortia to develop and submit bids f o r a precoordinated pack- age of compatible siibsystems Of the 11 t o t a l l y integrated bids, three q u a l i f i e d f o r the complex cost c r i t e r i a r e l a t i n g t o i n i t i a l cost and ownership and operating cost By using t h i s approach, i t was believed that post b i d delays could be reduced by moving immediately to implementation I t was also believed that true innovation would not r e s u l t from the use of compatible subsystems alone, but that the entire system needed t o be con- sidered at one time Study of Educational F a c i l i t i e s (SEP)--This p r o j e c t , undertaken by the Toronto Metropolitan School Board, was approached from yet another viewpoint The school systems development projects to t h i s point, while o f f e r i n g f l e x i b i l i t y and compatibility be- tween subsystems, could be c l a s s i f i e d more nearly as "closed systems," i n that they were developed with a p a r t i c u l a r overall building system i n mind and were designed and had to be used w i t h i n the specific dimensions of that p a r t i c u l a r system The SEP group, although having a short-term goal of producing school buildings with the tisual objectives of q u a l i t y , f l e x i - b i l i t y , and cost and time savings, also had a long-range goal of developing many components and combinations of components which could form the basis for' a great catalog of subsystems which could be used universally and interchangeably To do t h i s , a more "open-system" approach was adopted Ten siibsystems were i d e n t i f i e d (structure, atmosphere, l i g h t i n g / c e i l i n g , i n - t e r i o r space, v e r t i c a l skin, plumbing, e l e c t r i c / e l e c t r o n i c , casework, roofing, and i n t e r i o r f i n i s h i n g ) and performance specification^ were developed embodying a concept of "mandatory interface," m which any given subsystem would have to be com- pati b l e with at least two other subsystems i n each category The resultant combinations of variables required extensive machine processing of data a m i l l i o n possible subsystem com- binations were b i d , 13,000 " f u l l " systems met SEP performance c r i t e r i a , 4,000 f u l l systems met SEP performance and cost c r i t e r i a , and the lowest 30 i n cost were analyzed m d e t a i l before f i n a l subsystem contractors were i d e n t i f i e d Post development work s t i l l was required A f u l l - s c a l e mock-up was b u i l t as an addition to an ex i s t i n g school and a separate p i l o t school was b u i l t and studied before the components were f i n a l l y cleared f o r use i n the SEP schools B-9

Housing Systems Development Programs In post World War I I Europe, both East and West, governments placed a h i s ^ p r i o r i t y on the production of housing To meet to this essen- t i a l l y government-created demand, predominantly site cast and precast concrete industrialized systems emerged»i.e , concrete panel, mod- ule, and l i f t - s l a b systems By means of standardization on basically closed systems, a large volume of housing was produced I t s cost- and performance-effectiveness i n terms of what mifl^t have been the experience i n the United States at the same point i n time is not known However, on the basis of experience gained and development ^ achieved, many Western European systems are being marketed by fran- chise or licensing agreement i n countries throughout the world As the backlog of need has been reduced and the influence of free-mazket economies has become the dominant factor, a better balance has been achieved i n the materials mix, and greater attention has been given to more open systems th^at offer the potential for greater variety and f l e x i b i l i t y In post World War I I United States, housing needs did not reach the crisis proportions experienced i n the war-damaged countries of Europe and elsewhere i n the world Hie American economy, including the housing industry, recovered more quickly As a consequence the pressures for quick movement toward industrialized housing faded quickly, as is evidenced by the fate of many prefabricated housing producers The resurgence of interest i n industrialization m the 1960's coupled with the pressures discussed at the outset of this paper have now resulted i n two significant, yet quite different development programs which stress industrialization—HUD's Operation Breakthrough, and the New York State Urban Development Corporation Operation Breakthroufi^—Drawing iipon the authority and impetus given by Section 108 of the 1968 Housing Act, the Department of Housing and Urban Development (HUD) i n i t i a t e d the Operation Breakthrou^ program i n 1969 The primary goal of this program was " to provide housing systems and construction concepts which can supply aggregated markets with quality housing produced m volume " Operation Breakthrough i s unique as a development program i n that i t encompasses a l l phases of the building process—from land planning and site development, through housing systems development, to f i n a l occupancy, oper- ation and maintenance—and is directed at a potential material market, as yet undefined and unaggregated A request for pro- posals (RFP) was issued asking existing and potential housing systems producers to submit their proposals under two broad categories systems ready or nearly ready for production, and systems and concepts requiring further development The response to the RFP for housing systems greatly exceeded HUD's expectations Of 632 proposals received, 244 proposals dealt with the f i r s t category—i e , with design, testing, and evalu- ation of complete housing systems, 388 dealt with the second B-10

category, or hardware and software concepts relating to hoiising that required further development before they could be imple- mented Embodied i n these proposals was a f a i r representation of the state-of-the-art i n the United States, as well as a very considerable representation of European systems, (e g , Balency, Tracoba, Ckame, Sectra, Shelley, Relbec, Wates, Cebus, Coignet, Bison, Jespersen, Sepp Fimkas) Of the complete housing systems proposed, the number of accept- able systems was progressively reduced to 22 that were selected for contract award "Hie RFP furnished the proposers with material on the broad theoretical basis for the program, and addressed more than technical ob;)ective5 to be accomplished In selection of the systems for i n i t i a l contract award, the evaluation factors included i n addition to system design, the quality and diversity of management and professional talent of the proposer, his organizational structure, evidence of ex- perience necessary to implement the overall production require- ments, and financial soundness and capability Evaluation also included understanding of the overall program and proposed means of recognizing user needs at a l l design scales, as well as testing, evaluation, and other aspects of prototype con- struction, and of large-scale production considerations, i n - cluding plant location, transport, and financial planning In selecting the 22 systems, HUD further attempted to achieve a mix of housing types, materials, and techniques i The Breakthrough program is divided into three phases Phase I , systems design. Phase I I , prototype construction, and Phase I I I , volume production To form a basis for evaluation of systems design and prototype construction, the National Bureau of Stan- dards, at HUD'S request, has assembled "Guide Criteria" which embody (1) performance requirements, (2) performance c r i t e r i a , (3) evaluative techniques, and (4) commentary (providing reasoning for performance requirements, c r i t e r i a , and/or evalu- ation methods) This set of c r i t e r i a is viewed as a guide and is subject to continuing refinement as the development program progresses The guide c r i t e r i a do not specifically treat either site development or foundations In addition to housing systems development, the Breakthrough program included-separate R̂ P's for site planners, site develop- ers, and quality control, resulting m the award of contracts for nine site developers and nine site planners to plan and develop nine prototype sites for approximately 3,000 units One contract has been awarded for development of a quality- control program to be applied i n the industrialized production of the housing systems Other aspects of the program include a projected HUD certification program for the housing systems, market aggregation for volume production, and coordination of HUD programs (including planning, financing, and assistance i n community development) with the Operation Breakthrough effort B-11

