Understanding Regulatory Environment and
implementation of Innovative Building
Technology
07th March, 2019
J Mahachi, PhD, Pr.Eng, Pr.CPM, FSAICE
University of Johannesburg
Presentation Outline
1. International Performance Building Standards
2. Performance Based Regulatory Frameworks
3. Performance Evaluation
4. South African Regulatory Environment
5. National Building Regulations & Building Standards Act
6. Implementation of IBTs
Content
International Performance Building Codes &
Standards
• A building code or regulation is defined as:
a document used by a local, provincial or
national government body to control building
practice, through a set of statements of
“acceptable” minimum requirements of building
performance.
• This is typically a legal document.
Building Standards
• Building standards, on the other hand, are
essentially technical documents that
standardize, generally in terms of quality
or performance, but sometimes in terms of
size or procedure, some activity in relation
to building and construction
Building Standards (Cont…)
• When building regulations cover technical
aspects of performance, they typically
incorporate or refer to relevant standards.
Thus, building regulations are a user of standards.
International: Performance Based
Regulatory Frameworks
Level Basic Heading Description/Comments
1 Goal The goal addresses the essential interests of the
community at large with respect to the built environment,
and/or the needs of the user-consumer
2 Functional
Requirement
Building or building element specific requirements. A
functional requirement addresses one specific aspect or
required performance of the building to achieve the stated
goal (note that other functional requirements may
contribute to achieving the same goal).
3 Operative
Requirement
Actual requirement, in terms, of performance criteria or
expanded functional description. This is also sometimes
referred to as PERFORMANCE REQUIREMENT, and
whenever possible, should be stated in quantified terms.
4 Verification Instructions or guidelines for verification of compliance
5 Examples of
Acceptable
Solutions
Supplements to the regulations with examples of solutions
deemed to satisfy the requirements
NORDIC
5-LEVEL
STRUCTURE
General Four Level Regulatory
System
GOAL/OBJECTIVE
FUNCTIONAL REQUIREMENTS
PERFORMANCE REQUIREMENTS
Deemed-to-comply code
provisionsBy testing By calculation
By combined testing and calculation
VERIFICATION METHODS
Level 1
Level 2
Level 3
Level 4
Compliance method Performance based methods
THE SOUTH AFRICAN
THE REGULATORY ENVIRONMENT
Acts: Impact on Construction
National Building Regulations and Building Standards Act of
1977
Housing Consumers Protection Measures Act 95 of 1998
Occupational Health and Safety Act of 1993
Construction Industry Development Board Act of 2000
Consumer Protection Act of 2008
National Regulator for Compulsory Specifications Act of 2008
Construction Regulations
Other relevant Acts:
• Management of housing developments
• Rental & Sale of Homes
• Provision by the State of Housing (Housing Act)
• etc
Key Role Players
Construction Industry Development Board (CIDB)
National Home Builders Registration Council (NHBRC)
South African Bureau of Standards (SABS)
National Regulator of Compulsory Specifications
(NRCS)
Agrèment South Africa
1. Construction Industry
Development Board (CIDB)
White paper on Construction
• White Paper (Dept Public Works, 1999)
“Creating an enabling environment for
reconstruction, growth & development in
the construction industry”
• White paper spells out the Govt policy initiative
aimed at:
“enhanced delivery, greater stability,
improved construction performance,
value for money”
Establishment of a Construction Industry Development Board (CIDB)
1. Construction Industry
Development Board CIDB was established to promote a regulatory and developmental
framework that builds:
– The construction delivery capability for South Africa’s social and
economic growth; and
– A South African construction industry that delivers to globally
competitive standards.
The CIDB’s focus is on:
– Sustainable growth, capacity development and empowerment;
– Improved industry performance and best practice;
– A transformed industry, underpinned by consistent and ethical
procurement practices; and
– Enhanced value to clients and society.
All contractors and construction projects (public) must be registered
with the CIDB
2. National Home Builders
Registration Council (NHBRC)
National Home Builders Registration Council (NHBRC)
Legislated entity established in terms of the Housing
Consumers Protection Measures Act (Act 95 of 1998)
15
Who is NHBRC?
