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Research for Construction. Part I - Organization and Funding for

Research. Part II - The Nature of the Construction Industry and Its

Knowledge Needs

Hutcheon, N. B.

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RESEARCH FOR CONSTRUCTION

P a r t I

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O r g a n i z a t i o n and Funding f o r R e s e a r c h

P a r t 11

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T h e N a t u r e of the C o n s t r u c t i o n

I n d u s t r y and I t s Knowledge Needs

A r e p o r t p r e p a r e d f o r the c o n s i d e r a t i o n of the

National R e s e a r c h Council of Canada

N.

B. Hutcheon

D i r e c t o r , Division of Building R e s e a r c h

National R e s e a r c h Council of Canada

S p e c i a l T e c h n i c a l

P u b l i c a t i o n No. 2

of the

Division of Building R e s e a r c h

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C A M P B E L L P R I N T I N G Contract No. 3104044218

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P R E F A C E

Since i t s beginning i n 1947, the Division of Building R e s e a r c h of the National R e s e a r c h Council h a s had a distinguished h i s t o r y of s e r v i c e t o the building and construction i n d u s t r y in Canada. T h i s r e c o r d of achievement i s a l l t h e m o r e r e m a r k a b l e when i t i s r e c a l l e d that the Division had t o s t a r t virtually f r o m s c r a t c h in an important i n d u s t r i a l s e c t o r which i s highly f r a g m e n t e d and in which t h e r e did not e x i s t a t r a d i t i o n of r e s e a r c h and development. Accordingly high p r i o r i t y had n e c e s s a r i l y t o be given t o a s s i s t i n g the industry i n solving o r improving a v a r i e t y of immediate p r o b l e m s and in developing an effective s y s t e m of scientific and technological information d i s s e m i n a - tion in a m a n n e r and i n a f o r m of i m m e d i a t e use t o the industry. T h e r e was a l s o a p r e s s i n g need f o r improved s t a n d a r d s of construction and

s t a n d a r d s of buildings a s well a s f o r safety and f i r e codes. Additionally, during a period in which Canada h a s s e e n unprecedented development, the n e e d s of the nation f o r construction w e r e a l s o changing. Housing construction, where the e m p h a s i s gradually shifted f r o m single self

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contained units t o multiple housing units, and the i n c r e a s i n g need f o r l a r g e engineering construction p r o j e c t s in m a n y different e n v i r o n m e n t s confronted t h e i n d u s t r y with new d e m a n d s and new challenges. The p a s t work of the Division of Building R e s e a r c h of d i r e c t c o n c e r n t o the building and construction i n d u s t r y i s well documented i n the r e c e n t l y published book "The F i r s t 25 Years" p r e p a r e d by the staff of the Division.

*

In the light of the e x p e r i e n c e and p r o g r e s s of the past, i t i s now both opportune and i m p e r a t i v e t o look ahead; opportune since significant advances should now be possible by building on t h e p r o g r e s s , capabilities and e x p e r t i s e that have been achieved, and i m p e r a t i v e since the n a t u r e of t h e p r o b l e m s ahead continue t o change and the R & D needs of the i n d u s t r y a r e i n c r e a s i n g . Since construction in Canada c u r r e n t l y r e p r e s e n t s a n annual expenditure of some 20 billion d o l l a r s which, considered a s an investment, will be expected t o s e r v e Canadians f o r m a n y y e a r s t o c o m e , the question m u s t be s e r i o u s l y a s k e d whether out p r e s e n t and f u t u r e R & D effort will be adequate t o e n s u r e m a x i m u m value f r o m t h i s i n v e s t m e n t , both in economic and i n human t e r m s .

In a d d r e s s i n g o u r s e l v e s t o t h i s i s s u e , a p a r t i c u l a r concern of the National R e s e a r c h Council r e l a t e s t o the f u t u r e r o l e of i t s Division of Building R e s e a r c h in attempting t o s e r v e t h e v a r i e d and growing n e e d s of the building and construction industry. T o a s s e s s t h e s e needs r e a l i s t i c a l l y i n t e r m s of r e q u i r e m e n t s f o r r e s e a r c h , f o r

*

"The F i r s t 25 Years", p r e p a r e d by the Division of Building R e s e a r c h , 1973. NRCC 13240. Available f r o m : P u b l i c a t i o n s Section, Division of Building Re s e a r c h , National Re s e a r c h Council, Ottawa, Canada,

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technical s e r v i c e s and f o r information, i t i s n e c e s s a r y t o have a wider understanding of the nature of the industry and i t s p r o b l e m s , a s well a s i t s i n t e r r e l a t i o n s h i p s and i n t e r f a c e s with other s e c t o r s , . and notably with t h r e e levels of government. The Division of Building R e s e a r c h , by virtue of i t s knowledge and e x p e r t i s e gained by a c l o s e working relationship with the i n d u s t r y o v e r the y e a r s , was accordingly asked t o p r e p a r e the p r e s e n t r e p s r t , which could s e r v e a s a b a s i c background r e p o r t f o r m o r e comprehensive policy formulation. We r e g a r d it a s p a r t i c u l a r l y fortunate that the D i r e c t o r of t h e Division, D r . N. B. Hutcheon, was able t o m a k e provisions f o r his m a n y other duties t o enable him to devote himself full-time to d i r e c t t h i s study and t o p r e p a r e the p r e s e n t r e p o r t . P a r t I1 of the r e p o r t i s c u r r e n t l y the m o s t complete d e s c r i p t i o n and a n a l y s i s of the construction i n d u s t r y in Canada. It will undoubtedly s e r v e a s a m o s t valuable and authoritative background document f o r m a n y y e a r s t o come.

One a s p e c t of the r e p o r t s t a n d s out c l e a r l y . It i s the highly complex and interwoven n a t u r e of the organization and func

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tioning of what i s g e n e r a l l y d e s c r i b e d a s t h e building and construction industry. The number and v a r i e t y of component e l e m e n t s of the industry, together with those which a r e p e r i p h e r a l yet influence it strongly, a r e v e r y g r e a t .

Suppliers and m a n u f a c t u r e r s of building m a t e r i a l s , d e s i g n e r s , b u i l d e r s , labour organizations, c l i e n t s / u s e r s/owners, r e g u l a t o r y bodies and governments e a c h have s p e c i a l needs and r e q u i r e m e n t s and e a c h r e l a t e t o the e n t i r e industry. These considerations m u s t be kept fully in view in seeking optimum solutions t o meeting the m o s t urgent r e s e a r c h and information needs of the industry.

In looking t o the f u t u r e , a number of key questions now r e q u i r e e a r l y resolution. Given the growing v a r i e t y of needs'and problem a r e a s of the industry, together with limited R & D r e s o u r c e s , how a r e t h e s e r e s o u r c e s m o s t effectively deployed f o r m a x i m u m benefit? Assuming that not a l l needs can be m e t simultaneously, what should be the future p r i o r i t i e s and o r i e n t a t i o n s ? What should be the r e l a t i v e e m p h a s i s between improving and making m o r e effective u s e of existing technology and R & D d i r e c t e d toward possible new innovations? What

should the r e l a t i v e p r i o r i t i e s be between r e s e a r c h d i r e c t e d t o engineering and technological p r o b l e m s in construction and that d i r e c t e d toward social, environmental and urban community p r o b l e m s ? What r e l a t i v e e m p h a s i s should be given to the f u r t h e r development of codes and s t a n d a r d s ? Within t h i s e n t i r e s p e c t r u m of problem a r e a s , what i s the m o s t a p p r o p r i a t e r o l e of the Division of Building R e s e a r c h and how can r e s e a r c h activities of the Division be optimally coupled with r e l a t e d a c t i v i t i e s both in the public and in the p r i v a t e s e c t o r ? To what extent should p r i v a t e industry, a s well a s provincial and municipal governments, participate m o r e actively in R & D activities and a l s o provide a g r e a t e r s h a r e of funding? Technology t r a n s f e r cannot occur u n l e s s t h e r e e x i s t s an indigenous capability to r e c e i v e and a s s i m i l a t e that technology.

The p r e s e n t r e p o r t " R e s e a r c h f o r Construction" was intended t o provide background information and an overview a s an e s s e n t i a l

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a i d t o f u t u r e policy c o n s i d e r a t i o n s . It i s n e c e s s a r y t o e m p h a s i z e that t h i s r e p o r t h a s been p r e p a r e d by D r . Hutcheon based on h i s extensive e x p e r i e n c e and knowledge of the construction i n d u s t r y . While he h a s a l s o had consultations with t h e Advisory B o a r d f o r the Division of Building R e s e a r c h and a n u m b e r of outside o r g a n i z a - t i o n s and individuals, the p r o p o s a l s and r e c o m m e n d a t i o n s in the

r e p o r t e x p r e s s p r i m a r i l y the c o n s i d e r e d views of t h e a u t h o r and do not n e c e s s a r i l y r e p r e s e n t c u r r e n t o r f u t u r e National R e s e a r c h Council policy.