The program is now in Phase I , Systems Design Development has begun on three sites with a l l site development scheduled to have been started by Spring of 1971, and Phase I I , Prototype Con- struction, to be in i t i a t e d for several systems by the Summer of 1971 As has been the case with other systems development programs, a number of both successful and unsuccessful proposers are developing and marketing systems outside the established pro- gram The Breakthrough program has not progressed sufficiently to permit an evaluation as to potential impact, however, i t has been credited by numerous sources as already having produced a major stimulus to industrialization activities New York State Urban Development Corporation--In 1968, New York State was faced with the same problems of providing housing and shared the same concerns on a State level as the Congress did on a national level As a consequence, the Governor asked the State Legislature to authorize establishment of the Urban De- velopment Corporation (UDC) with extraordinary powers to float loans, to condemn land, and to override local codes and ordi- nances The primary mission has been stated to be one of help- ing localities i n providing urgently needed housing for low and middle income families The program as now planned encom- passes 43,000 dwelling units m 54 projects located i n 26 com- munities across the state, with two "new towns" being planned The stated aim of UDC's technology program is to check spiraling costs wherever possible i n the construction process by concen- trating on finding and implementing cost-saving innovations throughout the building process I t is concerned not only with complete housing packages, but is giving encouragement as well to cost-saving subsystems components, and to techniques which can be introduced where appropriate, in housing being produced by more or less conventional methods The latter concept is embodied in a quotation from the report of the Housing Commis- sion on Urban Problems "Housing costs can be reduced i f none of the many avenues for savings is dismissed as inconsequential Add them a l l up and they promise to be substantial " By using i t s own large-volume market, UDC believes i t can pro- vide innovators in the building industry with the needed i n - centive I t IS recognized that innovators frequently avoid those innovations which would entail changes in entrenched building practices or local code provisions, simply because they cannot afford the time and risk involved UDC, therefore, seeks to encourage those who normally bear the higjh risks for research and development to undertake the necessary investment for volume production tooling As a basic premise, UDC f i r s t must satisfy i t s e l f that a prospective innovation has already been employed and essentially proven either m the United States or elsewhere, without jeopardizing health or safety B-12

Even though design and quality evaluation constitute a heavy burden, the program, oriented to cost-saving technology, adds a practical dimension to the industrialized housing movement Those promoting new technology need large orders to ;justify large investments for plant and equipment, and those placing orders need' tangible evidence of benefits to be derived from innovations UDC's approach to solving this problem is three- fold (1) only systems with demonstrated capability are con- sidered, (2) original costs of prototypes are not weighed i n f i n a l cost judgments, i t being recognized that prototype costs w i l l m a l l liklihood be high and that the reason for the pro- gram i s to demonstrate or test new concepts, and (3) the Cost Analog System, developed for the purpose, w i l l be used to determine whether a proposed innovation i n fact has cost- saving potential Although i t is f u l l y recognized that the high cost of housing results from many other factors, the Analog System is specifically directed toward cost savings from con- struction technology I t purports to equate industrialized and conventional procedures and practices, and provide UDC with a yardstick for cost assessment The UDC program and approach is unique m the sense that i t faces the question of cost effectiveness'directly and accepts less than a complete building system package, thus taking ad- vantage of a l l manner of recent innovations which have as yet to achieve acceptance i n New York State or i n any other signi- ficant market Federal Construction Agency Building Systems Programs--Further evidence of the focus on industrialization is the attention being given systems building within the federal construction agencies Hie Veterans Administration is applying the systems approach to design of subsystems for hospitals, the U S Postal Service is employing modular systems i n i t s construction program, the General Services Administration and the Department of Health, Education, and Welfare have ongoing programs to establish the f e a s i b i l i t y of using standardized systems and subsystems throughout their programs The BRAB Federal Construction Council has i n i t i a t e d a cooper- ative building systems p i l o t program, participants to date include the U S Army Corps of Engineers, Naval Facilities Engineering Command, Air Force Office of the Directorate of C i v i l Engineering, Veterans Administration, National Aeronautics and Space Administration, GSA Public Buildings Service, and U S Postal Service as construction agencies, and the Departments of Housing and Urban Development and Health, Education, and Welfare as agencies which are directly involved with a large volume of construction What success has been achieved within programs of each of these agencies apparently has made them aware of the potential for even greater benefit t h r o u ^ a B-13

pooling of expertise and market potential This program, en- t i t l e d "Promotion of the Development and Use of Precoordinated Subsystems for Buildings," provides an opportunity for federal agencies to identify their common needs, and then to seek to cooperate with other major nonfederal public and private con- sumers and with the building community, to achieve an orderly development and application of subsystems to the widest possible range of f a c i l i t y types The military construction agencies have been u t i l i z i n g indus- tr i a l i z e d and systems building m limited applications for a number of years The experience of the three Services gives an indication of some of the approaches now being taken and the measure of success that has already been achieved Air Force--With i t s special need for family housing that often must be provided m small quantities and at remote sites, and the need to cope with rapid buildup of personnel at one base while another is shut down or curtailed, the Air Force has looked toward the development of adequate, easily erected and readily movable housing I t has also sought to provide the necessary incentives to stimulate private involvement i n this f i e l d The market that could be provided by this Service alone could exceed $60 million annually over the next several years The current Air Force interest in relocatable housing dates from the early 1960's. Congress approved the development of a concept for such housing, and authorized construction of 2,200 units m Fiscal Years 1962 and 1964 First imits developed were factory fabricated and erected at selected bases The i n i t i a l plans for these units were developed for the Air Force by a private architect-engineer firm, which produced designs for two types one a complete unit that folded for transport, and the other, a unit b u i l t in two sections that had to be bolted together to form the complete house Contractors bidding on the i n i t i a l and later projects reportedly favored the fold-up type by a large majority The same type of housing also has been constructed overseas ( i n the Philippines and Viet Nam) In one successful operation, an entire group of some 200 one- story, three bedroom, one-and-a-half-bath homes were moved from Glasgow AFB in Montana, across the Rocky Mountains about 800 miles, and were re-erected at Mountain Home AFB, in Idaho, at a cost reported to be well under half that of new construction at Moimtain Home More recently, the Air Force formally opened a 200-unit housing development at George AFB (near V i c t o r v i l l e , California), where the units (up to four bedrooms and two baths in smgle-story and townhouse configurations) were produced in a movable factory Savings on these units over conventional construction were estimated to be 15 to 16 percent in the f i r s t B-14

year (under normal business amortization) I t is reported that an estimated additional savings averaging about 4 percent per year on a ctimulative basis, could be achieved To date. Air Force development seems to have settled on two basic types of housing systems. One is the foldable type (used at Glasgow and Mountain Home), which allows for an entire home of 1,170 gross square feet to be folded upon i t s e l f to produce a shipping package 10 feet wide, 11 feet 6 inches high, and 47 feet 4 inches long, weighing some 25 tons This package can be shipped easily by t r a i l e r truck and can be easily re- erected at another site The second system (used at George AFB) consists of panels with steel channels replacing conventional wood studding Hie panels are produced m a movable factory located 18 miles from the construction site The prefabricated panels include a l l necessary wiring, plumbing, and other f i x - tures, "wet walls" for kitchen and bathroom areas are also produced as complete sections In conjunction with i t s housing program, the Air Force also has increasingly used a two-step procurement procedure under which prospective bidders are asked to f i r s t submit a general plan and specifications for a given number of units, one pro- posed system is selected, and then bids or proposals for actual manufacture and erection of the units are solicited In general, the Air Force reports that interest i n this type of proposal has been "gratifyingly high " In fact, more bids were received i n every case to date than were received on projects i n which m-house designs and specifications were prepared for bidders The Air Force reports that manufacturers are becoming increasingly interested i n the f i e l d , some preferring to make alliances with construction firms for erection, and others pre- ferring to handle the whole process from manufacture through erection as a package operation, thus establishing clear re- sponsibility for the entire project Recent retrenchment of missions, changes m strategy, and re- ductions i n construction budget levels, has caused the Air Force to seek new approaches to construction requirements and procurement I t is reported that such developments have been responsible for the closing of some 27 major and 75 minor installations Hiese closures have resulted m a f a c i l i t i e s and real estate inventory reduction valued at several b i l l i o n dollars In family housing alone, over 18,600 units (valued m excess of $230 million) have been removed from the inventory because they were no longer required at their location and the use of conventional construction techniques precluded their relocation economically During the same time period, the Congress approved construction of 14,300 units, resulting i n a net reduction of 4,300 units I t is reasoned that neither the B-15

