NIST-GCR-95-680

NATIONAL CONSTRUCTION SECTOR

GOALS

INDUSTRY STRATEGIES FOR

IMPLEMENTATION

Prepared for:

Subcommittee on Construction and Building

National Science and Technology Council

Under contract to:

Building and Fire Research Laboratory

National Institute of Standards and Technology

By:

CIVIL ENGINEERING RESEARCH FOUNDATION

Washington, D.C.

July 1995

U.S. Department of Commerce

Ronald H. Brown, Secretary

Technology Administration

Mary L Good, UnderSecretaryfor Technology

National Institute of Standards and Technology

Arati A. Prabhakar, Director
Notice

This report was prepared at the request of the National Science and Technology Council’s

Subcommittee on Construction and Building under contract number 50 SBNB56C8506 to the

Building and Fire Research Laboratory, National Institute of Standards and Technology. The

statement and conclusions contained in this report are those of the Civil Engineering Research

Foundation and do not necessarily reflect the views of the National Institute of Standards and

Technology or the National Science and Technology Council.
NATIONAL

CONSTRUCTION SECTOR

GOALS

INDUSTRY STRATEGIES

for

IMPLEMENTATION

CivilEngineeringResearchFoundation

1015 15thStreet,NW. Suite600. Washington,DC20005. Phone202-842-0555, Fax202-682-0612
Listof Figures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1

Il. Background . . . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . . ...1

Ill. Next Steps: APathway for Progress . . . . . . . . . . . . . . . . . . . . ...4

AppendixA Residential Sector implementation Strategy . . . . . . . . . . ...6

Appendix B Public Works Sector Implementation Strategy . . . . . . . . ...14

ill.

Iv.

v.

vi.

V1l.

VIII,

lx.

The Public Works National Goals Implementation Strategy: An

Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ...21

Establishing the Essential Public Works Linkages . . . . . . ., . . . . . 24

Identification, Validation, and Appropriate Revision of Public Works

infrastructure Goalsand Products, . . . . . . . . . . . . . . . . . . . . ...25

Technology Development and Related Requirements . . . . . . . . ...27

Program Development and Execution . . . . . . . . . . . . . . . . . . ...30

Program Coordination, Information, and Public Affairs . . . . . . ...34

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ...37
EKwEE

LIST OF FIGURES

PAGE

Figure 1

Figure 2

Figure 3

Figure 4

Figure 5

Figure 6

Figure 7

Figure 8

Figure 9

Figure 10

Figure 11

Figure 12

Constructed Facilities Vision . . . . . . . . . . . . . . . . . . . . . . . 3

Construction Industry Vision . . . . . . . . . . . . . . . . . . . . . . . 3

Thirty Years of Federal Investment in Infrastructure

1965-!35 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

PubIiclnfrastructure investment inthe G-7 Countries . . 15

Public Capital Stock and Productivity

1950-92 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Public Investment and Productivity in the G-7 Countries

1978-1990 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Productivity Growth Pre-1 973 vs. Post-1 973 . . . . . . . . . 17

Total Federal Investment Outlays

1993-99 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Seven Proposed Construction Goals . . . . . . . . . . . . . . . 25

Benchmarking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28

TheValleyofDeath . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

Progress Towards Public Works&

National Construction Goals.. . . . . . . . . . . . . . . . . . . . . 33

TABLE PAGE

Table 1 Proposed C&B Products ..,... . . . . . . . . . . . . . . . . . . . 26
I. introduction

This report presents initial strategic considerations for a national initiative that is intended to

fundamentally impact the quality and productivity associated with construction industry

activities in the United States. It specifically provides the “implementation strategy

templates” for the residential and public works construction sectors. Similar “templates” for

the remaining sectors are expected to be completed during this calendar year; the complete

set of sectoral strategies will, in turn, provide an important platform for the industry-led

development of an integrated National Plan for the Implementation of Construction Goals, a

plan that will fully outline the specific procedures, responsibilities and products that, will,

when combined, lead to the realization of the challenging national construction goals that

have been postulated and documented through the work of the Construction& Building

(C&B) Subcommittee of the National Science and Technology Council (NSTC) and the

construction industry.

The Residential Sector implementation strategy (Appendix A) was developed through the

leadership of the NAHB Research Center. Members of the development team included

representatives of building materials manufacturers, the Building Officials Conference of

America (BOCA), the National Conference of States on Building Codes and Standards

(NCSBCS), the Civil Engineering Research Foundation (CERF)and the Construction and

Building Subcommittee.