The Council i s m o s t g r a t e f u l t o D r . Hutcheon f o r the t i m e and effort he h a s devoted t o p r e p a r i n g t h i s r e p o r t , which will be invaluable in i t s f u t u r e policy c o n s i d e r a t i o n s . Additionally, i n distributing t h i s r e p o r t m o r e widely, the National R e s e a r c h Council a l s o hopes t o benefit f r o m f u r t h e r contributions and d i s c u s s i o n s with m a n y o t h e r individuals and organizations having an i n t e r e s t in the building and construction i n d u s t r y in Canada.

Ottawa J a n u a r y 1974 W.G. S c h n e i d e r , P r e s i d e n t National R e s e a r c h Council Canada.

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Author's F o r e w o r d

T h i s r e p o r t i s p r e s e n t e d in two P a r t s , recognizing that the

extended d i s c u s s i o n of the n a t u r e of the construction industry and

i t s needs, covered in P a r t 11, will not n e c e s s a r i l y be r e a d in full

by a l l those who m a y be concerned with the d i s c u s s i o n and r e c o m -

mendations of P a r t

I.

M o r e than a y e a r h a s elapsed between the drafting of t h i s

r e p o r t and i t s final production. T h e r e w a s the opportunity t h e r e f o r e

t o update S t a t i s t i c s Canada f i g u r e s and o t h e r information f r o m 1972

to 1973. T h i s would have necessitated quite extensive r e -editing

at a late stage in the w o r k which f o r s e v e r a l r e a s o n s was not

considered t o be justified. All r e f e r e n c e s a r e t o the 1972 s t a t i s t i c s

available at the t i m e the r e p o r t w a s written.

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RESEARCH FOR CONSTRUCTION

PART I ORGANIZATION AND FUNDING FOR RESEARCH

Chapter 1

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Introduction

Chapter 2

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S u m m a r y View of the Industry and i t s Knowledge Needs Chapter 3

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Organization f o r R e s e a r c h

Recommendations 1 t o 7 C h a p t e r 4

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Funding of Re s e a r c h

Recommendations 8 t o 11 Chapter 5

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Some Recommended P r a c t i c e s

Recommendations 12 t o 23 R e f e r e n c e s

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P a r t I

PART

LI

THE NATURE O F THE CONSTRUCTION INDUSTRY AND ITS KNOWLEDGE NEEDS

Chapter 1

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Chapter 2

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Chapter 3

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C h a p t e r 4

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Chapter 5

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Chapter

6

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Chapter 7

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Chapter 8

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Chapter

9

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Chapter 10

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C h a p t e r 11

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R e f e r e n c e s

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Introduction

The Owner -De s i g n e r -Contractor System

Communication and Information i n the Construction Industry The Design P r o c e s s

Knowledge S y s t e m s Serving t h e Construction I n d u s t r y Change in Buildings and Construction

Needs and Opportunities

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U n i v e r s i t i e s and the P r a c t i t i o n e r Needs and Opportunities

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D e p a r t m e n t s and Agencies of

Government

R e s e a r c h Needs and the P r o f e s s i o n a l and Industry Associations The Division of Building R e s e a r c h and Scientific Support f o r

the Construction Industry

R e s e a r c h Needs in Support of Construction P a r t I1

Appendix A

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Associations Invited t o Submit B r i e f s

Appendix B

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L i s t of R e s e a r c h P r o p o s a l s by National Associations and Selected Individuals

Appendix C

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L i s t of R e s e a r c h Needs in Construction a s Seen by the Division of Building Re s e a r c h , National Re s e a r c h c o u n c i l of Canada

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PART I

CHAPTER 1 INTRODUCTION

T h i s r e p o r t w a s w r i t t e n in r e s p o n s e to a r e q u e s t f r o m D r .

W.G.

S c h n e i d e r ,

P r e s i d e n t of t h e National R e s e a r c h Council of Canada, t o the Division of Building R e s e a r c h t o conduct a study and r e p o r t on the r e s e a r c h n e e d s of the c o n s t r u c t i o n i n d u s t r y .

It w a s not intended that t h i s should be confined t o the identification of the support which the Division s a w a s being needed f o r i t s own a c t i v i t i e s . T h e A d v i s o r y B o a r d of the Division of Building R e s e a r c h , with which the a s s i g n m e n t w a s d i s c u s s e d , advocated t h a t B r i e f s should be solicited f r o m v a r i o u s p a r t s of the construction i n d u s t r y . Accordingly, s o m e 44 national a s s o c i a t i o n s having a d i r e c t i n t e r e s t in c o n s t r u c t i o n , and including p r o f e s s i o n a l and technical a s well a s t r a d e a s s o c i a t i o n s , w e r e invited t o r e s p o n d . In addition. s o m e 30 individuals w e r e s e l e c t e d f o r p e r s o n a l i n t e r v i e w s t o p r o - vide a f u r t h e r c r o s s - s e c t i o n of views on construction r e s e a r c h n e e d s .

The r e p o r t c o n s i s t s e s s e n t i a l l y of t h r e e d i f f e r e n t p a r t s : the d i s c u s s i o n s and r e c o m - mendations r e g a r d i n g organization and funding, given i n P a r t I; the d i s c u s s i o n of the n a t u r e of the c o n s t r u c t i o n i n d u s t r y and i t s knowledge n e e d s , p r e s e n t e d a s P a r t 11; and the two l i s t s of r e s e a r c h p r o j e c t s proposed by t h e v a r i o u s a s s o c i a t i o n s and individuals contacted and by t h e Division of Building R e s e a r c h , in Appendixes B and C r e s p e c t i v e l y , p r e s e n t e d a t the end of P a r t 11. P a r t I , t h e r e f o r e , contains the r e c o m m e n d a t i o n s which a r e the b u s i n e s s p a r t of t h e r e p o r t . P a r t LI, with the l i s t s of proposed r e s e a r c h p r o j e c t s , p r o v i d e s a n amplification of t h e c o n s i d e r a t i o n s that led t o the conclusions on which P a r t I i s b a s e d , but i t i s a l s o a complete document in i t s own right f o r m o r e r e - laxed study by m a n y who have a n i n t e r e s t in a c o m p r e h e n s i v e d i s c u s s i o n of t h e i n d u s t r y and i t s n e e d s , and who wish t o c o n s i d e r p a r t i c u l a r a s p e c t s of r e s e a r c h .

The r e p o r t i s not revolutionary; i t builds on what h a s a l r e a d y been done. It p r o - p o s e s an extension, a s r e s o u r c e s p e r m i t , into new a r e a s , a l r e a d y recognized o r t o be d i s c o v e r e d on f u r t h e r study, a s being i n need of scientific a c t i v i t i e s t o s u p p o r t t h e m . The views and judgements e x p r e s s e d a r e t h o s e of one m a n , but they r e f l e c t the thinking and e x p e r i e n c e of a n agency, t h e Division of Building R e s e a r c h , which h a s been in the b u s i n e s s of a s s i s t i n g the c o n s t r u c t i o n i n d u s t r y with scientific s u p p o r t in a c o m p r e h e n - sive way s i n c e 1947. T h e s c i e n t i f i c and p r o f e s s i o n a l staff r e p r e s e n t m o r e than 1000 m a n - y e a r s of building r e s e a r c h e x p e r i e n c e .

Other people and o t h e r a g e n c i e s will, n a t u r a l l y , have s o m e points of d i s a g r e e m e n t . T h i s r e p o r t will have been worthwhile if it s u c c e e d s in bringing f o r w a r d o t h e r points of view, while providing a useful background f o r d i s c u s s i o n and decision -making.

T h e r e will be m a n y who will c r i t i c i z e the l i s t s of p r o j e c t s a s being inadequate o r incomplete. It i s r e a d i l y a d m i t t e d that t h i s i s s o . On the o t h e r hand, i t was not con- s i d e r e d t h a t complete l i s t s of n e e d s , a s s u m i n g that i t w a s r e a s o n a b l y possible t o p r o - duce t h e m , would be of sufficient value t o justify t h e added effort. Those t h a t a r e p r e s e n t e d a r e in a s e n s e by-products and a r e p r e s e n t e d f o r what they a r e w o r t h a s "raw d a t a . I' Those p r o j e c t s proposed by i n d u s t r y o r d r a w n f r o m i n d u s t r y B r i e f s a r e a s

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r e m a r k a b l e p e r h a p s f o r what they do not include a s f o r what they do. At the s a m e t i m e , the e x e r c i s e of which t h e y w e r e a p a r t provided the opportunity, if one w e r e needed, t o put down on p a p e r a n y n e e d s o r c o m m e n t s that w e r e sufficiently p r e s s i n g s o that t h e y c a m e r e a d i l y t o m i n d . It i s recognized that only national a s s o c i a t i o n s w e r e c o n t a c t e d , which r e p r e s e n t s a limited sampling of the v a r i e d i n t e r e s t s i n construction.