Air Force nor any of the three military construction agencies, which a l l share the same problem, can afford to continue con- struction of fixed f a c i l i t i e s which may eventually become a virt u a l t o t a l loss when there may be alternatives The Air Force thus is attempting to develop new approaches to procurement of f a c i l i t i e s other than family housing, as well, so as to provide high-quality, large relocatable structures I t is exploring the f e a s i b i l i t y of using building systems and industrialized building techniques for specific building types which are part of the annual Military Construction Program Specifically, these types include enlisted bachelor housing, composite enlisted bachelor housing, bachelor officer housing, warehouses, and administration and training f a c i l i t i e s TTie study is intended to reflect the best available talents of industry, the design professions, and the Air Force i t s e l f An architectural firm has been engaged to assist i n the definition, evaluation, and development of the program In the prospectus inviting industry proposals, performance re- quirements are spelled out for each type of f a c i l i t y , and i n - clude such considerations as concept, space allocation, cost limitations, site preparation, structural considerations, roofs, interior and exterior finishes, plumbing, electrical, HVAC, f i r e protection, geographic location, and dollar volumes Gen- eral requirements address warranties and guarantees, manufac- turing capability and financial s t a b i l i t y , as well as confor- mance with recognized national standards, codes, and practices The Air Force contemplates the use of the two-step procurement technique for the program The objective of this approach is to permit the development of a sufficiently descriptive and not unduly restrictive statement of Air Force requirements m "step one" m order that more definitive procurement action may be taken in "step two " At this point in the program, numerous responses have been received from industry and are being evaluated Future plans include the calling of a prerequest-for-proposal symposium, and, predicated on Congressional authorization, issuance of a Request for Proposals, and, predicated on Congressional appro- priations, evaluation and award of contracts Naval Facilities Engineering Command--Sharing similar problems, NAVFAC has utilized available technologies and has looked seriously, though not on as large a scale as the Air Force, at the potential of industrialized building and new approaches to the building process The Northwest Division of NAVFAC has carried out a program in which concrete modules were completely fabricated with a l l finishes i n Seattle, Washington and then barged to Alaska for erection as barracks f a c i l i t i e s And in a recent action, family housing units were purchased from the Air Force for removal and re-erection at a permanent Navy base B-16

More significantly, however, is a longer range approach under- taken within the past few years NAVFAC, believing that the basic approach taken i n the school systems development programs cited earlier held promise, engaged the services of the de- signers of the SCSD and URBS systems programs to assess the applicability of existing building systems to Navy f a c i l i t i e s needs In a f i r s t phase, existing systems, subsystems, and components which might be used to provide enlisted men's barracks, bachelor officers quarters, and administrative buildings of up to 50,000 square feet each were identified Among siibsystems investigated for potential use were structural, HVAC, lighting/ceiling, and partitions I t was estimated that together these subsystems represent 40 to 60 percent of t o t a l building cost, the remaining costs being those for subsystems that vary from site to s i t e , such as special foundations and exterior cladding for which nonsystems solutions are most economical In phase two, a second contract was awarded to the same firm to develop a design for naval barracks f a c i l i t i e s and to select possible subsystems which would be applicable A design was developed and a f u l l - scale mock-up b u i l t Instead of continiung with the approach of using selected subsystems incorporated within a building, the remainder of which is conventionally designed (as i n the case of the SCSD program), i t was determined that t o t a l building systems offered a more viable solution, eight systems have been selected as suitable and bids are now being sou^t The system provided by the successful bidder w i l l be u t i l i z e d i n construction of a $4 3 million Navy barracks i n Memphis, Tennessee, which w i l l house 1,680 enlisted men This f a c i l i t y w i l l serve as a basis for evaluation of this approach to future design and construction I f this i n i t i a l effort proves f n u t - f u l . I t IS intended that the approach w i l l be developed further In the case of the Navy, the market is reasonably predictable and user requirements for military barracks appear to be rela- tively simple since they are based on a functional program and administrative unit with a good many preset conditions How- ever, the situation is changing and many past concepts of military l i f e may not be adequate for the future Therefore, the need to provide for future change also is being recognized Although this systems program is different from the SCSD pro- gram. I t IS viewed as a direct descendent Approaches have been modified and i t is believed that experience gained w i l l add significantly to knowledge as to the effectiveness of systems building U S Army Corps of Engineers--Not only m i t s own construction program for the Army, but as construction agent for other federal agencies, the Corps of Engineers has been closely f o l - lowing developments m industrialized building technology I t s B-17

experience parallels that of the Air Force i n the use of building systems and components, particularly m the area of^ housing However, to answer the need for support f a c i l i t i e s for the SAFEGUARD program, a systems building approach was begun early i n 1970 An architect-engineering firm was engaged to ascertain which, i f any, types or combinations of preengineered/prefab- ricated buildings and conventional construction could be used for the nontechnical siipport f a c i l i t i e s for the Perimeter Acquisition Radar and Missile Site Radar sites for the SAFEGUARD program As a result, a catalog of possible systems and sub- systems was developed along with outline performance specifi- cations for evaluation by the Army This program formed the basis for a much larger program directed toward a comprehensive study on the f e a s i b i l i t y of applying preengmeered/prefabricated and systems building to the Axmy I n i l i t a i y f a c i l i t i e s program The study being conducted by QCE Civ i l Engineering Research Laboratory i n Qiampaign, I l l i n o i s , IS outlined to include 1 Identification of related studies which have been completed or are underway 2 Complete documentation of the state-of-the-art and the present offerings of industry 3 Analysis of the complete range of f a c i l i t y needs for Army bases to determine the types of building structure which would be amenable to use of preengmeered/pre- fabricated and/or systems building, and a selection of representative building f a c i l i t i e s for use i n de- tailed analysis * 4 Establishment of a complete evaluation procedure to include a l l parameters of worth to the owner-user, such as i n i t i a l costs, life-cycle costs, economic l i f e , relocatability, and performance effectiveness 5 Determination of potential markets for these repre- sentative f a c i l i t i e s within the Army military f a c i l i - ties program, including a fi s c a l year program and programs for a projected five-year period 6 Determination of the general extent of markets pro- vided by other military f a c i l i t i e s programs 7 Detailed analysis of selected centers to determine volume i n the projected military f a c i l i t i e s programs. B-18