The Public Works Sector implementation strategy (Appendix B) was developed as a

cooperative effort involving the American Public Works Association (APWA), the Rebuild

America Coalition, the Infrastructure Technology Institute (ITI) and CERF.

Il. Background

The genesis for this report resides in the critically important, ongoing work of the C&B sub

committee and concurrent construction industry input as primarily captured in the conclusions

from two events, an April, 1994 industry session on innovation and a December, 1994

White House-Construction Industry Workshop on national construction goals. The April,

1994 session reviewed the initial C&B subcommittee concept of national construction goals,

concluding that these goals, including:

1
•1 50%

•1 50 %

❑ 30 %

❑ 50 %

❑ 50%

•1 50 %

•1 50 %

reduction in project delivery times;

reduction in operations/maintenance/energy costs;

increase in facility comfort and productivity;

fewer building-related illnesses and accidents;

less waste and pollution;

greater durability and flexibility, and;

reduction in job-related illness and accidents for construction workers

made sense if they:

❑ were clearly achievable and clearly articulated;

❑ anchored in reasonable implementation schemes;

❑ targeted “viable” initial (first) users, and;

•1 embedded appropriate incentives and recognition

The December 1994 workshop benefitted from the more detailed analysis of the proposed

national construction goals via the five major sectors that generally encompass the vast

range of construction activity in the United States, namely residential, industrial, commercial,

institutional and public works, The most important workshop conclusions were that the

proposed construction goals made sense, are needed but, would vary significantly in

relevance among the five sectors. As a consequence, the workshop concluded that a single

focused construction industry “template” for national construction goals implementation

would be an impossibility to either develop or execute. What was needed and could, in

fact, attain the desired goal results was a sector-focused approach that enables the focused

application of sectoral expertise to develop, prioritize and execute the sector relevant goals.

Workshop attendees agreed that the future competitiveness of the U.S. construction industry

needed the “vision of excellence” that is implied in the proposed goals and, specifically,

that each sector within the industry had to commit itself to undertake very significant actions

in order to pull together the diverse, even contentious, interests present in each sector.

2
In sum, for any progress to be made towards implementation of national construction goals

would require, from each sector and from the construction industry as a whole, that:

❑ industry leaders provide the necessary

leadership and substantial resourcing;

Consfrucfed Fdlifles Vision

❑ the respective sectors organize to

.. i .. EconomicProsmwiW/Comm?titiveness . .

“succeed;”

•1 a viable industry oversight body be

established, and;

•1 barriers to innovation be recognized as

an initial priority.

These goals are, themselves, the measurable,

Resource

Sustainable

operational parameters in a process that has, at its Environmentally

Friendly

center, a firm vision of what our constructed facilities

should comply with and contribute to the nation.

This is depicted in Figure 1. Figure 1

Vision attainment implies a process, This process is depicted

in Figure 2.

While goals are depicted in Figure 2 primarily in

terms of their development sequence in the process,

the goals are central to the derivation of potential

benefits, to the development of the strategy for their

attainment and, finally, to the choice of

implementation methods. The strategy for any sector

may, of course, include the periodic reassessment

and refinement of goals.

Consfrucfionhtdusfry vision

IMPLEMENTATION

NEEDS/OOAIS

STRATEGY

Figure 2

Qucl/ty

life

BENEFITS

3
Due in large part to the work of the C&B subcommittee, the foundation for a constructed

facility vision has been emplaced. These foundation pillars include:

cl quality in all constructed facilities;

Cl energy ei%ciency, environmental compatibility and sustainable resource

usage;

c1 intelligent renewal of existing public/private infrastructure components

through effective use of scarce material and human resources, and;

c1 innovative measures to mitigate impacts of natural and man-made hazards.

111.Next Steps: A pathway for Progress

The as yet developing constructed facility vision, the process outlined for goal attainment

and the vision pillars provide an important conceptual platform for the development of the

individual sectoral strategies and the eventual national implementation plan that will links the

sectoral strategies into a cohesive national initiative. Action is underway in all sectors

towards the end oblective. As expected, the sectors that have the strongest existing linkages

and identity have achieved the most. As a result, their “concept” sectoral strategies for

implementation of construction goals have been completed and are the initial components of

this report. Even for these sectors, residential and public works, work remains, a testimony

to the significant challenges that underlie a simple and compelling premise: that national

construction goals are essential and must be undertaken for the long-term benefit of the

nation and the construction sector.

