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Economic trade-off in building regulations
Wilson, A. H.
https://publications-cnrc.canada.ca/fra/droits
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IECONOMIC TRADE-OFF I N BUILDING REGULATIONS
by A.H. Wilson
AMALY
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Presented at CIB 84
Third International Symposium on Building Economics Ottawa, Ontario, Canada.
Proceedings, Vol. 5, p. 1
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10Reprinpd with permission I /
DBR Paper No. 1225
Division of Building Research
This paper, w h i l e being d i s t r i b u t e d i n reprint form by the D i v i s i o n of Building Research, remains the copyright of the o r i g i n a l publisher. It should not be reproduced i n whole or i n part without t h e permission of the publisher.
A l i s t of a l l p u b l i c a t i o n s a v a i l a b l e from t h e D j 1 r 4 - * - - - - - w hn n h t a i n a d hv writing t o t h e C B u i ' C ou KIA
ECONOMIC TRADE-OFF I N BUILDING REGULATIONS A.H. Wilson
D i v i s i o n of B u i l d i n g Research,
N a t i o n a l Research C o u n c i l o f Canada, Ottawa,
KIA OR6
Key words
B u i l d i n g economics; b u i l d i n g r e g u l a t i o n s ; b u i l d i n g c o d e s SYNOPSIS
The Canadian j u r i s d i c t i o n a l system u s u a l l y i n v o l v e s t h r e e o r f o u r l e v e l s of government, each w i t h i t s own r e g u l a t o r y r e s p o n s i b i l i t i e s i n v o l v i n g b u i l d i n g s . T h i s system c o m p l i c a t e s t h e economic t r a d e - o f f process.
Models c a n be used t o e v a l u a t e t h e economic impact of b u i l d i n g c o d e s and r e g u l a t i o n s w i t h i n t h e Canadian j u r i s d i c t i o n a l system. They c a n a s s i s t i n t h e a s s e s s m e n t of economic t r a d e - o f f s i t u a t i o n s . A model s u g g e s t e d e a r l i e r f o r u s e i n t h e Canadian c o n t e x t i s a p p l i e d t o s i t u a t i o n s a r i s i n g from t h e N a t i o n a l B u i l d i n g Code, measures f o r energy c o n s e r v a t i o n and t h e u s e of a s p e c i f i c i n s u l a t i n g m a t e r i a l .
&sue
Le systsme j u r i d i c t i o n n e l c a n a d i e n i m p l i q u e t r o i s ou q u a t r e p a l i e r s gouvernementaux, chacun a y a n t ses p r o p r e s r e s p o n s a b i l i t 6 . s v i s - a - v i s l a r 6 g l e m e n t a t i o n du batiment. Ce systsme r e n d trGs d i f f i c i l e 1'Ctude d e compromis 6conomiques. D e s modeles peuvent s e r v i r Zi 6 v a l u e r l ' i m p a c t 6conomique d e s codes e t d e s r e g l e m e n t s r 6 g i s s a n t l e b a t i m e n t
2
l V i n t E r i e u r du systbme j u r i d i c t i o n n e l canadien e t v e n i r en a i d e dans l t 6 v a l u a t i o n d e compromis 6conomiques. Un modele q u i a & t 6 propos5
pr6c6demment est u t i l i s 6 dans t r o i s s i t u a t i o n s e n r a p p o r t a v e c l e Code n a t i o n a l du b z t i m e n t , l e s mesures dt6conomie d t B n e r g i e e t
ECONOMIC TRADE-OFF I N BUILDING REGULATIONS
A.H. Wilson
INTRODUCTION
B u i l d i n g codes and r e g u l a t i o n s have n o t escaped c r i t i c a l comment, from
a v a r i e t y of p o i n t s of view. F o r example, one Canadian commentator
wrote s e v e r a l y e a r s ago: "The development of b u i l d i n g r e g u l a t i o n s
today i s a n a i m l e s s p r o c e s s . T h i s i s n o t n e c e s s a r i l y a bad t h i n g ; i t
simply means t h a t i t is n o t d i r e c t e d by man. I n t h e b r o a d e s t s e n s e ,
b u i l d i n g r e g u l a t i o n s d e v e l o p from contingency t o contingency. Each
one r e p r e s e n t s a n emergency measure t a k e n from v e r y l i t t l e o r no
s t u d y . A s t h e emergency r e c e d e s , t h e r e g u l a t i o n t e n d s t o form p a r t of
t r a d i t i o n a l p r a c t i c e . It is added t o t h e p i l e , which grows and
grows." (1)
Obviously, nowadays, b o t h t h e economic and s o c i a l i m p a c t s o f codes and r e g u l a t i o n s d e s e r v e s e r i o u s c o n s i d e r a t i o n and have been g e t t i n g i t . But even t h i s development h a s drawn comment, f o r example:
" S e p a r a t e laws cover v i r t u a l l y a l l a s p e c t s of t h e p r o c e s s of
h u i l d i n g , from a c q u i s i t i o n and r e f i n e m e n t o f materials t o
window and door arrangements i n t h e f i n a l product. S o c i a l
r e g u l a t i o n h a s assumed r e s p o n s i b i l i t y f o r t h e s t r u c t u r e and
: c h a r a c t e r i s t i c s of t h e p r o c e s s i n v i r t u a l l y a l l Western
.Nations. It does n o t seem t o o d r a s t i c t o s a y t h a t t h e
b u i l d i n g p r o c e s s i s i n t r o u b l e i n t h e s e n a t i o n s . An
a p p a r e n t mismatch h a s emerged between t h e a f f o r d a b i l i t y and q u a l i t i e s of t h e p r o d u c t s on t h e one hand and t h e s o c i a l
needs and r e q u i r e m e n t s on t h e o t h e r . Too o f t e n w e see
b u i l d i n g s t h a t a r e p a r t i c u l a r l y e x p e n s i v e , b u t n o t
p a r t i c u l a r l y : s a f e , s o l i d , p l e a s a n t , r e s i s t a n t t o
d e t e r i o r a t i o n o r b e n e f i c i a l t o s o c i e t y . They a r e now found
t o be a s c a r c i n o g e n i c a s t h e y once were l e a k y
..."
