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Commilting to the Cost
of Ownership
Maintenance and repair
of Public Buildings
Committee on
Advanced Maintenance Concepts for Buildings
Building Research Board
Commission on Engineering and Technical Systems
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C. 1990
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\
National Academy Press . 2101 Constitution Avenue, N.W. . Washington, D.C. 20418
NOTICE: The project that is the subject of this report was approved by the Governing
Board of the National Research Council, whose members are drawn from the councils
of the National Academy of Sciences, the National Academy of Engineering, and the
Institute of Medicine. The members of the committee responsible for the report were
chosen for their special competences and with regard for appropriate balance.
This report has been reviewed by a group other than the authors according to
procedures approved by a Report Review Committee consisting of members of the
National Academy of Sciences, the National Academy of Engineering, and the Institute
of Medicine.
The National Academy of Sciences is a private, nonprofit, self-perpetuating society
of distinguished scholars engaged in scientific and engineering research, dedicated to
the furtherance of science and technology and to their use for the general welfare.
Upon the authority of the charter granted to it by the Congress in 1863, the Academy
has a mandate that requires it to advise the federal government on scientific and
technical matters. Dr. Frank Press is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter
of the National Academy of Sciences, as a parallel organization of outstanding
engineers. It is autonomous in its administration and in the selection of its members
sharing with the National Academy of Sciences the responsibility for advising the
federal government. The National Academy of Engineering also sponsors engineering
programs aimed at meeting national needs, encourages education and research and
recognizes the superior achievements of engineers. Dr. Robert M. White is president
of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of
Sciences to secure the services of eminent members of appropriate professions in the
examination of policy matters pertaining to the health of the public. The Institute acts
under the responsibility given to the National Academy of Sciences by its congressional
charter to be an adviser to the federal government and, upon its own initiative to
identify issues of medical care, research, and education. Dr. Samuel O. Thie; is
president of the Institute of Medicine.
The National Research Council was established by the National Academy of
Sciences in 1916 to associate the broad community of science and technology with the
Academy's purposes of furthering knowledge and of advising the federal government.
Functioning in accordance with general policies determined by the Academy, the
Council has become the principal operating agency of both the National Academy of
Sciences and the National Academy of Engineering in providing services to the
government, the public, and the scientific and engineering communities. The Council
is administered jointly by both Academies and the Institute of Medicine. Dr. Frank
Press and Dr. Robert ~ White are chairman and vice-chairman, respectively, of the
National Research Council.
This report was prepared as part of the technical program of the Federal
Construction Council (FCC). The FCC is a continuing activity of the Building
Research Board, which is a unit of the Commission on Engineering and Technical
Systems of the National Research Council. The purpose of the FCC is to promote
cooperation among federal construction agencies and between such agencies and other
elements of the building community in addressing technical issues of mutual concern.
The FCC program is supported by 14 federal agencies: the Department of the Air
Force, the Department of the Army, the Department of Commerce, the Department of
Energy, the Department of the Navy, the Department of State, the General Services
Administration, the National Aeronautics and Space Administration, the National
Endowment for the Arts. the National Science Foundation. the U.S. Postal Service, the
U.S. Public Health Service, the Smithsonian Institution, and the Department of
Veterans Affairs.
Funding for the FCC program was provided through the following agreements
between the indicated federal agency and the National Academy of Sciences:
Department of State Contract No.1030-621218; National Endowment for the Arts Grant
No. 42-4253-0091; National Science Foundation Grant No. MSM-8600676, under master
agreement 82-05615; and U.S. Postal Service grant, unnumbered.
Limited supplies of this document are available from the National Academy Press,
2101 Constitution Avenue, NW, Washington, DC 20418. A charge of $5.00 for postage
and handling must be prepaid.
Printed in the United States of America
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BUILDING RESEARCH BOARD
(1989-1990)
RICHARD T. BAUM (Chairman), Consultant, Jaros, Baum and
Bolles, New York, New York
LYNN S. BEEDLE, University Distinguished Professor of Civil
Engineering and Director, Council on Tall Buildings and
Urban Habitat, Lehigh University, Bethlehem, Pennsylvania
GERALD L. CARLISLE, Secretary-Treasurer, International
Union of Bricklayers & Allied Craftsmen, Washington, D.C.
NANCY RUTLEDGE CONNERY, Consultant, Woolwich, Maine
RAY F. DeBRUHL, Executive Vice President, Davidson and
Jones Corporation, Raleigh, North Carolina
C. CHRISTOPHER DEGENHARDT, President, EDAW, Inc., San
Francisco, California
DAVID R. DIBNER, Vice President and Principal Architect,
Sverdrup Corporation, Arlington, Virginia
ELISHA C. FREEDMAN, Regional Manager, Boyer, Bennett ~
Shaw, Inc., and Executive-in-Residence, University of
Hartford, Connecticut
DONALD G. ISELIN, USN, Retired; Consultant, Santa Barbara,
California
GEORGE S. JENKINS, Consultation Networks Inc., Washington,
D.C.