Stated simply, the fundamental approach will be to let success breed success. The progress,

to date, in the residential and public works sectors will be the essential leverage for progress

in the industrial and commercial/institutional sectors. Through the active facilitation and

coordination (but not unilateral leadership) activities of the Civil Engineering Research

Foundation (CERF),the set of sectoral strategies will be fully developed and, equally

important, the critical implementation plans of the respective sectors will be melded into a

cohesive national plan, It is planned that the intra-sector facilitation and coordination of

both sectoral strategies and implementation plans will be facili~ated through an oversight

council with broad “stakeholder” participation. The development and execution of these

activities is programmed over the remainder of 1995 and early 1996, Underlying this

upper level of national goals implementation will be the focused activities within each sector,

with special emphasis on the sharing between sectors of both successful and problematic

approaches towards goal attainment,
The United States and its construction sector must forcefully address the fundamentals

deemed as essential in the current and proiected domestic and global milieus; the nations

who will prosper are those whose economic components:

L1 have superior intelligence (i.e., knowledge bases);

c1 are capable of managing advanced technologies;

Cl respond rapidly to change, and;

Cl accomplish the above functions with cost effectiveness

The sectoral strategies and the implementation plans that will emerge through this national

initiative recognize the pivotal role of constructed facilities in enabling the nation to meet

these fundamentals.

5
APPENDIX A

RESIDENTIAL SECTOR

IMPLEMENTATION STRATEGY
APPENDIX A

Residential Sector Implementation Strategy

Introduction

The residential building industry is one of the largest and most important sectors of the U.S.

economy. Residential buildings and improvements accounted for 44.3 percent of the value

of all construction and 4.1 percent of the total U.S. gross domestic product (GDP) in 1993.

In the U.S. economy, however, housing not only is a product that provides essential services

related to shelter, but is a chief form of personal investment and savings for many

households. The so-called gross housing product, taking into account such investment by

including the imputed value owner-occupied housing and rents, amounted to 12.1 percent of

the U.S. GDP in 1993. According to the U.S. Congress’ Office of Technology Assessment,

new residential construction represents almost 25 percent of the total GDP when industries

related to homebuilding are included in the housing production chain.

Despite the importance of the housing industry, however, its expenditures on research and

development (R&D) of about $359 million annually, is only about 0.2 percent of the total

value of new residential construction put in place, considerably lower than that spent by the

construction industry as a whole and most other sectors of the U.S. economy. Moreover, a

strong connection exists between productivity, industry structure, and the level of R&D

expenditure. A recent study asserted that the increase in labor coefficients that occurred in

the housing industry since 1969 was indicative of a decline in productivity, Other studies

have demonstrated that productivity has been stable or that growth has been lower than that

of most other industries.

The fragmented, unorganized approach to U.S. residential construction technology transfer

tends to create significant gaps between development and application of worthwhile

technologies. Key problem areas recently identified by a roundtable of builders and

building product manufacturers included insufficient product information, poor manufacturer

understanding of the building process, alternative building product/system uncertainty,

“green” building product confusion, and deficient training support. The roundtable

reinforced the Research Center’s finding in its study of housing innovation that building

material manufacturers are too far removed in the production chain from the building

process to understand the needs of home builders and their customers.

6
The home building industry is lagging in the adoption of modern management techniques

such as total quality management. Quality experts have estimated that if these techniques

were adopted throughout the industry, the return to the industry and the economy of the U.S.

could be well over $20 billion per year. This innovative management process is one of

many technology-transfer subiects that will improve residential construction productivity.

The residential working group, cognizant of these conditions, reviewed and discussed all

seven national construction goals and clearly identified as its first priority reduction in

delivery time or first cost. Its second priority was improvement in durability. Both goals

were felt to be important in improving the productivity of the housing industry, Actions that

can facilitate the flow of existing innovation (including regulatory and institutional reforms) in

the housing production chain are necessary to encourage private sector investment. They

were, therefore, accorded the highest priority in achieving these goals. As a whole the

group felt that the Manufacturing Extension Partnership program was an ideal mechanism

for accelerating the achievement of the two goals.