• 3(b) “to regulate the home building industry”;
• 3(d) “to establish and promote ethical and
technical standards in the home building
industry”; and
• 3(e) “to improve structural quality in the interests of
housing consumers and the home building
industry”.
Mandate of NHBRC (1999)
Registrations
Standards
Enrolments
Inspections
Complaints
Conciliations
Remedial Work
Fund
PROTECTION
HOME BUILDER HOUSING CONSUMER
NHBRC
Business of the NHBRC
3. South African Bureau of
Standards (SABS)
Role of South African Bureau of
Standards (SABS) & Mandate
SABS is a statutory body established in terms of
the Standards Act, 1945 (Act 24 of 1945)
Mandate
National institution that promotes and maintains
standardization and quality in connection with
commodities and services
SABS Objectives
• SABS publishes national standards (South
African National Standards - SANS) through
technical committees.
• Committees have industry representatives
• Test and certifies products and services
• Promotes design excellence, and
• Provides training on aspects of standardisation
The South African National Standards
These Building Standards provide one solution to satisfy
the functional requirements set by the regulations. It is
usually the way in which most buildings are constructed
and follows the yardstick which measures in bricks and
mortar. The usual building methodology adopted in South
Africa.
SANS
Tensions associated with standards development
Owners / developers
don’t want to pay
anything more
Practioners want
something simple
and quick to apply
standard
Academics wish
to get things
technically
correct
4. Agrèment South Africa
Journey of Agrèment 1969
Unconventional Building
Systems Agrèment SA
An independent agency to bring impartial judgement to the evaluation of innovative construction products and systems in the interest of the consumer.
Objects of Agrement: 2017
a) provide assurance to specifiers and users of the fitness-for-
purpose of non-standardised construction related products or
systems;
b) support and promote the process of integrated socio-
economic development in the Republic as it relates to the
construction industry;
c) support and promote the introduction and use of certified non-
standardised construction related products or systems in the
local or international market;
Objects of Agrement (Cont…)
d) support policy makers to minimize the risk associated
with the use of a non-standardised construction
related product or system; and
e) be an impartial and internationally acknowledged South
African centre for the assessment and confirmation of
fitness-for-purpose of non-standardised construction
related products or systems.
National Regulator for
Compulsory Standards (NRCS)
NRCS
NRCS is a public entity responsible to the Minister of
Trade & Industry for administration of technical
regulations;
It consists of
Automotive
Electro technical & Gaming,
Chemical, mechanical and materials;
Food Industries departments.
Administers the National Building Regulations and
Building Standards Act
National Building Regulations
&
Building Standards Act
(Act 103 of 1977)
Code of Hammurabi
• All new building work in South Africa must comply with
the Building Code: National Building Regulations (NBR)
• The National Building Regulations set minimum
standards of performance for all buildings so that the
buildings will be: safe, health and structurally stable for all
inhabiting in the buildings.
• Municipalities are obliged to ensure that no buildings are
constructed or altered without first ensuring that the
designs and drawings conform to these Regulations
National Building Regulations &
Building Standards Act
National Building Regulations is a Performance Based Code - which means
It states how a building and its components must comply as opposed to
describing how the building must be designed or constructed.
Established by consensus through SABS processes
Established by Parliament and Regulator
Structure of the NBR
Level 1
Level 2
Level 3
Level 4
OBJECTIVE
A broad statement of intent that reflects societal
expectations of what the building regulations are
intended to achieve
PERFORMANCE
DESCRIPTION
(functional regulation)
A requirement stated in qualitative terms that
sets out what is required without specifying the
method of construction, techniques, dimensions
or materials to be used
PERFORMANCE
PARAMETERS
The quantitative performance criteria which
enables the functional requirements to be
satisfied for a nominated level
EVALUATIONConfirmation that the nominated performance is
achieved
“performance” means the ability of a whole building or a part thereof to fulfill required functions under intended use conditions or behaviour when in use
Constitution Act and NBRs
NBRs
SANS 10400
Description of performance
Application of rules
Rational design
Rational assessment
Agrément certification
Compliance method
Performance based methods
6
Relationship between ASA, CSIR &
SABS
Challenges of Building Regulations
Challenges of Building Regulations & Standards in
Delivering Houses
• Processes are delineated and reside in different
Government Departments
• Building Regulations and Standards are not well
understood. Technical sessions & engagements with
relevant local and provincial authorities required.