C o r r e s p o n d i n g l y , the l i s t of p r o j e c t s proposed by DBR was developed out of t h e annual p r o g r a m and budget review by inviting p r o p o s a l s f o r s u b s t a n t i a l l y i n c r e a s e d l e v e l s of r e s e a r c h . T o t h e s e w e r e added f u r t h e r p r o j e c t s a r i s i n g out of n e e d s e x p r e s s e d in d i s c u s s i o n s .

T h e s e two l i s t s s e r v e t o indicate the kinds of things that a r e not being done. The a r e a s f o r r e s e a r c h , which a r e identified i n the text by implication a s well a s explicitly, s e r v e t o identify m o r e usefully the kinds of r e s e a r c h and o t h e r s c i e n t i f i c support which a r e needed and on which d e c i s i o n s f o r funding should be m a d e . The f o r m u l a t i o n of f i r m p r o j e c t t i t l e s and s t a t e m e n t s i s a t a s k which should be done in the context of a n on-going r e s e a r c h p r o j e c t evaluation and budgeting p r o c e s s involving detailed and c a r e f u l c o n - s i d e r a t i o n of what i s wanted, what i s r e a s o n a b l y p o s s i b l e , what r e s o u r c e s in m o n e y , m e n and equipment a r e needed, and what r e s o u r c e s a r e available.

It will be evident that t h e r e w a s g r e a t difficulty i n setting l i m i t s f o r the r e p o r t . The d i r e c t i v e was t o c o n s i d e r the n e e d s of the c o n s t r u c t i o n i n d u s t r y , yet t h e e x p e r i e n c e of t h e Division of Building R e s e a r c h h a s not extended t o a l l a s p e c t s of the knowledge needs in support of construction. On the o t h e r hand, i t h a s been the f i r m conviction of t h o s e who have d i r e c t e d DBR, s u b s t a n t i a t e d by m a n y e x a m p l e s and e x p e r i e n c e s f r o m o t h e r c o u n t r i e s , that the r e s e a r c h r o l e f o r a national agency i n s u p p o r t of construction should not be n a r r o w l y defined. It should, in s h o r t , e n c o m p a s s the promotion of knowledge involving information and advice a s well, r e g a r d l e s s of the s o u r c e of the o r i g i n a l r e s e a r c h . T h i s l e a d s i n t u r n t o a definition of the community being s e r v e d , which tends t o include a l l those who need o r who a r e substantially involved i n the exploitation of the knowledge-promoting a c t i v i t i e s involved. The c o n s t r u c t i o n i n d u s t r y h a s t h u s been r e - g a r d e d f o r r e s e a r c h p u r p o s e s a s well a s f o r the p u r p o s e of t h i s r e p o r t a s including o w n e r s , o p e r a t o r s , and u s e r s of buildings. The c o n s i d e r a t i o n of t h i s e n l a r g e d community f o r s e r v i c e s e e m s eminently r e a s o n a b l e when viewed on a p e r m i s s i v e b a s i s , consistent with the c a p a b i l i t i e s of the agency o r of the s y s t e m , a s the c a s e m a y be. However, when s u c h s e r v i c e t o the l a r g e r community i s p r o m o t e d a s a n e c e s s i t y , t o be adequately p r o v i d e d , t h e extension i n capability involved i s f o r m i d a b l e , t o s a y the l e a s t . In s h o r t , i t m u s t be decided whether DBR, which i s the only agency with a r e a s o n a b l y c o m p r e - hensive involvement in building r e s e a r c h , can o r should be e n l a r g e d t o provide l a r g e r c o v e r a g e in a complete way.

T h e question of a p p r o p r i a t e t e r r i t o r y i s a m a j o r one f o r t h i s r e p o r t , g r e a t l y c o m - plicated by t h e e x i s t e n c e of m i n i s t r i e s , d e p a r t m e n t s , a g e n c i e s and officials a t a l l t h r e e l e v e l s of g o v e r n m e n t , having v a r i e d m i s s i o n s affecting s o m e o r a l l r e s e a r c h f o r c o n - s t r u c t i o n . C l o s e l y r e l a t e d t o t h i s p r o b l e m of " t e r r i t o r y ,

''

f r o m the point of view of r e s p o n s i b i l i t y f o r s e r v i c e , t h e r e i s the allied p r o b l e m of coordination and thus of organization, s t i l l f u r t h e r complicated by t h e t h r e e m a i n s e c t o r s of r e s e a r c h i n t e r e s t r e p r e s e n t e d by the u n i v e r s i t i e s , i n d u s t r y and g o v e r n m e n t , and the i m p a c t of g o v e r n

-

m e n t policy on the c h o i c e s t o be m a d e . It i s not a p p r o p r i a t e i n t h i s r e p o r t , a u t h o r e d f r o m DBR, t o c r i t i c i z e o r t o s u g g e s t r e v e r s a l s o r m a j o r r e v i s i o n s in o r g a n i z a t i o n a l s t r u c t u r e s e s t a b l i s h e d a f t e r due c o n s i d e r a t i o n by g o v e r n m e n t s . Some suggestions m a y be m a d e , however, and s o m e of the p r e f e r r e d c h a r a c t e r i s t i c s f r o m t h e point of view of the c o n s t r u c t i o n i n d u s t r y c a n be s e t out.

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T h e p r o b l e m s of r e s o l v i n g v a r i o u s c o n s i d e r a t i o n s about funding r e s e a r c h a r e l e s s c o m p l i c a t e d than q u e s t i o n s of who should be r e s p o n s i b l e f o r t h e m if only b e c a u s e the p o s s i b l e s o u r c e s of funds a r e r e l a t i v e l y few. It w a s not c o n s i d e r e d p o s s i b l e t o e s t a b l i s h t h e c a s e f o r l e v e l of funding on any detailed b a s i s of cost-benefit s i n c e i t i s not p o s s i b l e when dealing with knowledge t o identify the benefits in quantifiable t e r m s . F u r t h e r , i t w a s not intended t o identify on a f i r m b a s i s the s p e c i f i c p r o j e c t s that a r e needed. Some e x a m p l e s have b e e n given, h o w e v e r , and s o m e judgements m a d e on t h e b a s i s of p a s t p e r f o r m a n c e , t o g e t h e r with s o m e c o m p a r a t i v e f i g u r e s on the e x p e n d i t u r e s i n o t h e r c o u n t r i e s .

F i n a l l y , P a r t I i s concluded with s o m e r e c o m m e n d a t i o n s having t o d o with the promotion of u n i v e r s i t y , i n d u s t r y and g o v e r n m e n t i n t e r a c t i o n s i n support of the f u r t h e r p r o m o t i o n of t h e knowledge s y s t e m s f o r the c o n s t r u c t i o n i n d u s t r y .

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PART I

CHAPTER 2

SUMMARY VIEW OF THE INDUSTRY AND ITS KNOWLEDGE NEEDS

Construction i s defined by S t a t i s t i c s Canada a s the c r e a t i o n , renovation, r e p a i r and demolition of immobile s t r u c t u r e s and the a l t e r a t i o n of the natural topography of the ground. The c h a r a c t e r i s t i c of immobility m e a n s that construction i s in g e n e r a l concerned with putting in place l a r g e and heavy s t r u c t u r e s having some connection inevitably with the ground.

The definition of construction invites a defin:tion of the construction industry a s the organizational s t r u c t u r e s , the people, and the a c t i v i t i e s by which construction i s accomplished. This allows both a n a r r o w and a broad interpretation. The construction industry might be r e g a r d e d a s involving principally the construction p r o c e s s , including m a n a g e m e n t , p r o c u r e m e n t , t r a n s p o r t a t i o n , and on-site manufacturing and a s s e m b l y . So f a r a s r e s e a r c h support is concerned, t h i s n a r r o w e r coverage would exclude the v e r y substantial knowledge needs of d e s i g n e r s , owners, regulatory authorities and u s e r s , which have a g r e a t d e a l in common with those of the construction p r o c e s s , a s well a s one with the o t h e r . It does not s e e m useful, t h e r e f o r e , to seek any r i g o r o u s organizational o r even functional b a s i s f o r setting l i m i t s on the range of potential subject a r e a s f o r r e s e a r c h . F o r t h i s p u r p o s e , t h e construction i n d u s t r y m a y be a s s u m e d to include the needs in design and construction and the needs of r e l a t e d activities which a r e i n common with t h e m .