GOAL 1: 30% REDUCTION IN FIRST COST

There are two components to the approach to this goal. The first is reduction in cycle

and the second is reduction in building product and system costs. Both are equally

important to the achievement of the goal.

time,

A. Reduction in Cycle Time

Given the state of current technology, an ideal but achievable construction cycle-time goal

for on-site builders is 63 work days for a 2,000 square foot house from foundation

excavation through finishing work and presettlement. This goal is derived from a pilot

benchmarking study of best-practice construction cycle times of innovative, on-site home

builders and modular housing manufacturers, A recommended ideal but realistic

construction cycle time for modular builders is 28 work days, a 56 percent reduction in the

number of work days required to site build the house under the most favorable conditions.

Other industrialized housing systems such as panel were not a part of the study, but would

be expected to be somewhere in between site built and modular construction.

The Department of Commerce collects data on construction time by number of months from

the time excavation begins for the footings or foundation to the time when all finish flooring

is completed, about comparable to the time period used in the pilot study. For single family

construction the average time to completion is 4.9 months (1994 data). Based on an

average 22day work month, this equates to approximately 108 days for a national

average, Obviously, this is substantially longer than the 63 work day goal.

7
Innovative builders combine a variety of new process-oriented management techniques with

innovative technology to overcome barriers to rapid construction. For complex operations

with multiple sites, innovative builders expedited operations by daily rather than weekly

tracking of operations, problem-solving and schedule adjustments. Expedited operations

took advantage of computers and telephone and facsimile interconnection services which

automatically and instantaneously updated pro@ct status, scheduled activities concurrently,

reduced gaps between subcontractor activities, and used just-in-time procedures effectively.

Shorter cycle times were associated with improved quality and increased customer

satisfaction, which led to more customer referrals, an improved builder reputation, and

greater profitability.

Improved management processes and methods, by shortening construction cycle time, also

reduce costs associated with interest on construction loans, administrative overhead, legal

procedures, and vandalism. Although the cycle time study referenced was limited to the

construction cycle, the regulatory process was identified as adding substantial time to the

total required in the residential process. In addition, the financial processing cycle is also

significant.

Potential Areas of Investigation For the Reduction of Cycle Time

10 Develop systematic construction planning and scheduling programs that could be

used by bui Iders of varyi ng levels of sophistication in tracking construction progress

and measuring actual versus targeted construction times for various stages of the

construction process from design to closing. Integrate as a component of such

programs the capacity to identify problems and quantify cost savings or losses

associated with time reductions or delays. Review and evaluate existing methods

and techniques for planning and scheduling, outlining their advantages and

disadvantages for application in the home building industry.

2. Work with local building inspectors, code agencies, and state governments, to

develop and demonstrate fast-track permitting and plan review processes. Evaluate

the results of such demonstrations and develop a model fast-track approval process

including model ordinances and legislation, that could be adopted by local and state

entities. Review fast-track permitting and plan review processes established in

parallel fields of government such as construction of nuclear plants, international

trade agreements, etc. for their applicability to the home building industry.

3. Work with federal, state, and local communities to develop and demonstrate

expeditious environmental, land subdivision, zoning, and community planning

reviews and approvals. Evaluate the results of such demonstrations and develop

8
model amendments or changes to administrative regulations, ordinances, and

legislation that could be adopted by federal, state, and local communities to speed

the time-consuming portion of the development process that occurs prior to breaking

ground for construction. Review examples of such approval processes in the federal

state and local levels intended to facilitate such approval processes for their

applicability to the home building industry.

4. Develop a competitive awards program for reduction of the cycle time of

construction, and transfer the results from award winners to the home building

industry at large through seminars and workshops.

5. Conduct investigations of technology innovations that could lead to reduction in cycle

time delays associated with inclement and adverse weather conditions, For example,

methods of reducing the curing time for poured-in-place concrete in foundations,

plastic and other enclosures to protect buildings under construction, weatherproof

electric conduits, etc.

6. Work with financial institutions, insurance companies, etc. to reduce the time it takes

to “close” on a house. investigate ways of reducing the costs associated with

closing.

7, Develop interactive systems and methods of transfer of information that will aid

builders in choosing and specifying appropriate materials, technologies, and energy

conservation measures in designing the house and estimating the costs of

construction. Develop programs that link computer-aideddesign (CAD) directly with

cost estimation, subsequent ordering of materials and components, and their

sequencing of assembly at the site through bar-coding.

8, Develop methods of reducing the time involved in ordering, distributing, and

replacing various materials and components used in the construction of the house

with a view to reducing the inventory of materials at the site and coordinating

delivery with the stages of construction.

