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From page 32...
... 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 inspect 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 responsib 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 Logist i c s )
From page 33...
... 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 management 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)
From page 34...
... 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)
From page 35...
... 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)
From page 36...
... 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)
From page 37...
... 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
From page 38...
... 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 cont 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)
From page 39...
... 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 required for real property development, and during periods of expansion 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 procurement 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 provide 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 requirements Supply and demand factors also affect price, however, with an adequate materials and products mix, the net e f f e c t on construction 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
From page 40...
... products, m further reducing waste through dimensional and funct 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 considerable 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 everincreasing 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 technology 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 comprehension 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 tentat 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)
From page 41...
... 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 evaluative 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 cons 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.
From page 42...
... 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, subsystem, 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 maximization 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 technology 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 necess 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
From page 43...
... 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 experiment 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 coordinated 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 concept 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)
From page 44...
... 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)
From page 45...
... 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 organizing 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 response University Residential Building System (URBS)
From page 46...
... 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 package 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 considered at one time Study of Educational F a c i l i t i e s (SEP)
From page 47...
... 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 essent i a l l y government-created demand, predominantly site cast and precast concrete industrialized systems emerged»i.e , concrete panel, module, 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 costand 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 franchise 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, operation and maintenance -- and is directed at a potential material market, as yet undefined and unaggregated A request for proposals (RFP)
From page 48...
... category, or hardware and software concepts relating to hoiising that required further development before they could be implemented 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 acceptable 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;)
From page 49...
... 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 Construction, 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 program 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 Development Corporation (UDC) with extraordinary powers to float loans, to condemn land, and to override local codes and ordinances The primary mission has been stated to be one of helping localities i n providing urgently needed housing for low and middle income families The program as now planned encompasses 43,000 dwelling units m 54 projects located i n 26 communities 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 concentrating 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 Commission 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 provide 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
From page 50...
... 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 threefold (1) only systems with demonstrated capability are considered, (2)
From page 51...
... pooling of expertise and market potential This program, ent 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 consumers 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 industr 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)
From page 52...
... 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.
From page 53...
... Air Force nor any of the three military construction agencies, which a l l share the same problem, can afford to continue construction 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 requirements 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 General requirements address warranties and guarantees, manufacturing capability and financial s t a b i l i t y , as well as conformance 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 appropriations, 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
From page 54...
... More significantly, however, is a longer range approach undertaken 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 designers 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 .
From page 55...
... 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/prefabricated 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 subsystems was developed along with outline performance specifications 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/prefabricated and/or systems building, and a selection of representative building f a c i l i t i e s for use i n detailed 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 representative 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 provided 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.
From page 56...
... and to establish the f e a s i b i l i t y of using preengineered/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 disadvantages ) 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 procurement, and data needs, data points, data logs, and an evaluation format )
From page 57...
... 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-politicaleconomic 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 constraint removal or accommodation can be addressed One is from the viewpoint 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 minimized to allow a specific undertaking to go forward, the lack of universa 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.
From page 58...
... 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-contracts 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 procurement 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 suff 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.
From page 59...
... 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 longterm 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 producer 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.
From page 60...
... 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 constraints 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-economicp 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 environmental 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 constructive 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 terminology 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
From page 61...
... 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 solutions 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 contributing 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)
From page 62...
... 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 mark 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)
From page 63...
... Increasing emphasis i s being placed on the more "open systems approach " This I S not because essentially closed systems are undesirable or unacceptable 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 essent 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 common 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 performance- and systems-oriented design c r i t e r i a and guide specifications 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)
From page 64...
... 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 development 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
From page 65...
... 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]
From page 66...
... 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 components 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, experiment 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 prototype 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 augmenting 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 determined 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 procurement 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
From page 67...
... 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 determining 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 monitored 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 advancement 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
From page 68...
... 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)
From page 69...
... 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)
From page 70...
... 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 EngineeringNational Research Council, 2101 Constitution Avenue, N W , Washington, D C 20418 ^
From page 71...
... 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
From page 72...
... 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
From page 73...
... 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
From page 74...
... 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
From page 75...
... 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)
From page 76...
... 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-bidconstruct 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

Key Terms



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