T h i s b r o a d e r view of the construction industry, f o r purposes of dealing with i t s communication, information, knowledge and r e s e a r c h needs, leads logically t o a recognition of the t h r e e principal functional r o l e s which a r e c h a r a c t e r i s t i c of it. T h e s e a r e , in concept, the owner, the d e s i g n e r , and the c o n t r a c t o r . T h e r e i s always an owner, who m a y be a private individual, a group o r an agency, a c o r p o r a t i o n , o r a government agency. The construction that i s to be provided m u s t s e r v e h i s e n t e r p r i s e , whether i t be r e s i d e n t i a l , institutional, c o m m e r c i a l , o r engineering construction. The d e s i g n e r , whether he be one m a n o r a design t e a m , m u s t identify t h e o w n e r ' s needs and then devise a total scheme t o s a t i s f y the owner's needs and m u s t d e s c r i b e t h e m in plans and specifications which provide a b a s i s f o r a c o n t r a c t between the owner and the c o n t r a c t o r .

About 40% of total construction, which i n 1972 amounted to $16. 34 billion, i s f o r engineering construction, and the r e m a i n d e r f o r building. Building i s divided equally between r e s i d e n t i a l and non-residential construction. Repair accounts f o r 20% of t o t a l construction. Since some 77% of construction i s c a r r i e d out by c o n t r a c t , t h e r e m u s t always be some adequate description of the work to be p e r f o r m e d , thus confirming the widespread acceptance in p r a c t i c e of the t h r e e basic r o l e s . This i s commonly the c a s e f o r non-residential building.

The functions a r e not changed by a change in r o l e s . In engineering construction t h e professional employees of the owner m a y a l s o design, combining owner and d e s i g n e r r o l e s . In r e s i d e n t i a l construction the builder m a y a l s o be the d e s i g n e r and when he

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builds f o r s a l e m a y a l s o be the owner.

One of t h e p r o b l e m s of t h e b a s i c o w n e r - d e s i g n e r - c o n t r a c t o r s y s t e m , in which the d e s i g n e r of n e c e s s i t y occupies a c e n t r a l position, i s the difficulty of reflecting the c o n t r a c t o r ' s e x p e r t i s e in construction f e a s i b i l i t y and c o s t s a t the d e s i g n s t a g e . T h i s and o t h e r c o n s i d e r a t i o n s lead t o a v a r i e t y of a r r a n g e m e n t s , including t h e package d e a l i n which d e s i g n and construction a r e combined i n one c o n t r a c t . In p r o j e c t m a n a g e m e n t , d e s i g n and c o n s t r u c t i o n m a y be based on a s e r i e s of s u b c o n t r a c t s c a r r i e d out f o r the owner under the d i r e c t i o n of the p r o j e c t m a n a g e r .

In r e s i d e n t i a l c o n s t r u c t i o n , unlike the o t h e r two m a i n c l a s s e s , the product of c o n - s t r u c t i o n

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housing

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i s a l s o t h e e n t e r p r i s e of the d e v e l o p e r o r m e r c h a n t b u i l d e r . As o w n e r s , they a l r e a d y know m u c h about t h e p r o d u c t , including i t s d e s i g n and c o n - s t r u c t i o n , and t h u s have d i f f e r e n t r e q u i r e m e n t s f o r d e s i g n support. T h i s p a r t of t h e c o n s t r u c t i o n i n d u s t r y i s m o r e n e a r l y like a t r a d i t i o n a l manufacturing i n d u s t r y than t h e o t h e r s

.

T h e c o n s t r u c t i o n i n d u s t r y i s highly dependent upon a n adequate flow of information f o r i t s p r o p e r operation. T h e r e m u s t be communication between t h e o w n e r , d e s i g n e r , and c o n t r a c t o r a s well a s between the m e m b e r s of t h e m u l t i d i s c i p l i n a r y d e s i g n t e a m . T h e r e m a y be extensive r e q u i r e m e n t s f o r communication with a l a r g e n u m b e r of s o u r c e s of information in addition t o r e g u l a t o r y officials and s u p p l i e r s of a l l kinds. T h e extent of t h e s e r e q u i r e m e n t s i s magnified by t h e d i v e r s i t y of c o n s t r u c t i o n r e q u i r e d a s w e l l a s by t h e unique f e a t u r e s of p a r t i c u l a r p r o j e c t s a s r e l a t e d t o local and s i t e conditions.

Although t h e situation b e c o m e s v e r y complex if viewed i n any d e t a i l , the broad l i n e s of information flow, a s well a s t h e i r g e n e r a l n a t u r e , c a n be envisaged quite u s e - fully by r e f e r e n c e again to the owner, d e s i g n e r , and c o n t r a c t o r and t h e i r r e l a t i o n s h i p t o t h e t h r e e m a j o r s o u r c e s of influence upon t h e i r d e c i s i o n s , a s shown i n F i g u r e 1-1. T h e o w n e r ' s r e q u i r e m e n t s grow out of t h e needs of his e n t e r p r i s e o r objective. He i s t h e r e f o r e c o n c e r n e d in t h e f i r s t i n s t a n c e with what t o build. P u b l i c and u s e r r e a c t i o n s of v a r i o u s kinds will influence his d e c i s i o n i n g e n e r a l t e r m s a s well a s in m a t t e r s of detail. M a n y of t h e s e will e x e r t a m a r k e d influence a l s o on t h e d e s i g n e r ' s d e c i s i o n s ; s o m e m a y even affect the c o n t r a c t o r ' s d e c i s i o n s .

Regulation, taken t o include g o v e r n m e n t a l m o n e t a r y a i d s and c o n c e s s i o n s of a l l kinds a s w e l l a s r e g u l a t i o n s i m p o s e d by l a w , m a y v e r y substantially influence what t h e owner will d e c i d e t o build. Municipal building bylaws and p r o v i n c i a l s a f e t y c o d e s a r e among t h e m o r e common and m o r e i m p o r t a n t of t h e s e governmental influences. The d e s i g n e r and t h e c o n t r a c t o r m u s t a l s o conform t o t h o s e that a r e m a n d a t o r y and m a y be influenced in what t h e y d o by o t h e r a i d s and c o n c e s s i o n s .

The c o n t r a c t o r i s m a i n l y c o n c e r n e d with how t o build. He i s influenced by i n f o r - m a t i o n and advice coming t o h i m f r o m m a n y s o u r c e s . T h e s e m a y r a n g e f r o m s p e c i a l - i n t e r e s t g r o u p s , both public and p r i v a t e , including m a n u f a c t u r e r s and t h e i r i n d u s t r y a s s o c i a t i o n s who would like t o s e e t h e i r p r o d u c t s u s e d , t o individuals with s p e c i a l i n t e r e s t s , t o l i b r a r i e s , and o t h e r a g e n c i e s , s u c h a s independent r e s e a r c h l a b o r a t o r i e s , which a r e r e g u l a r l y in the b u s i n e s s of d i s s e m i n a t i n g information o r promoting know- ledge. P r o d u c t i n f o r m a t i o n and p r i c e s m a y be of i n t e r e s t t o t h e d e s i g n e r a s w e l l a s t o t h e c o n t r a c t o r , a s will a v e r y s u b s t a n t i a l amount of o t h e r t e c h n i c a l information and advice on how t o build.

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I

P U B L I C & USER

I I

R E G U L A T I O N A D V I S O R Y & R E A C T I O N S

I I

I N F O R M A T I O N SERVICES

I

W H A T TO B U I L D I N F O R M A T I O N P A T H S B E T W E E N P R I N C I P A L A G E N T S A N D I N F L U E N C E S F I G U R E 1-1 H O W TO B U I L D

He thus h a s need of m u c h of the information of i n t e r e s t t o t h e owner and t o the c o n t r a c t o r . T o a l e s s e r extent the owner and t h e c o n t r a c t o r m a y have a m u t u a l i n t e r e s t in s o m e kinds of information. F u r t h e r i n t e r a c t i o n s a l s o take place. T h e v a r i o u s people and a g e n c i e s designated a s influences will a l s o be influenced by information f r o m o w n e r s , a r c h i t e c t s and c o n t r a c t o r s a s well a s f r o m one a n o t h e r . A c t i v i t i e s leading t o r e g u l a t i o n s , f o r e x a m p l e , can be s t r o n g l y influenced by public and u s e r r e a c t i o n s a s well a s by advice and information f r o m m a n y s o u r c e s . Equally, the advice given by m a n u f a c t u r e r s and o t h e r s m a y r e f l e c t s t r o n g l y the influence of regulation and a l s o of public and u s e r r e a c t i o n .