9
B. Reduction in Buildincl Product and System Costs

Innovative building products and systems are developed by individuals, private industry, the

nation’s universities and occasionally by the U.S. Government or with some government

support, particularly NIST, DOE, and HUD. Historically, adoption of innovations by the

construction indust~ has been painstakingly slow, causing some potentially important

innovations to drop out of the process prior to builder acceptance. In addition, because of

the high cost of innovation, new technologies typically gain acceptance first in upper income

housing and are slow to penetrate the market for affordable housing. Rather than provide

aid in sponsoring more innovation for the housing industry, efforts to reduce costs should

focus on providing support to bring cost-saving innovation more quickly to market in the

fragmented housing industry,

A significant contribution might come from efforts to disseminate technology through

demonstration programs and technical support. For the nation as a whole, a relatively small

investment in applied housing technology demonstrations can leverage large benefits and

thereby contribute significantly to the nation’s productivity and well-being. Such

demonstrations should encourage the use of existing innovative technologies and creative

management approaches of cost-saving building products and construction systems that are

already on the market but have not achieved significant penetration.

Potential Areas for Reduction in Buildina Product and System Costs

1. Continue and expand efforts initiated under the National Institute of Standards and

Technology Manufacturing Extension Partnership (MEP). In 1988, Congress directed

NIST to create regional centers that would assist in speeding the transfer of advanced

technologies to U.S. indust~. The MEP program builds linkages between various

building industry participants to help remedy gaps in communication of technical

information, a leading problem in the building industry.

The specific goal of the MEP is to develop a number of comprehensive multi-state

regional housing technology resource centers that link existing and new sources of

technical assistance and information services to serve small-to medium-sized home

builders, subcontractors, suppliers, and building product manufacturers. These

centers, by providing an information clearinghouse and other services, could help the

home building industry adopt useful, cost-saving technologies and advanced business

practices that would enhance the competitiveness of the U.S. housing industry by

lowering first costs and improving housing affordability, productivity, and quality.

10
A relatively small investment in applied housing technology transfer can leverage

large benefits. In order to encourage the use of innovative building products and

construction systems and creative management approaches within the residential

construction industry, linkages between providers of technical assistance aimed at

housing and light construction should be established. Federal assistance is needed

because fragmentation precludes a sufficiently large investment by the building

industry itself. The U.S. Government is a primary stakeholder in a strong, vital shelter

industry since it represents a relatively large percentage of the GDP and labor

workforce and because decent affordable housing for every American is a

recognized national goal.

2. Focus a demonstration program on regulatory and technical innovations that impact

the costs of construction or operation of buildings. Regulatory relief could come from

federal, state, and local levels of government. Technical innovations will need the

support of state and local code officials and, in some cases, the model code bodies.

The long lead time involved in land development might exclude its consideration in

the first set of proiects. The proiects need to reflect regional differences in maior

market areas, Government funding will be necessary to support staff time for such

activities as identifying burdensome regulations, working through the regulatory

process, identifying technical innovations and land development techniques, and

documenting cost savings.

3. Continue the proiect being conducted by CERFfocused on developing a nationally

and internationally recognized system for evaluation and acceptance of innovative

construction products and services.

11
GOAL 2: 50% INCREASE IN PRODUCT DURABILITY

Despite the relatively low level of technological advancement in houses built 50 or more

years ago, such houses constituted 23 percent of the existing housing stock in 1990.

Although many components in these homes have since been added or replaced, the original

foundation and structural frame typically remain in place. In addition, the average life of

some housing components has increased during the past 20 years because of innovation

and the introduction of new products, even as the life of other components has declined.

Product durability is clearly the result of many factors, including design, materials,

manufacturing technology, and consumer willingnes~t~pay. In many instances, durability

may be affected by how a given product is installed, used or maintained. In addition, some

products remain functional but become obsolete due to changing styles, tastes, or new

technology.

What follows is a series of suggested activities aimed at more clearly defining the scope and

nature of a “durability” goal, specifying the technical issues and needs, and promoting

improvements in areas that will increase product durability. Not all items in the list are

strictly necessary, but they are ordered in a sequence such that earlier items in the list

provide focus and direction for subsequent items in the list.

Potential Activities to address Increased Product Durability

1. Review existing information or develop new information about the historical

determinants of functional lifetimes of residential buildings and the factors that have

led to their removal from the housing stock, such as catastrophe, long-term

progressive deterioration, and factors other than physical deterioration.

2. Identify the principal housing systems, components and materials of potential interest

from a durability standpoint, such as foundation systems, framing, roof coverings,

wall coverings, plumbing systems, mechanical systems, fasteners, floor coverings,

windows and doors, paints and coatings, water heating and thermal protection.