and to establish the f e a s i b i l i t y of using preengi- neered/prefabricated and/or systems building for construction of these representative building f a c i l i - ties ( I t is intended that this analysis indicate f e a s i b i l i t y and cost advantages and/or cost disadvan- tages ) 8 Recommended methods for procurement and construction of Army f a c i l i t i e s , using the types of building and technology identified (The study also is reported to include development of a procedure for in-place evaluation of the performance, and maintenance and operating costs of these types of building after pro- curement, and data needs, data points, data logs, and an evaluation format ) The study is scheduled for a t o t a l time to completion of 12 months, through July 1971 Independent of this CERL study, OCE has been investigating procurement methods in various programs Finding that two-step procurement has decided benefits in specific applications such as housing, OCE is now developing outline specifications for use by i t s f i e l d offices CONSTRAINTS With so much technology already available and demonstrated, the obvious question is why industrialization has not progressed more rapidly i n the United States building industry Perhaps a salient reason is the seeming i n a b i l i t y on the part of those responsible to logically perceive and set c r i t i c a l goals, that i s , human and environmental goals which are shared, or there is sound reason to believe are shared, by a sufficient number of individuals to j u s t i f y the time, energy and capital that is required to bring forth an industrialized end product that w i l l effectively address those goals Those who are knowledgeable m building have long known that the a b i l i t y to industrialize the manufacturing or hardware aspects of building has not been the principal deterrent to more rapid progress I t is true that such matters as the a b i l i t y to accommodate to an adequate variety of environmental conditions and to distribute the product at the proper cost are important, however, even given an adequate solution to a l l such problems, production per se cannot proceed very far unless what is produced is needed and accepted by the ultimate consumer and the society Those who attempt a production-oriented solution without such goals and without solutions to societal constraints, run the risk either of being frustrated in their efforts because of market rejection, or worse, doing harm with their success because they were oblivious to the effects that would be produced Thus, major deterrents to progress have been an ina b i l i t y to set rational user-oriented goals, and a lack of recognition of the long range effect of efforts on the social-political-economic system B-19

As a consequence, there is increasing interest and desire i n devising a rational approach to goal setting and to identifying and understanding the social-political-economic-physical environment within which goals must be sought These environmental, elements have come to be known as "constraints " The word implies both the positive and negative Some constraints are environmental--e g , climate, geology, topography, the extent and nature of natural resources, and the physiology of man Others are societal m origin and nature--e g , the social-political- economic system i t s e l f which results i n a body of law, economic pri n c i - ples,' and patterns of personal behavior and communication Certainly, ' many of the constraints which exist are doubtless unknown and many more, particularly i n terms of their effect one upon another, ar^ not clearly understood Hiere are several w£^s in which the problems of goal setting and con- straint removal or accommodation can be addressed One is from the view- point of the science of dynamic systems This approach i s quite valid and should be encouraged Perhaps of more interest and pertinence however, is the experimental approach, or simply the setting of limited goals and attempting to achieve them In the process, constraints are encountered and as they are, they can be analyzed, and either removed, adjusted or accommodated The entire spectrum of constraints is too broad to treat here, however, a few examples of legal, environmental, and production/construction constraints w i l l serve to describe the spectrum and to demonstrate their importance to technological advancement and progress generally Many of these constraints are shared by a l l who build, whether under local, state or federal jurisdiction, and a l l affect progress of building technology and the national economy as a whole Further, even though there are examples where certain constraints have been removed or mini- mized to allow a specific undertaking to go forward, the lack of univer- sa l i t y of action may prevent that experience from being duplicated elsewhere and thus the single undertaking becomes more of an experiment for I t s own sake rather than a p i l o t project to be followed up This i n I t s e l f materially constrains innovation and capital investment i n new technology production Legal Included under legal constraints are the many regulatory actions intended to protect the individual or the public interest Many of these, i n some form and to some degree are essential to provide order m the social-political-economic system Well known are zoning practices, development and building standards and codes, antitrust and restraint-of-trade regulations» labor laws, minority protection laws, buy-American laws, and laws governing professional registration and practice Again, not a l l of these legal constraints are undesirable, indeed, many, at least for limited periods of time. B-20

are doubtless very desirable and necessary Many, however, become restrictive when they become outdated, are a r b i t r a r i l y allowed to supplant professional judgment, are actually protective of special groups, or are simply expressions of an established outlook or opinion without any identified benefits One specific example of a legal constraint is the body of law affecting bidding practices for public work To i l l u s t r a t e how i t can become a negative constraint, the school systems development programs previously discussed can be used Some State laws require that each school d i s t r i c t advertise and enter into construction-con- tracts for each project, and often separate construction subcontracts for each project This presented a major deterrent to aggregating a market composed of many projects and to s o l i c i t i n g bids for systems building components for many projects at one time A legal mechanism had to be found, or State legislation would have been required to permit the needed pooling of purchasing power for mass buying of systems, subsystems or system-oriented components Ihe requirement that contracts be awarded to the lowest bidder posed a similar problem The question raised was whether a l l subsystem contracts could be considered as a "package" for a single project or group of projects, or whether each contract would have to be considered as separate, and thus requiring acceptance of the lowest bid for each subsystem I f the l a t t e r were allowed to prevail, the problems of coordination could be v i r t u a l l y insurmountable One solution would be to change the "lowest-bid" practices, another would be to develop a precoordmated open systems approach to pro- curement Environmental Such constraints include climate, geological conditions, and topography, and are largely immutable, yet, they have a powerful influence on systems building, i t s design, production, distribution, and erection The issue is what size of market can be addressed with a given building systems technology, given such constraints For example, obviously building system components can be produced, shipped, and erected, and s t i l l be capable of withstanding a suf- f i c i e n t l y wide_variety .of-envi-ronmental constraints to'be successful Other components simply cannot, and i f the market which can be addressed is so limited by such constraints that i t is no longer* large enough to _ j u s t i f y developmental and production investment. I t simply cannot survive Production/Construction There is a proliferation of constraints which must be dealt with that have particular significance to industrialized production and construction Because any industrialized technology involves added capital investment and risk m machinery, plant, and inventory, the B-21

producer who assumes such risk must be satisfied that a sufficient and sustained market exists or can be generated to j u s t i f y the investment Conversely, the purchaser of industrialized products must be assured that the producer possesses the manufacturing capability both technically and financially to siq>ply the required product i n sufficient volume and quality and on time And, becausej buildings usually have a much longer l i f e expectancy than other , durable goods, the purchaser also must be concerned with the long- term capability and soundness of the producer, so that alteration, maintenance and replacement w i l l not present insurmountable problems Yet I t is d i f f i c u l t to reach this volume level (whatever i t may be) fast enough to make the producer/consumer equation balance Availability of capital, a v a i l a b i l i t y and willingness of labor, ' availability of transport and adequate warehousing, and even the availa b i l i t y of materials--all these and more must be considered ^ Because there is an existing industry, with more or less set rules, significant change is often beyond the a b i l i t y of either the pro- ducer or consumer to readily control or alter For exmple, i n many states, size and weight of industrialized products are legally restricted for highway transportation and existing r o l l i n g stock can re s t r i c t what can be transported by r a i l Further, whi^e many producers possess the capability for national distribution of systems hardware, many have found that very large components cannot be economically transported beyond 500 miles from the production plant using present transport modes In addition, maintaining the structural integrity and quality achieved by factory-controlled conditions while the product is subjected to the rigors of transport i s not easy to achieve. While at the same time remaining conqpetitive with the existing ways of building Another example is offered by labor Constraints imposed by labor obviously stem from the institutions which have grown up surrounding the historical development of the building process Because the trades have been the basic supply for labor i n the construction industry to date, i t is not unusual that the regulations and prac- tices developed by labor unions to protect their members should exert a major influence on the construction process Over time, this influence has gained considerable strength and has become well entrenched, particularly as i t affects local organizations, codes and contracting practices But as the approach to the building process changes toward an industrialized one, so must the approach to how labor is used be changed Ihe need for the many h i ^ l y developed s k i l l s of the traditional trades has diminished and the need for labor with a different capability has been demonstrated Instead of looking for a positive transition to this new need by means of training and reclassification of labor s k i l l s , organized labor and the institutions i t t^ffects have resisted Conflict has resulted i n the form of jurisdictional disputes, unrealistic B-22