T h e d e s i g n e r o r , m o r e p r o p e r l y , the d e s i g n p r o f e s s i o n a l s , occupy a n i m p o r t a n t c e n t r a l position a t the p r o f e s s i o n a l l e v e l of participation. The design p r o c e s s i s now being recognized a s a common discipline of a l l p r o f e s s i o n s and i s defined a s a n i t e r a t i v e decision-making p r o c e s s . D e c i s i o n s m u s t be m a d e a t v a r i o u s s t a g e s t o be t e s t e d in t h e light of the i m p l i c a t i o n s that m a y only be d i s c o v e r e d a s t h e d e s i g n s t u d i e s p r o c e e d . T o choose, t o d e c i d e , r e q u i r e s prediction a s t o the consequences of the choice t h a t i s to be m a d e . T h e a b i l i t y t o p r e d i c t g r o w s out of knowledge. T h e r e i s always a need f o r a s m u c h knowledge a s p o s s i b l e on t h e of the d e s i g n e r . Although t h e r e a r e w a y s i n which he m a y be a s s i s t e d , he cannot be r e l i e v e d of t h e r e s p o n s i b i l i t y f o r his d e c i s i o n s and h i s consequent need t o u n d e r s t a n d the i m p l i c a t i o n s of what i s being decided.

T h e p u r p o s e of r e s e a r c h f o r c o n s t r u c t i o n i s u l t i m a t e l y t h e c r e a t i o n of knowledge. T h e understanding produced in the mind of the r e s e a r c h e r m u s t be t r a n s l a t e d into

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t h e educational s y s t e m , and v a r i o u s s c i e n t i f i c , t e c h n i c a l and p r o f e s s i o n a l a c t i v i t i e s , into knowledge i n t h e m i n d of the p r a c t i t i o n e r . Such a r e l a t e d g r o u p of a c t i v i t i e s and organization in s u p p o r t of a p a r t i c u l a r p r o f e s s i o n a l o r s p e c i a l i s t capability c a n be r e g a r d e d a s a knowledge s y s t e m . E a c h d i s c i p l i n e h a s i t s own knowledge s y s t e m m o r e o r l e s s distinguishable f r o m o t h e r s .

It m a y now be recognized that t h e owner, t h e d e s i g n e r , and the c o n t r a c t o r have a f o r m i d a b l e communication and information p r o b l e m . It r e s u l t s f r o m the d i v e r s i t y of information t h e y m a y r e q u i r e and f r o m the v e r y l a r g e n u m b e r of s o u r c e s that ought t o be exploited. When t h e information r e q u i r e d i s s t r o n g l y knowledge-related, t h e identification of what i s a v a i l a b l e and likely to be helpful c a n be a f o r m i d a b l e t a s k which will i n c r e a s i n g l y be p o s s i b l e only with e x p e r t p r o f e s s i o n a l a s s i s t a n c e . Such a capability m a y be d i r e c t e d toward the p r e - s e l e c t i o n of m a t e r i a l t o be held r e a d y f o r r e t r i e v a l in a n information s y s t e m . If, however, the need i s of a kind that cannot be anticipated and s e r v e d in t h i s way, t h e e x p e r t a s s i s t a n c e m u s t be applied a f t e r the p a r t i c u l a r need i s recognized.

Despite t h e v a s t potential t h a t a l r e a d y e x i s t s f o r a c q u i r i n g information with s o m e r e l e v a n c e t o a p a r t i c u l a r p r o b l e m , given sufficient initiative and effort on the p a r t of t h e s e a r c h e r , t h e r e a r e m a n y a r e a s of d e c i s i o n - m a k i n g which a r e a s yet inadequately

s e r v e d b e c a u s e the r e q u i r e d information d o e s not yet e x i s t . T h i s i s t h e s t a g e a t which i t b e c o m e s n e c e s s a r y t o c o n s i d e r r e s e a r c h f o r t h e development of new knowledge about t h e s u b j e c t involved. F o r p r a c t i c a l p u r p o s e s , the e s s e n t i a l s t a g e s of t h e o v e r - a l l r e s e a r c h a c t i v i t y a r e a s follows:

1. Identification of a need f o r i n f o r m a t i o n and understanding i n s o m e a r e a of d e c i s i o n - m a k i n g ;

2 . Confirmation that no adequate i n f o r m a t i o n i s known t o be a v a i l - a b l e ;

3 . Development of a p r o j e c t o r p r o g r a m which w i l l produce a d e s i r a b l e r e s u l t a t a n a c c e p t a b l e c o s t ;

4. C o m m i t m e n t and execution of the p r o j e c t ;

5. Introduction of the r e s u l t s into the knowledge s y s t e m .

Stage 1 c a n be c a r r i e d out i n s e v e r a l ways. One m a n o r one agency m i g h t , with g r e a t difficulty, put t o g e t h e r a p a r t i a l l i s t of n e e d s . In a m o r e logical and p r a c t i c a l way, t h e s e n e e d s m i g h t b e s t be identified d u r i n g the design p r o c e s s i t s e l f . Such

identification m u s t be a c h a r a c t e r i s t i c of p r o f e s s i o n a l and t e c h n i c a l p r a c t i c e i n t e r a c t i n g with the knowledge s y s t e m s involved i n o r d e r t o initiate the succeeding s t a g e s .

Stage 2 r e q u i r e s a s m u c h competence i n depth and b r e a d t h of understanding of the whole field involved a s c a n r e a s o n a b l y be provided. S t a g e s 3 and 4 in a c o r r e s p o n d i n g way a r e heavily dependent f o r s u c c e s s upon e x p e r t knowledge of t h e field involved f r o m s e v e r a l points of view. At a l l s t a g e s m u c h valuable a s s i s t a n c e c a n be provided by a c e n t r a l , m u l t i d i s c i p l i n a r y , building r e s e a r c h agency. Added t o t h i s , i s the u l t i m a t e s t a g e of promoting the d i s s e m i n a t i o n of new knowledge t h r o u g h v a r i o u s scientific

a c t i v i t i e s in s u p p o r t of the knowledge s y s t e m s .

The broad a r e a s of r e s e a r c h n e e d s can be d i s c u s s e d usefully i n a n o v e r - a l l way with r e f e r e n c e t o t h e f r a m e w o r k provided by F i g u r e 1-1. U n i v e r s i t i e s have been the a g e n c i e s providing f o r m a l t r a i n i n g of p r o f e s s i o n a l s . They have a l s o provided m u c h of

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t h e r e s e a r c h s e r v i n g t h e e n g i n e e r i n g c o n s t r u c t i o n field i n a n u m b e r of s p e c i a l t i e s having a b a s i c c i v i l , m e c h a n i c a l , o r e l e c t r i c a l e n g i n e e r i n g b a s e but t h e y continue t o be heavily dependent upon r e s e a r c h g r a n t s . I n d u s t r y h a s n o r m a l l y s u p p o r t e d r e s e a r c h and d e v e l o p m e n t on e q u i p m e n t .

Until 20 y e a r s ago, r e s i d e n t i a l c o n s t r u c t i o n i n C a n a d a w a s p r e d o m i n a n t l y s i n g l e - f a m i l y housing, m a i n l y of w o o d - f r a m e c o n s t r u c t i o n . N e i t h e r a r c h i t e c t u r e n o r e n g i n e e r - ing w a s g r e a t l y involved i n the p r o v i s i o n of the l a r g e bulk of r e s i d e n t i a l c o n s t r u c t i o n of t h e type which w a s l a t e r c a t e g o r i z e d f o r code p u r p o s e s a s n o n - e n g i n e e r e d c o n s t r u c - tion. T h e r e s i d e n t i a l c o n s t r u c t i o n i n d u s t r y h a s not b e e n h e a v i l y d e p e n d e n t , a s h a s n o n - r e s i d e n t i a l building c o n s t r u c t i o n , upon a s e p a r a t e d e s i g n e r r o l e . It i s significant t h a t t h e p r o b l e m s identified by t h e Division of Building R e s e a r c h in i t s f i r s t d e c a d e of

s e r v i c e beginning in 1947 w e r e d r a w n heavily f r o m t h e r e s i d e n t i a l c o n s t r u c t i o n f i e l d , identified l a r g e l y t h r o u g h o w n e r s , b u i l d e r s , C e n t r a l M o r t g a g e and Housing C o r p o r a t i o n , and t h e n e e d s of c o d e s and s t a n d a r d s . T h e m a r k e t p l a c e w a s f o r m a n y y e a r s , and s t i l l i s , a s t r o n g i n d i c a t o r of what t o build. T h i s e m b r a c e d i n l a r g e m e a s u r e t h e public and u s e r r e a c t i o n s of F i g u r e 1-1 a s t h e y a f f e c t e d the d e v e l o p e r and t h e b u i l d e r .