Narrow the list or prioritize items within the list to identify home building products

and materials of particular interest for further investigation.

3. Identify and inventory existing test methods developed by ASTM, ANSI or similar

consensus-oriented bodies, or published by organizations such as trade associations,

that measure, quantify or evaluate the durability of specific home building products

and materials of interest. Determine the underlying theories or approaches that are

used to assess durability, e.g. accelerated aging, or resistance to various kinds of

12
weather or environmental

standardization activities.

agents. Coordinate this work with related international

4. Identify and inventory existing standards for home building products and materials of

interest that include minimum durability requirements. Include model building codes

and referenced consensus standards, federal specifications, voluntary industry

standards, and manufacturer warranty practices. Determine the range of product

lifetimes found in these sources, by product type. Identify any other information

appropriate product lifetimes, such as consumer expectations or non-functional

obsolescence. Coordinate this work with related international standardization

activities.

on

5. Identify gaps in applicable test methods as applied to home building products and

materials, Define and perform research on a product-type basis to investigate

improved standard methods for testing and quantifying durability. This research

should be based on what is known about contributors to durability in service for each

type of product, which will depend on where and how the product is used. It should

also reflect what is known about significant failures of building products currently in

use.

6, Assess opportunities to promote improved durability above and beyond levels

required in model codes, through market-oriented approaches. Possibilities include

comparative advertising, information disclosure requirements, and independent thirdparty testing or reporting similar to the Consumer Reports approach.

7. Assess opportunities to promote improved durability by incorporating performance

requirements into product standards that do not currently address durability.

Durability performance would need to be quantified by existing or new test methods

that are scientifically based and generally accepted. Minimum durability standards

or pass-fail criteria should initially be based on current “good practice” by product

category or sub-category, and set through consensus methods.

8. Assess opportunities to promote improved durability through information and

education aimed at occupants, encouraging proper use, regular preventive

maintenance, and timely repair,

13
APPENDIX B

PUBLIC WORKS

IMP CEMENTATION

SECTOR

STRATEGY
APPENDIX B

A Public Works Sector Implementation Strategy

Introduction

The public works infrastructure in the United States has been characterized as a “local

problem with national consequences. ” The local characterization is an apt one, inasmuch

as the bulk of our public works infrastructure is in the hands of the approximately 10,000

cities and counties that stretch across the nation. The “national consequences”

characterization is likewise appropriate since the condition of the nation’s public works

infrastructure markedly impacts the economic efficiency and, increasingly, the global

competitiveness of all other economic activity in the United States as well as the quality of

life of our citizenry. The ability to transport goods and people safely and efficiently, provide

adequate water resources, treat wastewater, dispose of solid and hazardous waste, provide

excellence in education, public administration and quality in health care has been the

gateway for U.S. economic advancement in the past and is even more essential as the

nation stands at the threshold of a new, more complex century. In spite of these facts and

recognized needs, the past several decades have been a time of underinvestment in the U.S.

public works infrastructure. A series of public and private reports document this disturbing

fact; the most recent reports include the 1995 report by the U.S. House of Representatives’

Committee on Transportation and Infrastructure and the 1995 Economic Policy Institute (EPI)

assessment, entitled The Case for Public Investment. In this latter report, several important

observations are made with respect to the linkages between investment in public works

infrastructure and productivity and, the disturbing fact that the United States has been a

serious under-investor vis-a-vis its principal international competitors,

14
As already stated, the levels of investment in public works infrastructure as a per cent of U.S.

Gross Domestic Product (GDP) have, except for a brief respite in the ~1970’s, plunged; this

decline is presented for the Federal Sector in Figure 3, in which a thirty years’ investment

history is depicted,

Thirty Years of Federal Investment in infrastructure

1965-95

0.7 i j I

B5U7W7179757779’M ‘6385 W%C’WW95

Sourse: EPIcakulations using OMB data

Figure 3

The EPIreport proceeds to note that the same pattern has been evident in state and local

infrastructure since the 1980’s, due in part to the fact that significant Federal funding is used

to finance state and local public works infrastructure investment, This decline in investment is

doubly disturbing when viewed in relation to the public infrastructure investment undertaken

by our primary global economic competitors. Here again, the trend is more dramatically

presented when viewed graphically, as in Figure 4,

Public Infrastructure Investment

in the G-7 Countries

7,

Source: OECD, 1992 and 1994

Figure 4

1

15
The bottom line that emerges from the EPIreport is simply this: the physical “health” and

capabilities of the public works infrastructure impacts the economic “health” of the nation.