code requirements, and licensing, registration, and inspection regulations for both plant production and onsite construction of industrialized building Yet another example can be found m the structure of our financial institutions and the manner in which we insure against risk taken by a l l parties in the production-consumption cycle Again, existing ways are often inadequate and changes are d i f f i c u l t to bring about Finally, there are the processes of regulation and l i t i g a t i o n which are so important i n our social-economic-political system Protection of the public interest and of the rights of the individual and minorities are v i t a l However, when significant change i s required, our institutions, their procedures and precedents, become con- straints Change comes slowly, and i n many instances r i g h t f u l l y so, nevertheless, both regulation and l i t i g a t i o n can delay change and thus frustrate attempts to balance the producer/consumer equation in sufficient time to make the transition viable As stated at the outset, i t is not possible to identify the f u l l spectrum of constraints, nor is i t possible even to l i s t and discuss here a l l that have been identified and are reasonably well understood In essence, "constraints" are the basic elements of the t o t a l environment m which building must take place The exaiiq[)les given, however, do indicate the immense complexity of the problems to be faced i n dealing with constraints I t is important to note again that even though the Department of Defense IS not subjected to many of the constraints which affect others, they are not immune from the effects of a l l constraints i n the social-economic- p o l i t i c a l system of which they are a part, and they must function i n the presence of some constraints which are peculiar to the government and the Department THE DOD TECHNOLOGY PROGRAM I f the nature of and reasons for change stated herein are accepted, and i t can be agreed that productivity gams and gains i n the time of delivery and in the quality, diversity, and f l e x i b i l i t y of the f a c i l i t y and en- vironmental end product are necessary, then continued movement m the direction of greater industrialization of the building process and a technology based more upon building systems concepts appears to be con- structive However, as stated previously and as is demonstrated by the several building systems development programs summarized, there is as yet no clear evidence that any one approach within this broad movement is best or even most cost effective, although i t is generally agreed that progress is being made The a b i l i t y to identify clearly and measure the effect of the many constraints which are operable, the way the various developmental programs have and are being mounted, promoted, cost accounted, and reported, and the lack of a universally acceptable termi- nology for effective communication, have made i t d i f f i c u l t to arrive at sound judgments as to what tru l y constitutes constructive progress B-23

I t IS i n this l i g h t that the Advisory Committee recommended a program of technology which would emphasize systems analysis as applied to the t o t a l military f a c i l i t i e s procurement and real property management process Such a program would have the objectives of isolating for attention those things which can promote the systems approach to this process and to systems building and building systems development, and of assuring to the maximum extent possible that truly cost- and performance-effective solu- tions w i l l be achieved The premise on which this program is based i s that benefits would accrue to the nation and to the Department of Defense by a carefully considered increase m the Department's own developmental efforts, and i n i t s use of proven industrialized building technology already developed by others In essence, the Department w i l l be con- tributing to and gaming from the growth of the t o t a l national market for such technology, and, i n those instances where i t s needs for any given type of f a c i l i t y are unique or are sufficient, can lead the market In both cases, the Department can benefit from the resultant economies of scale by reducing the time and cost of f a c i l i t i e s procurement, and from the increase m quality and performance to be gained from such technology The military f a c i l i t i e s procurement program, with i t s annual expenditure of approximately two b i l l i o n dollars (Table B-1) represents a substantial potential market base The tabulation which follows, separates from Table B-1, those f a c i l i t y classes where application of sudi industrialized building technology might most readily be made Facility Class Authorization Requested ($ million) Maintenance § Production 94 5 Supply Facilities 15 6 Hospital § Medical 77 2 Administrative Facilities 52 6 Housing § Community Development 176 1 Family Housing (New Construction) 219 5 TOTAL $635 5 Then, m a broad sense, each f a c i l i t y class would need to be carefully studied to identify, by potential volume and market, those f a c i l i t i e s which are unique and those which are the same as or closely related to those found i n other sectors of the economy I t IS important to differentiate between the use of systems hardware m the design and construction of buildings, building systems, and the systems approach to building procurement and real property management generally the definitions provided under "Terminology" should help i n discerning the differences To reiterate, a large volume of construction by any given procurement agent is not required to make use of existing building systems, subsystems, and systems-oriented components Once these have been developed and distribution channels have been established by the respective producers, they may be used by any procurement agent, whether for one project or for many projects More importantly, however. I t is often possible to use available subsystems and systems-oriented B-24

components without adopting a f u l l building system or systems building concept However, where the desired or necessary hardware does not exist, development of such technology usually requires (1) an organized mar- k e t — i e , a consistent demand made up of a large volume of building, but not necessarily created by a single procurement agent, (2) standardization at some level to place the emphasis on the system or on dimensionally and functionally compatible subsystems or systems-oriented components for that volume of building, (3) designer usage of the systems hardware thus made availal^le, (4) volume purchasing of t o t a l systems or combinations of sub- systems or systems-oriented conqponents, and (5) some degree of systems management—1 e , coordinated management of this t o t a l group of procure- ment ac t i v i t i e s , and preferably operation, maintenance, alteration, and retirement processes as well Systems building ( i e , the systems approach to building) on the other hand, because i t involves the t o t a l cycle of f a c i l i t i e s procurement and real property management including that described i n (5) above, can be applied to conventional construction procurement equally as well as to the development of building systems Obviously, the systems approach to biuldmg and development of building systems can be beneficial to each other TABLE B-1 REQUESTED FUNDS ($ MILLIONS) FOR FISCAL YEAR 1971 Facility Class Operational 9 Training Maintenance ̂ Production R § D Facilities Supply Facilities Hospital § Medical Administrative Facilities Housing g Community U t i l i t i e s § Grounds Real Estate NATO Infrastructure Southeast Asia Sub-Total Defense Agencies Defense Atomic Support Agency Defense Intelligence Agency Defense Supply Agency National Security Agency Defense Communications Agency Secretary of Defense Contingency Sub-Total Family Housing Reserve Components Air Army Navy Force Total 342 9 55 6 85 4 483 9 12 5 44 3 37 7 94 5 32 9 4 5 13 3 50 7 6 2 4 2 5 2 15 6 44 8 10 3 22 1 77 2 13 8 31 3 7 5 52 6 38 7 74 0 63 4 176 1 45 7 53 1 32 6 131 4 6 9 0 1 7 0 50 0 50 0 40 0 40 0 627 5 284 2 267 3 1179 0 43 6 1 3 6 4 0 9 35 0 1222 6 809 0 TOTAL 2069 1 B-25