(2)Obviously, i n t h e f u t u r e , methods must be used which e n a b l e t h e r e g u l a t o r , t h e code w r i t e r , and o t h e r s t o l a y o u t t h e a l t e r n a t i v e s t h a t should be t a k e n i n t o account when code and r e g u l a t o r y p r o v i s i o n s
a r e b e i n g framed. These a r e b e i n g developed now, and some i n v o l v e
models. Some models w i l l permit t h e t r a d i n g - o f f of one t y p e of c o s t
a g a i n s t a n o t h e r , o r o t h e r s , and one t y p e of impact a g a i n s t a n o t h e r .
T h i s paper d i s c u s s e s one such model which had been proposed e a r l i e r
THE MODEL ITSELF Diagrammatically, i t looks l i k e t h i s : E C O N O M l C I M P A C T S D l R E C T l N D I R E C T T E C H N I C A L
&$q
T E C H N I C A L&$q
Economic impacts may be c a l c u l a t e d i n s e v e r a l ways
-
f o r example,u s i n g n e t monetary b e n e f i t s ( o r c o s t s ) , o r numbers of l i v e s saved. Costs and b e n e f i t s may a l s o be c a l c u l a t e d o v e r t h e expected o r remaining l i v e s of t h e b u i l d i n g s under s t u d y . And i n o r d e r t o d e a l
w i t h u n c e r t a i n t i e s
-
f o r example, d i s c o u n t o r t a x r a t e s-
s e n s i t i v i t ya n a l y s e s may be r e q u i r e d . For t h e purposes of t h i s paper, t h e
techniques of c a l c u l a t i o n w i l l not be d i s c u s s e d s i n c e t h e s e a r e w e l l
covered i n t h e l i t e r a t u r e (4). Indeed, c a l c u l a t i o n w i l l p l a y second
f i d d l e t o d e s c r i p t i o n i n what follows.
I n t h i s model, d i r e c t economic impacts a r e " f i r s t o r d e r " impacts
r e s u l t i n g from t h e work done t o i n c o r p o r a t e a code o r r e g u l a t o r y
p r o v i s i o n i n t o a b u i l d i n g o r b u i l d i n g s . I n d i r e c t i m p a c t s are "second
o r d e r " ones t h a t provide background s u p p o r t , e i t h e r f o r t h e work t o b e
done, o r a s a r e s u l t of i t h a v i n g been done. T e c h n i c a l impacts a r e
t h o s e t h a t cover t h e continuum of a c t i v i t i e s from r e s e a r c h through
d e s i g n t o a c t u a l c o n s t r u c t i o n and beyond. Non-technical o n e s a r e
a s s o c i a t e d p r i n c i p a l l y w i t h f i n a n c i n g and w i t h t h e post-work o p e r a t i o n
and u s e of t h e b u i l d i n g o r b u i l d i n g s . The f o l l o w i n g a r e examples:
D i r e c t , t e c h n i c a l : t h e c o s t s of d e s i g n , c o n s t r u c t i o n , r e n o v a t i o n ,
i n s p e c t i o n , maintenance ( t e c h n i c a l i t e m s o n l y )
D i r e c t , non-technical: t h e c o s t s of f i n a n c i n g , mortgages, government
g r a n t s u p p o r t
I n d i r e c t , t e c h n i c a l : t h e c o s t s of back-up R & D, m a t e r i a l s t e s t i n g ,
t r a i n i n g , i n f o r m a t i o n s e r v i c e s
I n d i r e c t , non-technical: t h e changes i n c o s t s (and b e n e f i t s ) of
o p e r a t i n g and u s i n g t h e b u i l d i n g o r b u i l d i n g s , changes i n t a x revenues, improvements i n occupant p r o d u c t i v i t y .