R e s e a r c h n e e d s of n o n - r e s i d e n t i a l building w e r e identified only v e r y slowly s i n c e n e i t h e r d e s i g n e r s n o r c o n t r a c t o r s would a d m i t i n g e n e r a l t o a n y s e r i o u s p r o b l e m s . T h e p o s s i b i l i t i e s of u s e f u l r e s e a r c h w e r e m o r e often identified a s t h e p r o b l e m s a r o s e . T h e s e n e e d s w e r e found t o be s u b s t a n t i a l l y but not e x c l u s i v e l y i n t h e s u b j e c t a r e a s o u t - side the w e l l - e s t a b l i s h e d but n a r r o w l y applied e n g i n e e r i n g s p e c i a l t i e s . . U n i v e r s i t y r e s e a r c h h a s b e e n and continues t o be s t r o n g l y d i r e c t e d t o w a r d s t r u c t u r e s and i n d u s t r y r e s e a r c h i s c o n c e n t r a t e d on s p e c i f i c building m a t e r i a l s . N e i t h e r g r o u p h a s been sufficiently a c t i v e i n attacking p r o b l e m s t h a t d e v e l o p w i t h building e n c l o s u r e s i n the Canadian c l i m a t e .

T h e outstanding development d u r i n g the p a s t 30 y e a r s h a s b e e n t h a t of g e o t e c h n i c a l e n g i n e e r i n g , which h a s been u n d e r a c t i v e development i n u n i v e r s i t i e s , i n i n d u s t r y , i n g o v e r n m e n t l a b o r a t o r i e s , and by t h e p r o f e s s i o n a l s p e c i a l i s t s . T h i s d i s c i p l i n e , which h a s developed l a r g e l y within c i v i l e n g i n e e r i n g , i s u n u s u a l a l s o i n t h a t i t s e r v e s both building and e n g i n e e r i n g c o n s t r u c t i o n . R e s e a r c h i n s u p p o r t of i t h a s been effectively p r o s e c u t e d by a l l s e c t o r s u n d e r t h e e x c e l l e n t c o o r d i n a t i n g influence of t h e NRC A s s o c i a t e C o m m i t t e e on G e o t e c h n i c a l R e s e a r c h .

It i s i m p o s s i b l e t o d e s c r i b e t h e r e s e a r c h n e e d s of c o n s t r u c t i o n a s t h e y have b e e n identified o v e r t h e p a s t 2 5 y e a r s without d i r e c t r e f e r e n c e t o t h e Division of Building R e s e a r c h . It h a s been t h e only a g e n c y o p e r a t i n g c e n t r a l l y u n d e r b r o a d t e r m s of r e f e r e n c e and t h e r e f o r e with a good d e a l of f r e e d o m t o p r o v i d e s c i e n t i f i c s u p p o r t on a wide - r a n g i n g b a s i s .

DBR h a s p a r t i c i p a t e d in.:t;he identification of r e s e a r c h a c t i v i t i e s and i n f o r m a t i o n s o u r c e s f o r c o n s t r u c t i o n both a t h o m e and a b r o a d . It h a s w o r k e d c o n s i s t e n t l y w i t h u n i v e r s i t i e s , i n d u s t r y , o t h e r ' p u b l i c a g e n c i e s , and v a r i o u s o t h e r g r o u p s involved i n t h e knowledge s y s t e m s of the c o n s t r u c t i o n i n d u s t r y . It h a s u n d e r t a k e n a n a c t i v e r o l e a s a n i n f o r m a t i o n and a d v i s o r y , a s well a s a r e s e a r c h , agency, a s s i s t i n g in the w o r k on c o d e s and s t a n d a r d s , i n t h e evaluation of m a t e r i a l s and s y s t e m s , in t h e a n a l y s i s of p r o b l e m s , and i n t h e planning and p r o s e c u t i o n of r e s e a r c h by o t h e r s .

M u c h of the need justifying t h e w o r k of DBR s t i l l e x i s t s . T h e r e i s g r e a t e r need t h a n e v e r f o r i n c r e a s e d s u p p o r t f r o m s o m e s u c h c e n t r a l a g e n c y i n o r d e r t o p r o m o t e s t i l l m o r e e x t e n s i v e l y t h e a c t i v i t i e s and c a p a b i l i t i e s t h a t a r e needed throughout t h e i n d u s t r y . T h e w o r k t h a t h a s b e e n a c c o m p l i s h e d f a l l s within t h e c a t e g o r y of the a d v i s o r y

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and information s e r v i c e s of F i g u r e 1-1 and DBR h a s been the l a r g e s t single con-

t r i b u t o r . M o r e l i m i t e d f i e l d s have been c o v e r e d by o t h e r government a g e n c i e s , includ- ing the M i n e s B r a n c h of the D e p a r t m e n t of E n e r g y , M i n e s and R e s o u r c e s and the F o r e s t P r o d u c t s L a b o r a t o r i e s of t h e D e p a r t m e n t of the Environment. Strong a d v i s o r y support h a s been provided by i n d u s t r y a s s o c i a t i o n s , which have a l s o s p o n s o r e d r e s e a r c h , and by m a n y o t h e r a g e n c i e s including u n i v e r s i t i e s .

F o r a v a r i e t y of r e a s o n s , t h e subject a r e a s that have been m o s t s t r o n g l y supported t h r o u g h r e s e a r c h have been t h o s e involved in deciding how to build. Continuing change p o s e s new d e c i s i o n s and new p r o b l e m s , s o that r e s e a r c h i n support of t h i s i s s t i l l needed. The m a n a g e m e n t of t h e c o n s t r u c t i o n p r o c e s s , including economics and f i n a n c e , communication, coordination, t r a n s p o r t a t i o n , t h e handling of m e n and m a t e r i a l s ,

and the organization of o n - s i t e manufacturing and a s s e m b l y , a r e potential s u b j e c t s f o r r e s e a r c h attention. However, t h e r e i s a l s o a m a r k e d change in e m p h a s i s on s o c i a l values which i s promoting a c a l l f o r m o r e attention to the n e e d s of the u s e r . It i s not a t a l l c l e a r what t h e s e new i n t e r e s t s m e a n in t e r m s of r e s e a r c h n e e d s . They m a y be r e g a r d e d l a r g e l y a s falling in t h e a r e a of what t o build. T h i s a r e a , in which public and u s e r r e a c t i o n s a r e heavily involved, i s undoubtedly m o s t difficult. The application of the c r i t e r i o n of c o s t - b e n e f i t will r e q u i r e that r e s e a r c h , which in t h i s field i s

a l m o s t always c o s t l y and often inconclusive, m u s t hold out p r o m i s e of s o m e broad and significant application o v e r a s u b s t a n t i a l period of t i m e .

It s e e m s r e a s o n a b l e that r e s e a r c h into u s e r r e q u i r e m e n t s should be p u r s u e d in two ways. The f i r s t i s t o encourage and support t h e r e l e v a n t behavioural science

d i s c i p l i n e s t o e n s u r e that t h e y a r e adequately e s t a b l i s h e d and a b l e t o provide a s s i s t a n c e t h r o u g h r e s e a r c h and e x p e r t i s e in the p r o b l e m s of t h e construction i n d u s t r y . T h e o t h e r a p p r o a c h i s t o m o v e f r o m t h e building r e s e a r c h b a s e a l r e a d y e s t a b l i s h e d on t h e physical s c i e n c e s side into the p r o b l e m s of what t o build. T h e p r o b l e m s of safety and health a s t h e y r e l a t e t o t h e d e s i g n of buildings and w o r k s and which a r e a l s o involved in establishing r e g u l a t i o n s , such a s building c o d e s , a r e among t h e f i r s t and m o r e obvious f o r substantially i n c r e a s e d attention.