Increasing emphasis i s being placed on the more "open systems approach " This I S not because essentially closed systems are undesirable or un- acceptable f o r certain a p p l i c a t i o n s — f o r example, standard buildings and standard building systems—but because the open systems approach offers more long-range potential f o r creative design, and f o r achieving f l e x i - b i l i t y , v a r i e t y , and adaptability m f a c i l i t i e s produced Use of essen- t i a l l y closed or proprietary subsystems may be acceptable or desirable w i t h m the open systems context i f these subsystems can be dimensionally and f u n c t i o n a l l y precoordinated and i f high levels of production f o r com- mon elements and strong competitive industry p a r t i c i p a t i o n can be adiieved The rationale behind the open systems concept then, i s that there must be some optimum number of compatible sizes and combinations of coiiq)atible performance characteristics f o r the kinds of components needed t o produce building subsystems and t o t a l systems, and thus buildings of various types and i n adequate va r i e t y This optimum number must be small enough to permit an adequate level of volume production t o j u s t i f y i n d u s t r i a l production techniques Admittedly, the concept i s complex and, as yet, incompletely developed and ar t i c u l a t e d Nevertheless, open systems are viewed as worthy of s t r i v i n g f o r because of the p o t e n t i a l benefits which can accrue I d e n t i f i e d p o t e n t i a l benefits of i n d u s t r i a l i z e d systems and build i n g include -the following 1 Reduced time and cost of building design by use of standardized per- formance- and systems-oriented design c r i t e r i a and guide specifica- tions and standards, and by use of precoordinated and prequalified systems, subsystems, and systems-oriented components 2 Increased efficiency of on-site construction and/or assembly from use of a technology which minimizes onsite labor and the need f o r many highly specialized and costly s k i l l s 3 Time saving by prebiddmg (and i n appropriate instances, stockpiling) systems, subsystems, and systems-oriented components 4 Time saving and efficiency from increased a b i l i t y t o develop and control scheduling 5 Greater owner control over c o s t - - i e , greater a b i l i t y t o estimate and control costs because a larger percentage of the t o t a l construc- t i o n cost w i l l be a part of manufactured and prebid portions, and i n s t a l l a t i o n i n most instances w i l l be less affected by weather or season, or delivery subject to job-orient'ed production scheduling 6 Improved q u a l i t y of finished f a c i l i t i e s , because parts and the whole w i l l be less subject t o v a r i a t i o n — i e , more precise q u a l i t y control procedures can be implemented under factory controlled conditions, and precoordinated systems, subsystems, and systems-oriented com- ponents can be prequalified t o ensure fixe d r e s p o n s i b i l i t y f o r accept- able performance B-26

10 Increased competition due t o more open specifications, and thus fewer instances o f specialized design c a l l i n g f o r special products Economic pot e n t i a l from contractual groining o f small projects Improved q u a l i t y of both the f a c i l i t y and the physical environment created, because performance w i l l be easier t o predict and co n t r o l , and because useful l i f e and long-term performance w i l l be enhanced by the inherent a b i l i t y t o maintain more easily and t o a l t e r and replace physically or functionally obsolescent parts or the whole Increased time for creative f a c i l i t y design, and greater research and development input to systems, siibsystems, and systems-onented components because of the enhanced market po t e n t i a l Although the potential f o r i n d u s t r i a l i z e d and systems b u i l d i n g can be indicated by actual experience i n many instances, the b u i l d i n g process I S highly complex, and success or f a i l u r e o f any given development program can depend heavily on the approach taken As a consequence, a separate accounting for i n d u s t r i a l i z e d b u i l d i n g a c t i v i t i e s i s considered not only desirable but o f prime importance This stems from the need fo r separating developmental from normal procurement costs, and thus neither penalizing nor overrating new systems technology Every e f f o r t , however, should be made t o establish comparability i n the way cost and time are measured, regardless o f the procurement method The objective should be to achieve time and cost reductions while improving q u a l i t y The degree to which t h i s objective i s realized must be known To summarize, a well structured technology program today would be one that I S based on the frank recognition that the program must be organized i n a "mid-stream" environment That i s , f a c i l i t i e s procurement has been and I S going on and cannot be stopped to allow f o r a fresh new approach Further, much technology, even b u i l d i n g systems technology, i s currently available and can and should be used F i n a l l y , even new technology deve- lopment programs must be structured so as to provide a smooth t r a n s i t i o n between development and ultimate application Therefore, the technology program cannot be created as a clean process, beginning with goals and moving t o conclusions I t has t o mesh with the procurement cycle and make gradual contributions to improvement i n a l l phases o f that cycle, with the gradual introduction o f e n t i r e l y new hardware elements and procurement modes This I S the p r i n c i p a l reason that a systems analysis team was suggested as the lo g i c a l s t a r t i n g point and the core of the technology program As stated m the body of t h i s report, the team should establish a program fo r analysis and a r t i c u l a t i o n of the systems approach to the ent i r e procurement and real property management process This process would be based upon the performance concept and approach and would r e s u l t i n a systems buil d i n g program plan From t h i s plan, research needs would be i d e n t i f i e d , opportunities f o r use of exis t i n g new technology, including building systems technology, would be i d e n t i f i e d , needs f o r new technology development programs would be i d e n t i f i e d , and, ul t i m a t e l y , research, B-27

developmental,and experimental programs would be packaged ( t o involve one or more of the m i l i t a r y Departments, and, where desirable and practicable, i n cooperation with other elements of the public and private sectors), funded and executed, with ultimate introduction of worthy developments i n t o the procurement and real property management system Because systems buil4].ng and building systems development and use i s so dependent upon volume considerations, market aggregation and organization must be an underlying and continuing element of the program However, the size of the^bmarket to be set aside as targets f o r s p e c i f i c technology u t i ^ z a t i o n or developmental programs w i l l depend upon the proper i d e n t i - i f i c a t i o n and a r t i c u l a t i o n of user requirements (or needs) The complete 'performance approach then, rememberiing that i t must at a l l times be re- lated t o the actual and po t e n t i a l mt^rket, would be as follows User Requirements and Constraints User requirements and constraints constitute the set of influences imposed upon the systems bu i l d i n g process and bu i l d i n g systems de- velopment Through modeling of the procurement and real property management process, and systems analysis applied t o that model, i t would be possible to i d e n t i f y and express a l l aspects of need from ' the users standpoint, p a r t i c u l a r l y with respect to physical and functional needs i n r e l a t i o n t o the sp e c i f i c f a c i l i t i e s and f a c i l i t y types projected I t also would be possible t o i d e n t i i ^ and delineate the operable constraints i n the same manner thus providing the basic information with vAiich t o set target goals Performance C r i t e r i a and Evaluative Techniques Performance c r i t e r i a are expressions of the user needs and operable constraints m terms of functional and technical characteristics and dimensional and interface requirements f o r subsystems and systems- onented components These c r i t e r i a describe the desired performance and clear l y delineate what physical tests or other evaluative tech- niques w i l l be used t o judge whether that which i s t o be procured w i l l m fact s a t i s f y the c r i t e r i a I t also should be clear how coiiq>arative judgments w i l l be made r e l a t i v e t o cost and functional s a t i s f a c t i o n so as t o avoid u n f a i r competition I f possible a range of performance/- cost targets should be set, with an indi c a t i o n of market volume attainable with each Another related aspect of the performance requirements i s the value t o be assigned to operational and maintenance requirements and costs The physical structure of the building may represent less than h a l f the f i r s t cost and a s t i l l smaller proportion of t o t a l cost when operation and maintenance are considered Experience gained i n the operation and maintenance of buildings, therefore, should have a strong influence on a l l aspects of performance documents B-28