RICHARD H. JUDY, Richard H. Judy & Associates, Inc., Miam
Florida
FREDERICK KRIMGOLD, Associate Dean for Research and
Extension, Virginia Polytechnic Institute and State
University, Alexandria, Virginia
HAROLD J. PARMELEE, President, Turner Construction
Company, New York, New York
LESLIE E. ROBERTSON, Director, Design and Construction,
Leslie E. Robertson Associates, New York, New York
· · ~
At.
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JAMES E. WOODS, William E. lamerson Professor of Building
Construction, College of Architecture and Urban Studies,
Virginia Polytechnic Institute and State University,
Blacksburg, Virginia
APRIL L. YOUNG, Senior Vice President, NVR Development,
L.P., McLean, Virginia
Staff
-
ANDREW C. LEMER, Director
HENRY A. BORGER, Executive Secretary, Federal Construction
Council
PETER H. SMEALLIE, Executive Secretary, Public Facilities
Council
PATRICIA M. WHOLEY, Staff Associate
JOANN V. CURRY, Senior Secretary
LENA B. GRAYSON, Senior Secretary
1V
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COMMITTEE ON ADVANCED MAINTENANCE
CONCEPTS FOR BUILDINGS
Chairman
ROBERT F. JORTBERG (USN, Retired), Construction Industry
Institute, The University of Texas at Austin
Members
DONALD G. CARTER, Carter Engineering, Inc., Kensington,
Maryland
DAVID COTTS, Building Maintenance and Repair, The World
Bank, Washington, D.C.
DAVID MICHAEL CROSKERY, Engineering Department, E. I.
DuPont de Nemours & Co., Newark, Delaware
VIVIAN LOFTNESS, Department of Architecture, Carnegie
Mellon University, Pittsburgh, Pennsylvania
JOHN H. MYERS, Department of Architecture, Georgia Institute
of Technology, Atlanta
DENNIS O'LEARY, Commissioner of Maintenance and
Construction Department, City of Scarborough, Ontario,
Canada
HARRY STEVENS, JR., Albany, New York
THOMAS E. WIGGINS, Hanscomb Associates, Inc., Atlanta,
Georgia
Federal Construction Council Liaison Representatives
STEVE BEATTY, Facilities Management Department, Naval
Facilities Engineering Command, Washington, D.C.
THOMAS BEDICK, National Center for Toxicological Research,
U.S. Public Health Service, Jefferson, Arkansas
WILLIAM G. ESCHMANN II, Office of Management Equipment,
U.S. Postal Service, Washington, D.C.
v
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DENIS J. FECK, U.S. Department of Energy, Washington, D.C.
DENNIS FIRMAN, Tyndall Air Force Base, Florida
WILLIAM GRAHAM, Office of Facilities, U.S. Department of
Veterans Affairs, Washington, D.C.
HARLAN HEFNER, Facilities Division, Naval Facilities
Engineering Command, Alexandria, Virginia
DANIEL L. HIGHTOWER, Division of Health Facilities
Planning, U.S. Public Health Service, Rockville, Maryland
JOHN IACONIS, Public Buildings Service, General Services
Administration, Washington, D.C.
JOHN JENKINS, Facilities Engineering Branch, National
Institutes of Health, Bethesda, Maryland
ERIC LAWSON, U.S. Army Construction Engineering Research
Laboratory, Champaign, Illinois
TONY C. LIU, U.S. Army Corps of Engineers, Washington, D.C.
JAMES G. PALMBORG, Naval Facilities Engineering Command,
Washington, D.C.
JESSE F. SINTES, Department of Facility Management, Indian
Health Service, Rockville, Maryland
KURT SISSON, Facilities Operations and Maintenance Division,
National Aeronautics and Space Administration, Washington,
D.C.
DONALD UZARSKI, U.S. Army Construction
Research Laboratory, Champaign, Illinois
Public Facilities Council Liaison Representatives
Engineering
RICHARD BLAES, Department of Facilities and Services,
Montgomery County, Maryland
SPEROS FLEGGAS, North Carolina State Construction Office,
Raleigh
PAUL POSTON, Division of Capital Planning and Operations,
State of Massachusetts, Boston
THOR WORONCZUK, Division of Properties and Facilities
Management, State of New Jersey, Trenton
American Public Works Association
RITA KNORR, American Public Works Association, Chicago,
Illinois
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Association of Physical Plant Administrators
WAYNE LEROY, Association of Physical Plant Administrators,
Alexandria, Virginia
Protect Staff
ANDREW C. LEMER
PETER H. SMEALLIE
PATRICIA WHOLEY
JOANN CURRY
· -
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PREFACE
Dig a well before you are thirsty.