T h e growing i n t e r e s t in u s e r r e q u i r e m e n t s i s p a r a l l e l e d by i n c r e a s i n g c o n c e r n f o r i m p r o v e d p e r f o r m a n c e of buildings. While r e s e a r c h of t h i s kind f a l l s heavily i n t h e physical s c i e n c e s a r e a , t h e r e a r e a l s o s e r i o u s implications f r o m the point of view of u s e r r e a c t i o n s . T h e r e i s a v a s t potential f o r the gathering of m u c h information g r e a t l y needed i n d e s i g n through a m o r e intensive study of buildings i n u s e f r o m m a n y points of view, including t h e p r o b l e m s of c o s t s of o p e r a t i o n a s well a s the i n t e r a c t i o n of t h e building with i t s occupancy. T h e l a r g e s t o c k s of buildings o v e r which t h e D e p a r t m e n t of P u b l i c Works and C e n t r a l M o r t g a g e and Housing C o r p o r a t i o n e x e r t c o n t r o l a r e obvious s u b j e c t s f o r v a r i o u s kinds of s t u d i e s .

The broad p a t t e r n of r e s e a r c h n e e d s i s r e a s o n a b l y c l e a r . Continuing attention t o p r o b l e m s of how t o build i s s t i l l justified, but t h e r e a r e logical and potentially v e r y useful extensions which can now be m a d e , given t h e n e c e s s a r y i n c r e a s e d r e s o u r c e s . T h e c o n s t r u c t i o n p r o c e s s , t h e d e s i g n p r o c e s s , building u s e and building p e r f o r m a n c e , o p e r a t i o n s and e c o n o m i c s , a r e a l l in need of i n c r e a s e d attention. F u r t h e r and con- tinuing r e s e a r c h i n support of c o d e s , s t a n d a r d s , and regulation g e n e r a l l y i s a n u r g e n t need. Scientific support f o r communication, information, and t h e i m p r o v e m e n t of knowledge s y s t e m s f o r t h e whole construction i n d u s t r y i s a r e q u i r e m e n t of i n c r e a s i n g u r g e n c y a s the body of knowledge t o be applied in construction g r o w s .

The n e e d s and p o s s i b i l i t i e s i n t h e s e a r e a s a r e d i s c u s s e d a t length in s e v e r a l C h a p t e r s of P a r t I1 of t h i s r e p o r t . P a r t i c u l a r s u b j e c t s f o r r e s e a r c h c o n s i d e r a t i o n a r e p r e s e n t e d i n t h e l i s t s f r o m i n d u s t r y and f r o m DBR p r e s e n t e d i n Appendixes B and C.

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PART I

CHAPTER 3

ORGANIZATION FOR RESEARCH

It h a s been s a i d m a n y t i m e s t h a t the c o n s t r u c t i o n i n d u s t r y i s highly f r a g m e n t e d . C e r t a i n l y i t i s v e r y l a r g e and complex, consisting a s i t d o e s of m a n y a g e n t s and a g e n c i e s p e r f o r m i n g d i f f e r e n t functions which m u s t somehow be coordinated to provide a l l the e s s e n t i a l f e a t u r e s of t h e conception, d e s i g n , and execution of buildings and w o r k s . Although independent i n s o m e ways t h e y a r e highly interdependent i n o t h e r s , with a g r e a t need f o r communication and the s h a r i n g of information and knowledge. T h e p a t t e r n v a r i e s f r o m point t o point within t h e i n d u s t r y .

The e s t a b l i s h m e n t of the Division of Building R e s e a r c h i s t h e m o s t i m p o r t a n t development which h a s s o f a r taken place in Canada in a i d of r e s e a r c h f o r c o n s t r u c t i o n . Although t h e r e a r e s o m e a r e a s in which i t i s not yet v e r y a c t i v e , i t h a s long s i n c e r e a c h e d t h e s t a t u s of a national building r e s e a r c h i n s t i t u t e , p r e p a r e d t o a s s i s t s o f a r a s r e s o u r c e s p e r m i t through i n f o r m a t i o n , a d v i c e , and r e s e a r c h i n a l l s e c t o r s of t h e c o n s t r u c t i o n i n d u s t r y i n need of scientific support. T h e n a t u r e of the c o n s t r u c t i o n i n d u s t r y h a s m a d e the c o m p r e h e n s i v e and flexible r o l e of DBR e x t r e m e l y i m p o r t a n t . It h a s been a b l e t o offset t o a s u b s t a n t i a l d e g r e e the p r o b l e m s c r e a t e d by t h e divided r o l e s of o w n e r , d e s i g n e r and c o n t r a c t o r and the m u l t i p l i c i t y of p r o f e s s i o n a l d i s c i p l i n e s employed i n d e s i g n . The Division h a s worked a l s o t h r o u g h a s s o c i a t e c o m m i t t e e s and i n o t h e r ways t o p r o m o t e communication and cooperation in r e s e a r c h a s between i n d u s t r y , g o v e r n m e n t , u n i v e r s i t i e s , and the p r a c t i t i o n e r s . It h a s p e r f o r m e d a s p e c i a l r e s e a r c h , information and a d v i s o r y role s e r v i n g g o v e r n m e n t d e p a r t m e n t s and a g e n c i e s and h a s i n t u r n been a s s i s t e d by t h e m i n contributing t o new knowledge needed i n c o n s t r u c t i o n .

The u n i v e r s i t i e s and manufacturing i n d u s t r y have not, a s yet, been induced t o e n c o m p a s s sufficiently i n t h e i r a c t i v i t i e s t h e new s c i e n c e b a s e f o r p r e d i c t i o n in d e s i g n and o t h e r d e c i s i o n - m a k i n g , and need t h e p r e s e n c e of a national i n s t i t u t e s u c h a s DBR t o a s s i s t t h e m i n t h i s development. The d r e a m of national, uniform building bylaws and u n i f o r m e n f o r c e m e n t of r e g u l a t i o n s i s now within r e a c h , but i t i s s t i l l g r e a t l y dependent upon the e x i s t e n c e of a r e a d i l y a c c e s s i b l e c o m p r e h e n s i v e building s c i e n c e e x p e r t i s e . The d e c i s i o n s t o be m a d e a r e not whether t h e Division of Building R e s e a r c h i s r e q u i r e d , but r a t h e r what c h a n g e s , if a n y , a r e n e c e s s a r y and what r e s o u r c e s

should be allocated t o i t s o that it c a n s e r v e the nation m o s t effectively.

DBR w a s a d m i r a b l y placed u n d e r the National R e s e a r c h Council in i t s f i r s t q u a r t e r c e n t u r y of s e r v i c e . NRC i s not a n operating agency i n the u s u a l g o v e r n m e n t a l s e n s e ; the w e l f a r e of the n a t i o n ' s scientific and i n d u s t r i a l r e s e a r c h i s i t s b u s i n e s s . I t s p o s i - tion a s an independent agency with a national and a world reputation, h a s been of g r e a t benefit t o DBR. T h e r e h a s been a s u b s t a n t i a l m e a s u r e of f r e e d o m i n the allocation o f t h e r e s o u r c e s p r o v i d e d w h i c h g a v e D B R a flexibility t o respond t o new n e e d s and o p p o r - t u n i t i e s a s t h e y a r o s e . The a d m i n i s t r a t i v e and s e r v i c e support provided to i t s r e s e a r c h Divisions w a s s p e c i a l l y d e v i s e d t o p r o m o t e the efficient and effective p r o s e c u t i o n of r e s e a r c h and

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DBR w a s allowed t o g r o w a t a r a t e well suited t o the o r d e r l y development of i t s own c a p a b i l i t i e s t o s e r v e and the i n d u s t r y ' s ability t o benefit f r o m the s c i e n t i f i c support provided.

T h e s e c o n s i d e r a t i o n s a r e of s u c h r e l e v a n c e t o the r e s e a r c h n e e d s of the c o n s t r u c - tion i n d u s t r y and t o i t s f u t u r e that t h e following r e c o m m e n d a t i o n s s e e m well justified.

RECOMMENDATION 1

The Division of Building R e s e a r c h should be m a i n t a i n e d a s a s t r o n g national building r e s e a r c h i n s t i t u t e , providing s c i e n t i f i c s u p p o r t through i n f o r m a t i o n , a d v i c e , and r e s e a r c h f o r the c o n s t r u c t i o n i n d u s t r y of Canada.

RECOMMENDATION 2

T h e Division of Building R e s e a r c h should be p e r m i t t e d t o g r o w , a s f a r a s i s p r a c t i c a l , t o k e e p pace with the expanding n e e d s of t h e i n d u s t r y , to have a s u b s t a n t i a l m e a s u r e of flexibility in o p e r a t i o n , and t o m a i n t a i n i t s position a s an independent, unbiased and r e l i a b l e s o u r c e of i n f o r m a t i o n and advice in the i n t e r e s t of effective scientific s u p p o r t f o r the c o n s t r u c t i o n i n d u s t r y , even c o n s i d e r i n g , if n e c e s s a r y , a change f r o m i t s p r e s e n t positionwithin the National R e s e a r c h Council, which h a s s o f a r been highly conducive

t o i t s w e l f a r e and to the a c h i e v e m e n t of i t s objectives.