The l a s t l i n e of t h e model a l l o c a t e s t h e d i f f e r e n t impacts a c c o r d i n g
t o whether t h e s o u r c e o r b e n e f i c i a r y i s p r i v a t e o r p u b l i c . It i s a t
impact of t h e new o r changed code o r r e g u l a t i o n c a n be a s s e s s e d . I n some c a s e s , t h e o v e r a l l impact can be a s s e s s e d simply by a d d i n g up t h e n e t c o s t s and t h e n e t b e n e f i t s . I n o t h e r s , a clear imbalance may emerge, prompting a re-examination of t h e proposed change o r
r e a d j u s t m e n t s among t h e d i f f e r e n t impacts. And i n s t i l l o t h e r s , one o r more i n t a n g i b l e and e s s e n t i a l l y non-measurable f a c t o r s w i l l need t o be t a k e n i n t o account. One s u c h i n t a n g i b l e i s p o l i t i c a l p r e s s u r e . Another i s human comfort. And y e t a n o t h e r is t h e v a l u e of a saved l i f e . However, i n some a n a l y s e s , s a v e d l i v e s w i l l be g i v e n monetary values.
The model h a s a number of o t h e r f e a t u r e s . It h a s a l i m i t e d p r e d i c t i v e c a p a c i t y , a l t h o u g h i t can show t h e e f f e c t s of c o r r e c t i n g poor
r e g u l a t i o n . It cannot g u a r a n t e e t h a t a p a r t i c u l a r code o r r e g u l a t o r y change w i l l a c h i e v e i t s i n t e n d e d o b j e c t i v e , a l t h o u g h i t may p r o v i d e guidance on how much Government X and Company
Y
a r e w i l l i n g t o spend t o a c h i e v e t h i s o b j e c t i v e .The model c a n be a p p l i e d more e f f e c t i v e l y t o t h e a n a l y s i s of a s i n g l e change
-
o r of a series of c l o s e l y r e l a t e d ones-
t o a code o rr e g u l a t i o n . I t s v a l u e i n r e l a t i o n t o a whole code o r a n e x t e n s i v e s e t
of r e g u l a t i o n s i s less meaningful. S i m i l a r l y , t h e model may be a p p l i e d t o s i n g l e b u i l d i n g s o r t o b u i l d i n g s o f t h e same t y p e w i t h b e t t e r r e s u l t s t h a n would be t h e c a s e i f i t were a p p l i e d t o t h e e n t i r e b u i l d i n g s t o c k . The model can, of c o u r s e , be a p p l i e d t o e x i s t i n g code and r e g u l a t o r y r e q u i r e m e n t s , and t h e r e s u l t s compared w i t h t h e
a n a l y s e s f o r proposed changes.
What t h e model e s s e n t i a l l y d o e s i s p r o v i d e a framework i n which t h e d i v e r s e impacts of new o r changed p r o v i s i o n s i n codes and r e g u l a t i o n s c a n be examined from a n economic p o i n t of view.
THE CANADIAN SYSTEM
Before a p p l y i n g t h i s model t o Canadian s i t u a t i o n s , a b r i e f d e s c r i p t i o n of t h e j u r i s d i c t i o n a l system a s i t a p p l i e s t o b u i l d i n g c o d e s and
r e g u l a t i o n s i s n e c e s s a r y . It i s a complex system i n which t h e w r i t i n g of t h e codes i s a much more uniform p r o c e s s t h a n t h e i r a p p l i c a t i o n . S e v e r a l l e v e l s of j u r i s d i c t i o n a r e i n v o l v e d , a s w e l l a s a v a r i e t y o f i n s t i t u t i o n s
-
i n c l u d i n g some f o r e i g n ones.R e g u l a t i o n i s a p o l i t i c a l b u s i n e s s i n which t h e p o l i t i c i a n s d e c i d e what and how t o r e g u l a t e and t h e b u r e a u c r a t s implement t h e s e
d e c i s i o n s . However, t h e a c t u a l w r i t i n g of a code o r a s e t of r e g u l a t i o n s i s o f t e n g i v e n t o e x p e r t non-government people.
The Canadian C o n s t i t u t i o n p e r m i t s b o t h t h e f e d e r a l and p r o v i n c i a l l e v e l s of government t o r e g u l a t e commercial and s o c i a l a c t i v i t i e s a c c o r d i n g t o a n a g r e e d d i v i s i o n of l a b o u r (which a l s o e n t a i l s some d u p l i c a t i o n ) . It a l s o p e r m i t s t h e m u n i c i p a l i t i e s t o r e g u l a t e
a c t i v i t i e s a s l a i d down by t h e i r p r o v i n c i a l a u t h o r i t i e s . T h i s t h i r d l e v e l of government may have l o c a l and r e g i o n a l components, a g a i n depending on p r o v i n c i a l p r e f e r e n c e . For example, environmental
r e g u l a t i o n s may be imposed by a l l l e v e l s of governement. On t h e o t h e r
hand, l a n d u s e i s t h e r e s p o n s i b i l i t y of t h e p r o v i n c e s and t h e
m u n i c i p a l i t i e s e x c e p t i n t h e two T e r r i t o r i e s , t h e n a t i o n a l p a r k s , and defence and o t h e r f e d e r a l Crown l a n d s .