This “inter-dependence” is more compelling when portrayed graphically, as shown in Figure

5.

Public Capital Stack and Productivity

1950-92

,,),~

Seurcei Update of 1990 Aschauer analysis

Figure 5

That this “interdependence”

clearly shown in Figure 6.

of public investment and productivity is a globally valid factor is

Public Investment and Productivity

in fhe G=7 Counfries ( 1978= 1990)

3.5, 1

3.0 Japan. I

2.5

I

France

2.o nited ● I:ly

ingdom Ge~any

1.5 .

123456

Public Infrastructureinvestment/GDP

s..-, Lird.h .[ 1990 AA . . . . .4’.”

Figure 6

16
Finally, it is increasingly evident that productivity growth and public investment are linked.

The U.S. experience since the end of World War II is captured in Figure 7.

Producfivify Growfh

Pre= 1973 vs.Posf-1973

1947-1973

1973-1993

I , , 1 1 1 I

O 0.5 1.0 1.5 2.0 2.5 3.0 3.5

AverageAnnual Growth (%)

smOe,IwIAur.1,.ti.fcEA&b

Figure 7

It is clear that the importance of our public works infrastructure cannot be overstated;

therefore, in these waning days of the 20th Century, the condition and operation of our

public works infrastructure must become a matter of extreme concern to all. In many

jurisdictions, especially older urban areas, aging infrastructure components, coupled with

limited ability to maintain, let alone operate, is the norm, Even in more affluent suburban

areas, the operation and maintenance of infrastructure as well as the high cost of capital

improvements must compete with the growing demand for social services, Moreover, it is

increasingly apparent that the emerging global environment of the 21st Century will favor

those nations whose public works infrastructure enable and enhance the most efficient

production and distribution of goods and services.

How can the significant, recognized public works needs be met so that the nation’s public

works infrastructure can support the needs of our increasingly complex, globally dependent

society? A significant component towards resolving this issue is the development of an

effective, cross-cutting national public works strategy, anchored in welldefined goals and

broad public and private support. The critical components of this strategy are outlined in the

sections that follow; these components build and depend upon harnessing the vast, existing

expertise represented in both the public and private sector including various Federal, state

17
and local public agencies, the private sector (industry), various trade and professional

associations and the nation’s excellent academic community. in fact, the development of a

strategy for national construction goals in the public works sector depends more on the

effective integration and optimal utilization of the resources that now exist than upon the

creation of new entities that might compete for already scarce resources.

Much of the nation’s infrastructure is capable of supporting current and proiected

requirements; unfortunately, this cannot be said for all components or @isdictions. A recent

synopsis by the Rebuild America Coalition reinforces the need for both concern and

coordinated action; some specific current statistics include:

almost a quarter million miles of our highway system is rated as in poor or

mediocre condition

one third of the nation’s bridge stock is either structurally deficient or

functionally obsolete; more than twentyfive percent of all bridges are more

than fifty years of age

mass transit suffers from both overage rolling stock and poorly maintained

facilities; moreover, the extent of mass transit services fails to meet current and

proiected needs

air traffic is proiected to grow by over one half over the next decade; the

severe congestion that currently afflicts maior airports is expected to more

than double if new runway capacity is not emplaced

the nation’s water resources, both supply and wastewater treatment, require

an estimated $200 billion over the next two decades to simply meet

regulatory requirements

both solid and hazardous waste have maior disposal and cost consequences

The Rebuild America Coalition estimates that as much as $1.1 trillion is required over the

next 15 years to provide a minimally satisfactory public works infrastructure. Clearly, an

expenditure of this magnitude requires the development of an effective strategy to ensure

that scarce resources are most effectively used in both planning and implementation.

18
The strategy developed herein envisions the active participation of the nation’s broad public

works infrastructure constituency, Immediate leadership, however, is being exercised

through the focused participation of the American Public Works Association (APWA), the

Rebuild America Coalition, the Civil Engineering Research Foundation (CERF),and the

Infrastructure Technology Institute (ITI).

Many of the prerequisites for a successful national public works construction goals initiative

are present in the various institutions and programs that now comprise a public works

“process.”