• Alignment of National Housing Policy to Building
Regulations & Standards (eg. Energy efficiency
requirements vs Subsidy Quantum allowances)
• NBR and the informal settlements??
Implementation of Innovative Building
Technologies
The Future in Housing
Manufacturing High Quality Products
Designs that address:
- Physical env(weather climatic)
- Architectural typologies
Fast Track Quality Housing Delivery
• Develop a design that responds to a range of parameters and contexts• Develop designs that allow buildings to evolve as needs change
How to go about implementing IBTs
Design & Buildability;
Economy; and
Standardisation
Choice of IBTs based on:-
1. Design & Buildability
Fitness-for-purpose Agrèment Certification
• Certification of Products
where no SANS exists
• Structural safety
• Structural serviceability
• Structural durability
• Fire resistance
• Energy efficiency
• Acoustics
Critical Implementation Considerations
• Transportation requirements (Self-load and position
during transportation);
• Storing requirements – self load and position during
storing (avoid or store in the same position as it is
transported/built-in);
• Lifting loads;
• Vulnerable points (e.g. edges) – reduction of risk (e.g.
rounded edges)
Logistics Considerations
How long is the transporter vehicle;
Required local capacity of transporter vehicle;
Max vertical extension of the shipment;
Routes on site;
Route permission requirement.
2. Economy
Misunderstanding of cost, i.e. cost of construction vs Life Cycle Costing.
Life Cycle Costing – initial design, construction, maintenance (operation) and decommissioning.
High Initial Capital Outlay is required and yet:
Financial institutions unwilling to provide finance where are no guaranteed projects; and
Developers unwilling to provide projects with no assurance of local productivity.
Benefits not well understood
• Cost savings in the long-term;
• Reducing energy poverty;
• Improving health and productivity;
• Creating jobs;
• Mitigating climate change; and
• Ensuring that sustainability is achieved.
Support a move from 40m2 to 60m2 – With most IBTs, costs
(per m2) are reduced for a much bigger footprint.
3. Standardisation
• Components are manufactured by industrial methods based on
mass production in order to build a large number of houses in a
short time at low cost;
• Higher industrial quality under stringent quality control measures;
• Unlimited opportunities of architectural appearances;
• Modules have architectural features such as window and door
openings, reveals, textures etc
• Low maintenance costs
• Better predictable durability
• Less affected by adverse weather conditions
• Plumbing & Electrical infrastructure completed in the manufacturing
plant
3. Standardisation (Cont…)
• Economy:- Reduced waste of materials, low water
consumptions
• Easier management of construction sites
• Possibility of erection in areas where a traditional construction
practise is not possible or difficult (Difficult terrains in rural
areas)
• Possibility of conversion, disassembling and moving to
another site
• Increase in worker safety
• Good sound insulation
• Good thermal insulation properties
Required Government Interventions
1. Shift from mass housing production to mass customisation
2. Fixed price model (subsidy quantum) deters industry participants from adopting innovations because they want to minimise risks
3. Current Insufficient demand to create this shift.
4. Govt Support in:-
Reviewing the procurement model
o Engagement of professionals (Architects & Engineers) in housing delivery
o Supporting local manufacturers and use of local materials and products
o Interfacing and engaging with end-users
o Reviewing of Housing Subsidy Financial Model
Increasing the minimum foot-print of a Govt Subsidy house from 40sqm to 60sqm
Conclusions
Housing market plays a vital role in creating demand for prefab
construction.
Partnerships between public and private sector required to assist
in housing delivery
IBTs have an important role in the future of a more, sustainable,
efficient construction industry
Investment in cutting edge manufacturing equipment is a
significant game changer that requires a certainty of volume
Importance of strong, innovative industry with sound research and
development
Thank You