Under t h e Canadian system, a p r o v i n c e may p e r m i t i t s m u n i c i p a l i t i e s t o adopt b u i l d i n g codes of t h e i r own, o r no code a t a l l , e s p e c i a l l y i n
t h e c a s e of very t h i n l y populated j u r i s d i c t i o n s . O r t h e p r o v i n c e may impose i t s own uniform code on a l l , o r most, of i t s m u n i c i p a l i t i e s . A s p o i n t e d o u t i n a r e c e n t paper:
"The f e d e r a l government h a s no j u r i s d i c t i o n w i t h r e g a r d t o b u i l d i n g codes e x c e p t i n t h e two n o r t h e r n t e r r i t o r i e s , b u t one of i t s a g e n c i e s , t h e N a t i o n a l Research Council, p r o v i d e s f a c i l i t i e s f o r compiling and p u b l i s h i n g t h e N a t i o n a l
R u i l d i n g and F i r e Codes (NBC and NFC). The NRC does n o t w r i t e t h e s e Codes. T h i s i s done by independent t e c h n i c a l
committess under t h e guidance of t h e NRC A s s o c i a t e
Committees f o r t h e two Codes. The Codes are r e v i s e d and r e i s s u e d e v e r y few y e a r s , and a r e c o n s t a n t l y b e i n g
updated.... The NBC is e s s e n t i a l l y a model code c o n t a i n i n g o n l y minimum r e g u l a t i o n s f o r t h e s a f e t y of new b u i l d i n g s w i t h r e s p e c t t o p u b l i c h e a l t h , f i r e p r o t e c t i o n and s t r u c t u r a l s u f f i c i e n c y , among o t h e r t h i n g s . The NFC, on t h e o t h e r hand, e s t a b l i s h e s t h e s t a n d a r d s f o r f i r e p r o t e c t i o n , f i r e f i g h t i n g p r o v i s i o n s and l i f e s a f e t y w i t h i n e x i s t i n g buildings.... T h i s Code a l s o e s t a b l i s h e s t h e s t a n d a r d s f o r t h e p r e v e n t i o n , containment and f i g h t i n g of p o t e n t i a l l y hazardous f i r e s o r i g i n a t i n g o u t s i d e buidings." (5) A s s o c i a t e d w i t h , b u t s e p a r a t e from, t h e N a t i o n a l B u i l d i n g Code a r e t h e Canadian Plumbing and Farm Building Codes. The NRC A s s o c i a t e
Committee r e s p o n s i b l e h a s a l s o p u b l i s h e d measures f o r energy
c o n s e r v a t i o n i n new b u i l d i n g s and h a s s t u d i e d t h e i m p l i c a t i o n s of code r e q u i r e m e n t s f o r r e n o v a t e d and r e h a b i l i t a t e d b u i l d i n g s . Some
provinces have a l s o been a c t i v e i n energy c o n s e r v a t i o n and r e n o v a t i o n measures.
The Canadian E l e c t r i c a l Code i s t h e r e s p o n s i b i l i t y of t h e Canadian S t a n d a r d s A s s o c i a t i o n (CSA), a p r i v a t e s t a n d a r d s - w r i t i n g body. The CSA i s n o t , however, l i m i t e d t o e l e c t r i c a l m a t t e r s i n t h e b u i l d i n g s t a n d a r d s f i e l d . Many of i t s consensus s t a n d a r d s a r e used i n t h e N a t i o n a l R u i l d i n g Code i t s e l f , a s a r e s t a n d a r d s produced by t h e Canadian General Standards Board, t h e Underwriters' L a b o r a t o r i e s of Canada and t h e Canadian Gas A s s o c i a t i o n , which produces t h e Gas Code. There i s a l s o a Standards O f f i c e i n Quebec which h a s a c c r e d i t e d
s t a t u s . F i n a l l y , consensus s t a n d a r d s w r i t t e n a b r o a d
-
f o r example, by ASTM o r ASHRAE-
may be i n c o r p o r a t e d i n t o t h e Canadian Codes.The N a t i o n a l R u i l d i n g and F i r e Codes were l a s t published, a f t e r major review, i n 1980. The next e d i t i o n of both Codes i s scheduled f o r p u b l i c a t i o n i n 1985.
FIRST
EXAMPLE
The f i r s t example i s based on a proposed change t o t h e N a t i o n a l
B u i l d i n g Code, t o have e f f e c t when t h e 1985 e d i t i o n i s a c c e p t e d by t h e a u t h o r i t i e s .