The e a r l y s t a g e s of development of DBR w e r e c h a r a c t e r i z e d by low l e v e l s of r e - s e a r c h activity r e l a t e d t o c o n s t r u c t i o n , and by l i m i t e d r e s e a r c h c a p a c i t y within g o v e r n - m e n t s , both f e d e r a l and provincial. T h i s situation h a s now changed m a r k e d l y with the g r e a t i n c r e a s e i n r e s e a r c h g r a n t s t o u n i v e r s i t i e s i n the 19601s, the g r o w t h of DBR and o t h e r r e s e a r c h g r o u p s both within and outside of g o v e r n m e n t , and t h e i n c r e a s i n g extent and complexity of g o v e r n m e n t involvement in c o d e s and s t a n d a r d s , the promotion of innovation and t r a d e , housing and u r b a n a f f a i r s , and s c i e n c e policy g e n e r a l l y .

The D e p a r t m e n t of I n d u s t r y , T r a d e and C o m m e r c e , the M i n i s t r y of State f o r S c i e n c e and Technology, and the M i n i s t r y of State f o r Urban A f f a i r s , did not e x i s t until a few y e a r s ago. T h e y have been a s s i g n e d i m p o r t a n t r o l e s i n the national s c h e m e of things, with v e r y s u b s t a n t i a l i m p l i c a t i o n s f o r t h e c o n s t r u c t i o n i n d u s t r y .

F o r m a n y y e a r s C e n t r a l M o r t g a g e and Housing C o r p o r a t i o n c a r r i e d , by a g r e e m e n t with DBR, t h e r e s p o n s i b i l i t y f o r knowledge -promoting a c t i v i t i e s i n t h e b r o a d field of housing and community planning. DBR undertook t o s e r v e a s the t e c h n i c a l r e s e a r c h wing f o r CMHC. In 1971 the M i n i s t r y of State f o r Urban A f f a i r s w a s e s t a b l i s h e d "to i n i t i a t e , p r o m o t e , and coordinate p o l i c i e s , p r o j e c t s and r e s e a r c h in u r b a n a f f a i r s b a s e d on knowledge of the u r b a n p r o c e s s and on the development of c l o s e r e l a t i o n s with a g e n c i e s involved."(I-l) Some of t h e m a i n i s s u e s that have been identified by MOSUA a r e :

-

the u r b a n policy s y s t e m

-

n o r m s and p r e f e r e n c e s

-

s p a t i a l d i s t r i b u t i o n of population and e c o n o m i c a c t i v i t i e s

(20)

-

e n v i r o n m e n t s , s o c i a l and p h y s i c a l

-

t h e u r b a n public e c o n o m y

-

u r b a n land a l l o c a t i o n s y s t e m s

-

t r a n s p o r t a t i o n and c o m m u n i c a t i o n

-

c o m p r e h e n s i v e public p r o g r a m m o d e l .

Although t h e r e s e a r c h p r o g r a m and o b j e c t i v e s of MOSUA m a y be a s s u m e d t o be s t i l l in a s t a t e of d e v e l o p m e n t , i t i s c l e a r t h a t t h e intention of t h e g o v e r n m e n t w a s t h a t MOSUA should p r o m o t e and c o o r d i n a t e m a n y m a t t e r s involving h o u s e s and buildings a s d i s t i n c t f r o m t h e p r o b l e m s of individual buildings. In p a r t i c u l a r , i t would a p p e a r that m a n y m a t t e r s involving planning, t h e p r o b l e m s of c i t i e s , and r e l a t e d public and u s e r r e a c t i o n s , a r e quite f i r m l y c o m m i t t e d t o the a t t e n t i o n of t h e new M i n i s t r y . CMHC now r e p o r t s t o t h e M i n i s t e r of State f o r U r b a n A f f a i r s , and h a s b e e n reviewing and r e v i s i n g i t s p o l i c i e s in r e s p e c t of r e s e a r c h funding.

T h e D e p a r t m e n t of I n d u s t r y , T r a d e and C o m m e r c e w a s f o r m e d by t h e m e r g e r of two d e p a r t m e n t s in 1969. Among i t s m a n y functions i t m u s t p r o m o t e t h e " e s t a b l i s h m e n t , g r o w t h and efficiency of m a n u f a c t u r i n g , p r o c e s s i n g , a n d t o u r i s t i n d u s t r i e s in C a n a d a , c o n t r i b u t e t o t h e sound d e v e l o p m e n t and productivity of C a n a d i a n i n d u s t r y g e n e r a l l y , and f o s t e r t h e d e v e l o p m e n t of C a n a d i a n t r a d e . " T h e D e p a r t m e n t i s s t r o n g l y i n d u s t r y - and t r a d e - o r i e n t e d and i s w e l l s u i t e d t o d e a l with m a n u f a c t u r i n g , t r a d e m a t t e r s , and e x p o r t s . I t i s a l s o a p p r o p r i a t e l y involved in d e v e l o p m e n t t h r o u g h v a r i o u s p r o g r a m s , and in p r o d u c t i n f o r m a t i o n . T h e D e p a r t m e n t r e c e i v e s s c i e n t i f i c a n d t e c h n i c a l s u p p o r t f r o m NRC a n d o t h e r r e s e a r c h a g e n c i e s in s u p p o r t of t h e PAIT ( P r o g r a m f o r t h e A d v a n c e - m e n t of I n d u s t r y Technology) d e v e l o p m e n t g r a n t s and with v a r i o u s s c i e n t i f i c and t e c h - n i c a l m i s s i o n s a s s o c i a t e d with t r a d e promotion. T h e S t a n d a r d s Council of C a n a d a , which r e p o r t s t o D I T C , m i g h t a l s o be r e g a r d e d p r i m a r i l y a s a f a c i l i t y f o r t r a d e a n d c o m m e r c e .

DITC h a s a n inevitable involvement in t h e c o n s t r u c t i o n i n d u s t r y t h r o u g h i t s r e - s p o n s i b i l i t y f o r m a n u f a c t u r i n g a n d t r a d e . It i s not involved d i r e c t l y i n r e s e a r c h but i s r e s p o n s i b l e f o r d e v e l o p m e n t and f o r p r o d u c t and o t h e r i n f o r m a t i o n w h i c h a r e c l o s e l y r e l a t e d . It i s c u r r e n t l y s p o n s o r i n g , a s p a r t of i t s BEAM (Building, E q u i p m e n t ,

A c c e s s o r i e s , and M a t e r i a l s ) p r o g r a m , t h e C a n a d i a n C o n s t r u c t i o n I n f o r m a t i o n S y s t e m , which i s t o be extended t o include t e c h n i c a l a s w e l l a s p r o d u c t i n f o r m a t i o n . T h e C o n -

s t r u c t i o n I n d u s t r y Development Council, with r e p r e s e n t a t i o n f r o m both public a n d p r i v a t e i n t e r e s t s , h a s been e s t a b l i s h e d t o a d v i s e t h e M i n i s t e r of I n d u s t r y , T r a d e a n d C o m m e r c e on t h o s e m a t t e r s of c o n s t r u c t i o n within h i s j u r i s d i c t i o n .

T h e r e h a s b e e n a r e c e n t development i n t h e D e p a r t m e n t of P u b l i c W o r k s which involves a d i r e c t c o m m i t m e n t t o r e s e a r c h f o r c o n s t r u c t i o n . T h e e s t a b l i s h m e n t of a n a c t i v i t y known a s T e c h n i c a l R e s e a r c h and Development h a s been a c c e p t e d in p r i n c i p l e a n d i s now being d i s c u s s e d . T h e a c t i v i t i e s will undoubtedly be r e l a t e d t o the e x p l o i t a - tion of t h e D e p a r t m e n t ' s own v e r y e x t e n s i v e e x p e r i e n c e i n c o n s t r u c t i n g , owning, a n d o p e r a t i n g buildings and w o r k s of a l l kinds a s w e l l a s t h e r e s e a r c h findings of o t h e r s which m a y be applied i n d e p a r t m e n t a l o p e r a t i o n s .

M i n i s t r i e s , D e p a r t m e n t s , a n d a g e n c i e s t h a t have p r o v i d e d s u p p o r t in r e c e n t y e a r s f o r u n i v e r s i t y r e s e a r c h t h a t h a s s o m e r e l e v a n c e t o c o n s t r u c t i o n a r e t h e following:

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