Development and Procurement Procedures Once the constituent parts o f the m i l i t a r y f a c i l i t i e s program have been i d e n t i f i e d i n terms of markets f o r systems, subsystems, and systems-oriented components, and how they should perform, the avenues for implementing systems building development and procurement can be many Where existing systems, subsystems, or systems-oriented com- ponents can be used, a minimum of development may be required Normal design procedures need only be amended to allow t h e i r incorporation With time, however, some measure o f standardization on the basis of dimensions, characteristics, and functions would be required t o enhance ease and f l e x i b i l i t y of design and replacement and to assure consistent quality Application of existing technology i n many areas could be held to a li m i t e d market, and viewed as a prelude to larger scale usage when a f u l l - s c a l e development program i s underway As previously noted elsewhere i n t h i s report and i n t h i s discussion, the process of application, p a r t i c u l a r l y when new technology i s being sought, I S a staged one I n i t i a l performance c r i t e r i a f o r open or closed systems, or even f o r systems-oriented components, can be issued, together with a delineation of the developmental, experimen- t a l , and potential long-term market that w i l l be available, t o enable industry to develop the needed hardware and software Evaluation, precoordination, and prequalifying are a l l a part of the developmental and subsequent processes Development can include experimental pro- totype procurement Because i t l i k e l y w i l l involve substantial hardware investment, experimental procurement can be blended with regular procurement of f a c i l i t i e s so as to share costs, account f o r costs, and make cost-effective determinations f o r l a t e r large scale procurement And as stated e a r l i e r , cooperation with others i n the public and private sectors where the m i l i t a r y need i s not unique, can only enhance the program by expanding the market po t e n t i a l and thus aug- menting the interest and investment of potential participants i n the t o t a l market Construction Scheduling, Management, and Execution Once any given development and experimental e f f o r t has been deter- mined to be cost-effective and ready f o r introduction i n t o the regular or new procurement mode procedures, d e f i n i t i v e and legal procurement c r i t e r i a , specifications, standards, and guidelines w i l l need to be fi n a l i z e d and made available to the f i e l d o ffices f o r regular pro- curement Performance Evaluation and Feedback At a l l steps i n the process and p a r t i c u l a r l y a f t e r normal procurement is i n process, performance evaluation and feedback t o every element i n the systems analysis program i s essential, but p a r t i c u l a r l y to the B-29

user requirements and constraints aspects where there i s greatest opportunity to effect s i g n i f i c a n t change i n the way f a c i l i t i e s and t h e i r performance are viewed In-depth analysis of experience gained by the private sector, other federal agencies, and cert a i n l y w i t h i n and between the m i l i t a r y F a c i l i t i e s Procurement Agents themselves, can contribute to minimizing duplication of u n f r u i t f u l or i n p r a c t i c a l approaches, and at the same time provide valuable d i r e c t i o n t o more promising approaches F i n a l l y , i n a r r i v i n g at the approaches t o be taken, coordination of findings and alternatives should be considered as they i n t e r a c t and i n t e r r e l a t e and should form the basis f o r the selection of f a c i l i t i e s f o r development and f o r de- termining the scope of the program While the complexities of the new movement toward i n d u s t r i a l i z e d b u i l d i n g and biul d i n g technology are great, a well-organized and c a r e f u l l y moni- tored technology program can provide the Department of Defense and i t s F a c i l i t i e s Procurement Agents with a potent vehicle f o r further advance- ment and one which i s p a r t i c u l a r l y adaptable to the owner-manager approach Care need only be exercised t o insure that actions taken continue t o expand the opportunity f o r c r e a t i v i t y and construction change B-30

APPENDIX C AN ANALYSIS OF THE EXISTING SYSTEM FOR OBTAINING MILITARY FACILITIES AND A REVIEW OF CJONSTRUCTION PRACTICES AND METHODS EMPLOYED BY OTHER FEDERAL AND NONFEDERAL ORGANIZATIONS I h i s Progress Report of the Special Advisoxy Committee on Management of M i l i t a i y Construction was o r i g i n a l l y transmitted t o the Office o f the Assistant Secretary of Defense ( I n s t a l l a t i o n s and Logistics) i n August 1970 Following review o f the Progress Report, the Office o f the Assistant Secretary ( I n s t a l l a t i o n s and Logistics) submitted f o r Special Advisory Committee consideration w r i t t e n comments concerning c l a r i t y , completeness, and accuracy of the report content On 11, 14, and 15 December 1970, representatives of the three m i l i t a r y De- partments held briefings f o r BRAB S t a f f t o the Special Advisory Committee t o further c l a r i f y and expand upon certain aspects of the exist i n g system discussed i n the Report On 16-17 December 1970, the Special Advisory Committee reviewed a l l comments received t o that date, and recommended modifications accordingly This Appendix C presents a revised version o f the August 1970 Progress Report, and incorporates a l l modifications considered appropriate and necessary by the Committee C-1

AN ANALYSIS OF THE EXISTING SYSTEM FOR OBTAINING MILITARY FACILITIES AND A REVIEW OF CONSTRUCTION PRACTICES AND METHODS EMPLOYED BY OTHER FEDERAL AND NON-FEDERAL ORGANIZATIONS Prepared by the Special Advisory Committee on Management of M i l i t a r y Construction f o r the U S Department of Defense of the Building Research Advisory Board Division of Engineering-National Research Council f o r the U S Department of Defense National Academy of Sciences Washington, D C August 1970 CRevised January 1971)

This I S a report of work under Contract No DAHC 15 70 C 0198 between the U S Department of Defense and the National Academy of Sciences Inquiries concerning t h i s report should be addressed to The Executive Director, Building Research Advisory Board, Division of Engineering- National Research Council, 2101 Constitution Avenue, N W , Washington, D C 20418 ^

NATIONAL ACADEMY OF SCIENCES - NATIONAL RESEARCH COUNCIL DIVISION OF ENGINEERING BUILDING RESEARCH ADVISORY BOARD SPECIAL ADVISORY COMMITTEE ON MANAGEMENT OF MILITARY CONSTRUCTION Chairman Andrew J Watt, Senior Vice President, U S Gypsum Company, Chicago, I l l i n o i s Members Martin David Dubin, Partner, Dubin, Dubin, Black and Moutoussamy, Chicago, I l l i n o i s John G Heimann, Vice President and Director, E M Warburg Company, New York, New York Robert R Jones, Partner, Syska and Hennessy, Inc , Washington, D C Nathaniel Macon Martin, President, Sheraton Design and Development Corporation, Boston, Massachusetts Ph i l i p James Meathe, Executive Vice President, Smith, Hinchman § Grylls Associates, Inc , Det r o i t , Michigan David S M i l l e r , Senior Vice President, The E F Hauserman Company, Cleveland, Ohio Gerald McKee, President, McKee, Berger and Mansueto, Inc , New York, New York Robert H Ryan, President, Ryan Development Association, Inc , Pittsburgh, Pennsylvania Guy F Tozzoli, Director, World Trade Department, The Port of New York Authority, New York, New York Howard S Turner, President and Chief Executive Officer, Turner Construction Company, New York, New York Alfred T Waidelich, Executive Vice President, Engineering and Research, The Austin Coiipany, Cleveland, Ohio Frank L Whitney, President, Walter Kidde Constructors, Inc , New York, New York Staff William A Cosby, Program Manager - Special Projects R Barry Ashby, BRAB Consultant Charles E Schaffiner, BRAB Consultant Michael Sumichrast, BRAB Consultant Donald M Wemroth, BRAB Consultant James R Smith, BRAB Assistant Director Technical Operations 111