The A r t i c l e reads:
"Where b a r r i e r f r e e a c c e s s i s provided above t h e f i r s t s t o r e y i n a b u i l d i n g t h a t i s not s p r i n k l e r e d , e v e r y f l o o r a r e a having s u c h a c c e s s s h a l l ( a ) be s e r v e d by a n e l e v a t o r conforming t o Sentences..., p r o t e c t e d a g a i n s t f i r e i n
conformance w i t h Clauses... and, i n b u i l d i n g s o v e r 3 s t o r e y s i n b u i l d i n g h e i g h t , p r o t e c t e d a g a i n s t smoke movement i n
conformance w i t h Sentence..., (b) be d i v i d e d i n t o a t l e a s t 2
zones conforming t o Sentences... s o t h a t d i s a b l e d persons
c a n be accommodated i n e a c h zone, ( c ) i n t h e c a s e of r e s i d e n t i a l occupancies, be provided w i t h b a l c o n i e s
conforming t o Sentence... e x c e p t on t h e s t o r e y c o n t a i n i n g
t h e a c c e s s e n t r a n c e d e s c r i b e d i n Article... o r (d) have a n
e x t e r i o r e x i t a t ground l e v e l o r a ramp l e a d i n g t o ground
level." ( 6 )
T h i s example does n o t r e q u i r e economic j u s t i f i c a t i o n f o r b a r r i e r f r e e a c c e s s t o t h e i n s t i t u t i o n a l and r e s i d e n t i a l b u i l d i n g s t o which t h e
A r t i c l e r e f e r s . It does, however, r e q u i r e s e p a r a t e a n a l y s e s f o r e a c h
b u i l d i n g type and, w i t h i n each t y p e , i t is n e c e s s a r y t o d e a l w i t h t h e
d e s i g n a l t e r n a t i v e s .
I f a n i n s t i t u t i o n a l b u i l d i n g f o u r s t o r e y s h i g h i s a n a l y s e d u s i n g t h e
model i n a d e s c r i p t i v e way without f i r m f i g u r e s , t h e p r i n c i p a l c o s t s and b e n e f i t s c a n be i d e n t i f i e d a s follows:
D i r e c t , t e c h n i c a l : t h e d i f f e r e n c e i n t h e c o s t of i n s t a l l i n g a
" s t a n d a r d " e l e v a t o r and t h e f i r e f i g h t e r ' s e l e v a t o r r e q u i r e d by t h e new p r o v i s i o n , p l u s t h e accompanying requirements f o r a c c e s s t o i t , c o n t r o l s e t c . ; t h e a d d i t i o n a l work r e q u i r e d t o meet t h e smoke c o n t r o l r e s t r i c t i o n ; t h e f i r e s e p a r a t i o n requirements f o r t h e two zones; and t h e e x t r a c o s t of t h e s p e c i a l d o o r s r e q u i r e d between t h e zones.
D i r e c t , non-technical: t h e c o s t of f i n a n c i n g t h e a d d i t i o n a l work,
l e s s any g r a n t s o r o t h e r s u b v e n t i o n s a v a i l a b l e f o r i t .
I n d i r e c t , t e c h n i c a l : s i n c e t h e changes covered i n t h i s A r t i c l e u s e
a c c e p t e d technology, t h e allowance under t h i s element may b e q u i t e small.
I n d i r e c t , non-technical: t h e p r i n c i p a l b e n e f i t i n t h i s c a s e i s
e n a b l i n g t h o s e who need b a r r i e r - f r e e a c c e s s t o u s e t h e b u i l d i n g w i t h g r e a t e r s a f e t y i n f i r e s i t u a t i o n s ; however, s i n c e t h i s t r a n s l a t e s i n t o
a "saving-of-life" b e n e f t t , a money v a l u e may n o t be i n c o r p o r a t e d i n t o
t h e impact assessment. But i f i t i s assumed t h a t no handicapped
people would work i n t h e b u i l d i n g u n l e s s t h i s A r t i c l e i s a p p l i e d and,
indeed, would n o t work a t a l l , t h e n t h e i r wages s h o u l d b e i n c l u d e d i n t h i s f o u r t h element, and t h e i r t a x d e d u c t i o n s c r e d i t e d t o t h e
S t a t e .
The d e t e r m i n a t i o n of t h e f i n a l l i n e of t h e model w i l l depend on t h e
ownership of t h e b u i l d i n g and on who does t h e work of i n s t a l l a t i o n e t c .
SECOND EXAMPLE
T h i s example i s based on t h e r e v i s e d Measures f o r Energy Conservation
i n New B u i l d i n g s r e c e n t l y i s s u e d by t h e A s s o c i a t e Committee on t h e N a t i o n a l Building Code and, i n p a r t i c u l a r , on t h e S e c t i o n d e a l i n g w i t h
g l a z i n g i n detached, semi-detached, duplex and row houses.
The
p e r t i n e n t Sub-Section reads:
"8.3.1. Except a s provided i n A r t i c l e s 8.3.2 and 8.3.3, a l l
g l a s s o r o t h e r g l a z i n g m a t e r i a l t h a t s e p a r a t e s h e a t e d s p a c e from unheated s p a c e o r t h e e x t e r i o r s h a l l b e double g l a z e d w i t h a s p a c i n g of a t l e a s t 1 2 mm betveen t h e panes, e x c e p t
8.3.2. Except a s provided i n A r t i c l e 8.3.3, where a
b u i l d i n g i s l o c a t e d i n a r e g i o n where t h e number of d e g r e e
days exceeds 6,500, a l l windows and s k y l i g h t s s h a l l b e
t r i p l e g l a z e d w i t h s p a c i n g s of a t l e a s t 6 mm between t h e
panes.