Chinese proverb
Maintenance of buildings and other constructed facilities--
an important part of our national assets--demonstrates confi-
dence in the future and recognition of the investment made by
preceding generations for the sake of their children. The closing
decade of the 20th century finds us beset by many indications
that public policy is failing, either by conscious decision or
insufficient foresight, to protect the value of these assets.
Some observers write of "America in ruins" and describe the
"fragile foundations" upon which our economic prosperity rests.
Alarming characterizations of the condition of our schools, other
public buildings, and transportation systems abound, seemingly
with good reason. Credible analyses indicate that we are syste-
matically neglecting the maintenance of public facilities at all
levels of government. We are spending our assets and wasting
our inheritance.
The earliest signs of neglect are often subtle and escape the
notice of those unprepared by training or experience to recognize
them. Herein lies a major element of the problem: It is difficult,
in times of tight budgets and competing demands for public re-
sources, to convince those responsible for public policy that neg-
lect can lead to losses. We seem to need a disaster to focus our
attention and motivate action.
Yet we and the committee whose deliberations are the basis
for this report subscribe to the wisdom of the Chinese proverb.
We argue not that disaster is upon us but that our experience
demonstrates that greater commitment is needed if disaster is to
be avoided. We hope that our work will enhance this commit-
ment.
Robert F. Jortberg, Chairman,
Committee on Advanced
Maintenance Concepts for
Buildings
Andrew C. Lemer, Director
Building Research Board
1X
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SUMMARY OF FINDINGS AND RECOMMENDATIONS
The nation's public buildings--government administration
buildings, health care facilities, schools, correctional facilities,
and a variety of other elements of public infrastructure--are
assets acquired through the investment of tax dollars over the
years and are critical to the nation's high quality of life and
productive environment. Public officials, the stewards of these
assets, must bear responsibility for their effective maintenance.
Widespread underfunding of maintenance of public facilities,
caused by many factors, can affect public health and safety, re-
duce productivity of public employees, and cause long-term
financial losses when buildings must be prematurely renewed or
replaced.
This document is the report of a committee asked by the
Building Research Board to undertake a broad review of main-
tenance and repair activities of government agencies and to
recommend how these activities might be improved. Based on its
own review of available information, consideration of reports
by agency personnel and other professionals, and the experience
of its members, the committee is troubled. The procedures and
allocations of resources for managing the public's built assets--
influenced by a variety of financial and political pressures as
well as technical requirements--are failing to protect these assets,
and the potential costs of correcting past neglect are measured in
billions of dollars. (See Chapter 2.) These procedures and alloca-
tions must be changed to recognize the full costs of ownership
of these assets and to support appropriate maintenance activities.
The committee hopes that its findings and recommendations will
help to bring about these changes:
1. Underfunding is a widespread and persistent problem that
undermines maintenance and repair (M&R) of public buildings.
To overcome this problem, M&R budgets should be structured to
identify explicitly the expenditures associated with routine M&R
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requirements and activities to reduce the backlog of deferred
deficiencies. An appropriate budget allocation for routine M&R
for a substantial inventory of facilities will typically be in the
range of 2 to 4 percent of the aggregate current replacement
value of those facilities (excluding land and major associated
infrastructure). In the absence of specific information upon
which to base the M&R budget, this funding level should be used
as an absolute minimum value. Where neglect of maintenance has
caused a backlog of needed repairs to accumulate, spending must
exceed this minimum level until the backlog has been eliminated.
(See Chapter 3.)
2. Periodic condition assessment is an essential step in
effective facilities management. Formal condition assessment
programs should be implemented by agencies responsible for M&R
budgets. These programs will initially serve as the basis for
establishing appropriate levels of funding required to reduce and
eventually eliminate backlog. Once backlog is eliminated and a
steady-state performance is achieved, the condition assessment
becomes a management tool for monitoring the effectiveness of
M&R activities. Condition assessment programs require trained
technicians and managers and should be standardized to control
their cost and to ensure consistency of the results. Federal
agencies and other owners and users of large inventories of build-
ings should undertake to establish guidelines for such programs.
(See Chapter 4.)
3. While adequate M&R funding based on recognition of the
full costs of ownership is a prerequisite for protection of the
public's assets, effective maintenance management is also re-
quired to realize the full benefit of the funds made available.
Agencies should make specific assignments of responsibility for
M&R to qualified and trained staff and managers. Activities
such as minor alterations and improvements that may be disguised
as M&R should be clearly identified and not permitted to divert
resources from legitimate M&R functions. Education, training,
and recognition of staff members responsible for M&R are
needed, along with firm commitment to effective management of
our built assets. (See Chapter 5.)
· ~
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