FOREWORD This report on an analysis of the existing system f o r obtaining m i l i t a r y f a c i l i t i e s and a review of construction practices and techniques employed by other federal and private organizations i s the second i n a series of scheduled progress reports I t has been approved f o r transmittal to the program sponsor by the Biuldmg Research Advisory Board's Special Advisory Committee on Management of M i l i t a r y Construction f o r the U S Department of Defense As a progress report, a l l material contained herein i s subject to possible modification by subsequent findings and actions of the committee R M D i l l o n Executive Director Building Research Advisory Board IV

CONTENTS I INTRODUCTION 1 A Objectives o f the Study 1 B Scope and Limitations o f the Study 1 C Conduct of the Study 3 I I ANALYSIS OF EXISTING SYSTEM FOR OBTAINING MILITARY FACILITIES 5 A The System m Perspective 5 1 The Congress and the General Accounting Office 5 2 The Executive Office o f the President 6 3 The Department o f Defense 7 a Office o f the Secretary o f Defense 7 b Joint Chiefs o f S t a f f 10 4 Classification and I d e n t i f i c a t i o n o f M i l i t a r y F a c i l i t i e s 11 5 Indication o f the Magnitude of the M i l i t a r y Construction Program 12 6 Accountability 18 7 Design and Construction Agents o f the M i l i t a r y Services 19 8 Congressional Involvement 20 9 The M i l i t a r y Construction Cycle 23 10 Personnel 24 B The System fo r Obtaining Array F a c i l i t i e s 24 1 Participants i n the System 24 2 Functions and Responsibilities o f the Participants 25 a The Office o f the Secretary o f the Amy 25 b The Amy S t a f f 29 c The Commands 38 3 Operation of the System 38 a Planning Subsystem 49 b Fvnding Subsystem 56 c Design Construction Subsystem 60 The System for Obtaining Navy F a c i l i t i e s 65 1 Participants m the System 65 2 Functions and Responsibilities o f the Participants 68

a The Naval F a c i l i t i e s Engineering Command, Headquarters 68 b Engineering Field Divisions of the Naval F a c i l i t i e s Engineering Command 88 c A c t i v i t y (Station) Piiblic Works Officer 97 3 Operation of the System 98 D The System f o r Obtaining A i r Force F a c i l i t i e s 102 1 Participants m the System 102 2 Functions and Responsibilities of the Participants 105 a Office of the Secretary o f the A i r Force 105 b The A i r Staff 112 3 Operation of the System 122 E Survey of A/E Firms Involved i n the M i l i t a r y Construction Program 131 I I I REVIEW OF CONSTRUCTION PRACTICES AND METHODS EMPLOYED BY OTHER FEDERAL AND NON-FEDERAL ORGANIZATIONS 135 A The Post Office Department 135 1 Organization 135 2 Capital Investment Committee 138 3 Acquisition 141 4 Procurement 146 5 Design 147 6 Construction 147 7 Perspective 148 B The General Services Administration 150 C Veterans Administration 159 D The Department of Housing and Urban Development 165 E Construction Practices and Methods Employed by Non-Federal Organizations 166 1 I n d u s t r i a l Firms 166 2 Commercial Office Biuldings Constructed by Developers 167 3 The Port of New York Authority's World Trade Center 169 VI

L i s t o f Figures Figure 1 Figure 2 Figure 3 Figure 4 Figure 5 Figure 6 Figure 7 Figure 8 -Figure 9 Figure 10 Figure 11 Figure 12 Figure 13 Figure 14 Figure 15 Figure 16 Figure 17 Figure 18 Figure 19 Figure 20 Figure 21 Figure 22 Figure 23 Figure 24 Figure 25 Figure 26 Figure 27 Figure 28 Figure 29 Figure 30 Figure 31 Figure 32 Figure 33 Figure 34 Figure 35 Department of Defense 8 Department of the Army 26 Office o f the Assistant Secretary of the Array ( I n s t a l l a t i o n s § Logistics) 30 Office of the Deputy Chief of St a f f f o r Logistics 32 U S Corps of Engineers, Office, Chief of Engineers 35 Directorate o f M i l i t a r y Construction, Office of the Chief of Engineers) 36 U S Army Engineer Division, South Pacific 37 U S Array Engineer D i s t r i c t ^ Sacramento _ _ 39- U-S~-Army-Resident Engineers, Monterey 41 Headquarters, U S Continental Army Command 43 Headquarters, Sixth U S Army 45 Engineering Division, Headquarters, Sixth Army 47 F a c i l i t i e s Engineer, Fort Ord 48 Flow chart o f the Army M i l i t a r y Construction Program 51 Naval F a c i l i t i e s Engineering Command, Headquarters 66 An Engineering Field Division of the Naval F a c i l i t i e s Engineering Command 67 Office of the Director o f Programs and Comptroller(01) 69 Office of the Assistant Commander f o r Engineering and Design (04) 71 Office of the Engineering Division (041) 73 Office o f the Assistant Commander for Construction (05) 75 Office of the Assistant Commander f o r Real Property Management (07) 79 Office o f the Assistant Commander f o r Family Housing (08) 80 Office of the Assistant Commander for Operations and Maintenance (10) 82 Office of the Assistant Commander f o r F a c i l i t i e s Planning (20) 83 Office o f the Assistant Commander f o r M i l i t a r y Construction Programming (21) 86 Office of the Assistant Commander f o r M i l i t a r y Readiness (06) 88 Acqxusition Department of an EFD of NAVFAC 92 Fa c i l i t i e s Management Department o f an EFD o f NAVFAC 94 F a c i l i t i e s Planning Department of an EFD of NAVFAC 95 Typical Piiblic Works Department of Naval Station 96 Flow chart of Shore F a c i l i t i e s I n s t a l l a t i o n Planning and Programming 99a Flow chart of the Navy M i l i t a r y Construction Program 101 Office of the Secretary o f the A i r Force 103 Office of the A i r Force Chief of St a f f 104 Distribution o f Air Force Major Commands and Installations 106 VI1

Figure 36 Strategic Air Command Figure 37 Typical Air Force Base Figure 38 Typical A i r Force Base C i v i l Engineer Division Figure 39 Office of the Air Force Directorate of C i v i l Engineering Figure 40 Office of the Air Force Regional C i v i l Engineer-Western Region Figure 41 Flow chart of the Air Force M i l i t a r y Construction Program Figure 42 Post Office Department Figure 43 F a c i l i t i e s acquisition decision process before postal reform Figure 44 Capital Investment Committee decision flow process Figure 45 Flow chart f o r Post Office budgeting and appropriations cycle Figure 46 Average time f o r PBS and private industry to design and b m l d a $10 m i l l i o n o f f i c e building Figure 47 Present PBS bmlding cycle f o r construction of a $10 m i l l i o n o f f i c e b u i l d i n g Figure 48 Comparison of time cycles f o r potential PBS building systems Figure 49 Proposed building cycle using PBS sequential design-bid- construct system modified as recommended by the study Figure 50 Proposed building cycle using preliminary planning funds, construction manager, project manager, single (design/ construction) appropriation, concurrent design review, and phased construction Figure 51 Proposed building cycle using preliminary planning funds, single appropriation, project manager, and Turnkey procedures Figure 52 Veterans Administration Figure 53 Office of Construction, Veterans Administration Figure 54 Flow chart of events required f o r obtaining VA medical f a c i l i t i e s Figure 55 Sequencing versus phased construction 107 108 109 114 123 130 136 139 140 145 152 153 155 156 157 158 160 161 164 168 V l l l

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