8.3.3. Where t h e t h e r m a l r e s i s t a n c e of g l a s s o r o t h e r
g l a z i n g is d i f f e r e n t from t h a t r e q u i r e d i n A r t i c l e s 8.3.1
and 8.3.2, t h e a r e a of g l a s s may be a d j u s t e d i n conformance
w i t h ( a n o t h e r A r t i c l e ) .
8.3.4. Where a n e n c l o s e d unheated s p a c e , s u c h a s a s u n
porch, enclosed verandah o r v e s t i b u l e , i s s e p a r a t e d from
a
h e a t e d s p a c e by g l a s s o r o t h e r g l a z i n g m a t e r i a l , t h e unheated e n c l o s u r e may be considered t o provide t h e e q u i v a l e n t of 1 l a y e r of g l a s s .
8.3.5. Except a s provided i n A r t i c l e 8.3.6, t h e t o t a l a r e a
of g l a s s o r o t h e r g l a z i n g m a t e r i a l , i n c l u d i n g g l a s s f o r doors and s k y l i g h t s , t h a t s e p a r a t e s h e a t e d s p a c e from
unheated s p a c e o r t h e e x t e r i o r s h a l l n o t exceed 15 p e r c e n t of t h e f l o o r s u r f a c e a r e a of t h e s t o r e y s e r v e d by t h e g l a z e d a r e a s . 8.3.6. Where g l a s s o r o t h e r g l a z i n g m a t e r i a l f a c e s a d i r e c t i o n w i t h i n 45 d e g r e e s of due s o u t h , a l l o w a b l e g l a z e d a r e a s may be a d j u s t e d i n conformance w i t h A r t i c l e 3.3.6. 3.3.6.
...
t h e a r e a of c l e a r g l a s s o r o t h e r g l a z i n g w a t e r i a l t h a t h a s a s h a d i n g c o e f f i c i e n t of more t h a n 0.70,t h a t i s unshaded i n t h e w i n t e r a t noon on December 21, and f a c e s a d i r e c t i o n w i t h i n 45 d e g r e e s of due South may b e
assumed t o be 50 p e r c e n t of i t s unshaded a r e a i n
c a l c u l a t i n g t h e maximum a r e a of glass... provided t h e
b u i l d i n g is designed s o t h a t i t i s c a p a b l e of d i s t r i b u t i n g
t h e s o l a r h e a t g a i n from s u c h g l a z e d a r e a s throughout t h e
building." ( 7 )
The Measures a p p l y t o t h e l i m i t a t i o n of energy u s e i n a l l t y p e s of
b u i l d i n g s . They r e q u i r e t h a t owners, i n a d d i t i o n t o s u b m i t t i n g p l a n s
t o t h e a u t h o r i t y having j u r i s d i c t i o n , i n c l u d e d e t a i l s t h a t show conformance w i t h t h e Measures a s w e l l a s c a l c u l a t i o n s of h e a t l o s s e s and g a i n s .
It w i l l be assumed t h a t t h e s e p r o v i s i o n s have been followed and t h a t energy s a v i n g s w i l l be i n v o l v e d , due i n p a r t t o t h e g l a z i n g t o be
used. It w i l l a l s o be assumed t h a t t h e South-facing and degree-day
requirements have been met, t h a t t h e r e a r e no s k y l i g h t s , t h a t t h e r e i s
a n unheated s p a c e on t h e South-facing s i d e of t h e b u i l d i n g , and t h a t t h e b u i l d i n g has a s i n g l e s t o r e y .
The economic impact w i l l n e t o u t t h e advantages of u s i n g t h e energy-
conserving g l a z i n g o v e r t h e most l i k e l y non-conserving type. Two s e t s
of c a l c u l a t i o n s w i l l t h e r e f o r e b e r e q u i r e d , and t h e d i f f e r e n c e s
between them w i l l be used i n t h e impact a n a l y s i s proper. The f a c t o r s
t o be examined w i l l i n c l u d e :
D i r e c t , t e c h n i c a l : t h e d i f f e r e n c e i n c o s t between t h e g l a z i n g
i n s t a l l a t i o n s and of any a d d i t i o n a l work o r m a t e r i a l r e q u i r e d t o accommodate t h e energy-saving o n e s , and t h e energy s a v i n g s .
D i r e c t , non-technical: t h e d i f f e r e n c e i n f i n a n c i n g c o s t s , and t h e
b e n e f i t s of any a p p l i c a b l e government-sponsored g r a n t - a i d e d home ~ ~.
I n d i r e c t , t e c h n i c a l : a n allowance f o r t h e r e s e a r c h and t e s t i n g
performed on t h e energy-saving i n s t a l l a t i o n s , assuming t h a t t h e o t h e r ones i n v o l v e a c c e p t e d technology and no f u r t h e r t e s t i n g requirements.
I n d i r e c t , non-technical: a g a i n , t h e p r i n c i p a l b e n e f i t s may be
d i f f i c u l t t o measure i n money terms s i n c e human comfort i s involved;
however, t h e r e may n o t be any change i n t h i s i f t h e o b j e c t i v e of
making t h e change i s simply t o s a v e energy.
T h i s example w i l l u s e l i f e - c y c l e c o s t s and s e n s i t i v i t y a n a l y s e s .
THIRD EXAMPLE
The t h i r d example i s concerned w i t h t h e r e g u l a t i o n of t h e u s e of a
s p e c i f i c i n s u l a t i n g m a t e r i a l , u r e a formaldehyde foam, o r UFFI, as i t
i s more commonly known.
UFFI h a s been more of a problem i n Canada, a p p a r e n t l y , t h a n elsewhere.
It i s one of t h e l e s s - c o n v e n t i o n a l i n s u l a t i n g m a t e r i a l s adopted f o r
u s e under t h e p r e s s u r e of energy saving. It i s a thermo-setting
o r g a n i c polymer, manufactured a t t h e j o b s i t e by mixing u r e a
formaldehyde r e s i n w i t h a foaming a g e n t c o n t a i n i n g a n a c i d c a t a l y s t
and a p r o p e l l a n t such a s compressed a i r o r n i t r o g e n . The f r e s h foam
s e t s w i t h i n seconds t o a semi-rigid foam and, o v e r a p e r i o d of weeks, d r i e s t o a s t r u c t u r a l l y weak m a t e r i a l which may s h r i n k w i t h age. S t u d i e s i n t h e l a b o r a t o r y and i n t h e f i e l d have i n d i c a t e d t h a t g a s e s and p a r t i c u l a t e s g i v e n o f f by UFFI i n s u l a t i o n may c a u s e i i l n e s s i n some people.
Canadian e x p e r i e n c e was summed up i n t h i s way i n a r e c e n t paper:
"...
(UFFI) had been i n s t a l l e d i n a n e s t i m a t e d 80,000 Canadian homes,mostly wood-frame, b e f o r e i t was banned under t h e Hazardous P r o d u c t s
Act i n December 1980. The ban was based on t h e a d v i c e of a n e x p e r t
Advisory Committee s e t up by t h e Department of H e a l t h and Welfare. A
y e a r l a t e r , i n December 1981, t h e Canadian Government announced a $110 m i l l i o n a s s i s t a n c e program f o r UFFI homeowners t o c o v e r f r e e t e s t i n g , t e c h n i c a l a d v i c e , and up t o $5,000 t a x - f r e e a s s i s t a n c e f o r
removal of t h e foam o r o t h e r remedial a c t i o n . L a t e r , a d d i t i o n a l f u n d s
were made a v a i l a b l e t o low-income f a m i l i e s . " (8)
The UFFI problem f o r Canadian homeowners h a s been complicated by t h e f a c t t h a t some of them took advantage of a n o t h e r Canadian Government
a s s i s t a n c e prograrn when t h e m a t e r i a l was i n s t a l l e d . And t h e problem
h a s been f u r t h e r complicated f o r homeowners who have n o t s u f f e r e d
i l l n e s s o r o t h e r e f f e c t s . Some of them have had d i f f i c u l t y s e l l i n g
t h e i r p r o p e r t i e s s o l o n g a s t h e m a t e r i a l remains w i t h i n t h e w a l l s . Two s t a n d a r d s were a c t u a l l y w r i t t e n t o c o v e r t h e a p p l i c a t i o n of UFFI, one governing t h e performance c h a r a c t e r i s t i c s of t h e product when a p p l i e d c o r r e c t l y , and t h e o t h e r d e s c r i b i n g how t h e foam s h o u l d b e
i n s t a l l e d . A p r o v i s i o n a l product s t a n d a r d was i s s u e d i n May 1977, and
t h e formal one s i x months l a t e r . The p r o v i s i o n a l i n s t a l l a t i o n
s t a n d a r d was a l s o p u b l i s h e d i n December 1977, and t h e formal one i n J u l y 1980.
I n A p r i l 1981, t h e M i n i s t e r r e s p o n s i b l e a u t h o r i z e d a s t u d y of t h e UFFI
problem by a Board of Review, a s may happen i n t h e c a s e of banned
m a t e r i a l s a t t h e r e q u e s t of a d i s t r i b u t o r of t h e m a t e r i a l .
The
Boardr e p o r t e d i n October 1982. It upheld t h e ban, b u t was c r i t i c a l of t h e
l a c k of warning g i v e n b e f o r e i t was imposed. The Board w a s a l s o
problems involved. I n J u l y 1982, t h e S t a n d i n g Committee on H e a l t h ,
Welfare and S o c i a l A f f a i r s of t h e House of Commons w a s a u t h o r i z e d t o
i n v e s t i g a t e v a r i o u s q u e s t i o n s w i t h r e g a r d t o UFFI. It r e p o r t e d i n
December of t h e same y e a r , and recommended t h a t t h e ban be continued. I n t h e meantime, a s u b s t a n t i a l sum of rnoney h a s been s p e n t on r e s e a r c h
and t e s t i n g i n t h e l a b o r a t o r y and i n homes. T h i s work w i l l c o n t i n u e
f o r some time.
The a n a l y s i s of t h e economic impacts of t h e banning of UFFI shows, i n t u i t i v e l y , t h a t t h e u s e of t h e m a t e r i a l i n Canada h a s been c o s t l y
f o r b o t h government and some of t h e p u b l i c . A t t h i s p o i n t i n time,
t h e f i n a l c o s t a r i t h m e t i c cannot he computed. Nevertheless, t h e model
c a n be used t o show
-
i n o r d e r of magnitude terms-
what t h e s e c o s t shave been and how they have impacted on l a r g e r economic q u e s t i o n s s u c h
a s t h e waste of r e s o u r c e s of s e v e r a l k i n d s , t h e i n t a n g i b l e s s u c h as
t e m p o r a r i l y impaired well-being, and t h e less i n t a n g i b l e e f f e c t s s u c h
as t h e l o s s of wages and s a l a r i e s and l o s s e s i n r e a l e s t a t e values.
The model can a l s o show how important i t i s f o r a p p r o p r i a t e r e g u l a t i o n
t o be a n t i c i p a t e d and t h e need f o r some r e s e a r c h on which t h e a u t h o r i t i e s can base remedial a c t i o n .
CONCLUSION
The model d e s c r i b e d i n t h i s paper can be used t o h e l p make c h o i c e s , o n t h e b a s i s of d e f i n a b l e and f o r e s e e a b l e c o s t s , among t h e a v a i l a b l e
a l t e r n a t i v e s . It can h e l p i n d e a l i n g w i t h t h e d i f f e r e n t k i n d s of
e c o n o d c impacts and i n t h e assessment of t h e i r r e l a t i v e importance
from a v a r i e t y of p o i n t s of view. It can be g i v e n a p r e d i c t i v e r o l e ,
and i t can be used t o measure s e n s i t i v i t i e s .
But i t is s t i l l only a model. While i t may c o n t r i b u t e t o r e d u c i n g c r i t i c a l cornments a b o u t codes and r e g u l a t i o n s and t h e i r a i m l e s s n e s s ,
i t w i l l not e l i m i n a t e them. It can p r o v i d e a guide t o a f f o r d a b i l i t y ,
b u t cannot e q u a t e i t w i t h s a f e t y . It c a n d e a l w i t h t r a d i n g - o f f
economic f a c t o r s , but i t cannot s a y what i s good f o r s o c i e t y . I n
o t h e r words, i t cannot t a k e t h e people o u t of t h e equation.
References:
1. R.S. Ferguson, B u i l d i n g R e g u l a t i o n s
-
Problems of T r a d i t i o n andKnowledge, NRCC 13803, N a t i o n a l Research Council, Ottawa, 1974
2. ]>avid L. Hawk, R e g u l a t i o n of DesignIDesign of Regulation:
I n t e g r a t i n g P a r t P r o c e s s e s i n S o c i e t y , Proceedings of t h e 9 t h
Congress of C I B , Stockholm, 1983
3. Andrew H. Wilson, The Economic Aspects of Building Regulations:
Some Comments on t h e Canadian Case, P r e s e n t e d a t meeting of
C I B W-55, P a r i s , 1982 (unpublished)
4. See f o r example:
C a r o l Chapman Rawie, E s t i m a t i n g Economic Impacts of B u i l d i n g Codes, NRSIR 81-2402, US Department of Commerce, Washington, 1981
5. Andrew H. Wilson, Making Use of B u i l d i n g Research f o r I n d u s t r i a l
Development, Proceedings of t h e 9 t h Congress of C I B , Stockholm,
1983
6 . A s s o c i a t e Committee on t h e N a t i o n a l B u i l d i n g Code, Second S e r i e s
of Proposed Changes f o r I n c l u s i o n i n t h e N a t i o n a l B u i l d i n g Code of Canada, N a t i o n a l Research Council, Ottawa, 1983 ( i s s u e d f o r p u b l i c review and comment)
7. Associate Committee on t h e National Building Code, Measures f o r Energy Conservation i n New Buildings, National Research Council, Ottawa, 1983
8. C.B. Crawford and C.J. S h i r t l i f f e , Problems w i t h Urea Formaldehyde Foam I n s u l a t i o n , Proceedings of t h e 9 t h Congress of CIB,
Stockholm, 1983 ACKNOWLEDGEMENTS
The Author wishes t o acknowledge t h e a s s i s t a n c e of colleagues a t t h e D i v i s i o n of Building Research, Ottawa, i n t h e p r e p a r a t i o n of t h i s paper.
T h i s paper i s a c o n t r i b u t i o n from t h e D i v i s i o n of Building Research, National Research Council of Canada, and i s published w i t h t h e