Cl

Q

c1

c1

cl

Ei

#

cl

c1

c1

El

With respect to this “process”, the following is noted:

while mechanisms exist within excellent organizations, such as the American

Public Works Association (APWA), the Rebuild America Coalition, the

Infrastructure Technology Institute (ITI) and the Civil Engineering Research

Foundation (CERF)for exchange of various data, including data on research

and innovation

the public works community, in general, recognizes the need for cost effective

innovative technologies

a large community of public works focused manufacturers and suppliers exists

many entities are increasingly interested in helping resolve state and local

public works needs

in spite of these favorable indications, a significant breakdown is

apparent between willingness within public works agencies to

innovate and effective actions to move innovative technologies

into practice, due to:

largely uncoordinated efforts, lacking a clear vision

lack of effective linkages between the key stakeholders

little apparent time and resourcing within the public works community to

consider how to improve upon current operations

the general nation-wide unfamiliarity regarding public works problems and

needs

the general lack of procedures in local public works agencies that

accommodate introduction of innovative technologies

lack of funds
The last factor, lack of funds or underinvestment, has been effectively shown by EPIas a

principal reason for the current condition of the public works infrastructure. As Figure 8

shows, the proiected Federal investment in the nation’s physical capital, if realized, may

accelerate the downward spiral in the quality and quantity of the public infrastructure. This

potential, alone, is a compelling reason for the rapid development of a national public

works construction goals initiative.

Total Federul Inveshnent Outlays

1993-99

4.K

r 1

t.9

!.85

*.S

1,76

1.1

Ww $004 !0s4 MM ,007 ,9M ,090

Source: EPI analysis of OMB data

Figure 8

In summary, while the nation has a need to implement viable construction goals in each

sector and, in doing so, the quality of life and economic opportunities will be advanced, it is

more and more apparent that the essential link that will enable these sectors to achieve their

respective goals is our public works infrastructure. Goal attainment in the public works

sector is therefore a doubly important national obiective.

20
Ill. The public Works National Goals Implementation Strategy:

An Overview

As stated earlier, the strategy for attainment of appropriate public sector construction goals

does not depend upon the creation of new entities as much as upon the effective integration,

use and strengthening of existing venues. This is an important consideration and reflects the

growing consensus within the public works sector that national construction goals is a

natural progression that adds vision and purpose to the many actions that are currently

underway in the public works community to ensure the creation or revitalization of the public

works infrastructure. This understanding of the role and purpose of the construction goals

initiative will enable these goals to gain broad acceptance and inclusion in the broad

spectrum of current public works activity. As noted earlier, the leadership role for

introducing construction goals into the public works sector has been Iointly accepted by

four organizations who, collectively, bring together a large part of the diverse communities

whose commitment and participation is essential for success. This initial leadership

commitment does not exclude the active future leadership role of others; indeed, it invites the

active commitment and participation of all whose impact will further the attainment of the

construction goals that become the consensus priority goals for the sector,

Several venues are viewed as especially important for program success, primary among

them the excellent structure that exists in the American Public Works Association (APWA).

The strategy therefore builds upon most of the institutes that have been created by APWA as

the specific venues for attaining important goal ob@ctives, The specific institutes include:

9 Water Resources

■ Solid Waste

■ Transportation

■ Buildings and Grounds

■ Equipment and Services

■ Management

■ Municipal Engineering

Moreover, the annual APWA International Public Works Congress is viewed at this time as

one of the most appropriate and visible focal points for the construction goals initiative.

Through the Congress, an annual venue is provided for overall program objectives,

including but not limited to:

21
n

c1

n

•1

❑

•1

•1

•1

interaction with national leadership, agencies, etc.

goals progress reports

goal validation, refinement and/or revision

consortia creation for specific products

resourcing

strategy development for specific goals or products

public outreach

focused exchange on program goals with other construction sectors

The many other venues offered by the APWA structure will likewise be

in the development and execution of the public works goals strategy.

used as appropriate

important links are also provided by the other initial leadership group members. For

example, the significant research capabilities found in hundreds of universities across the

nation must be stimulated to address public works infrastructure needs in a more effective

manner than is now the case. The role of the Infrastructure Technology Institute (ITI) makes it

particularly well suited to accomplish this. Likewise, the commitment and potential impact of

the construction industry and its many professionals must be captured; the efforts of the Civil

Engineering Research Foundation (CERF)and its parent organization, the American Society

of Civil Engineers (ASCE) provides one important venue for this. Finally, the focused

outreach to the national leadership and the American public that is represented in the

Rebuild America Coalition represents an invaluable communications and outreach link for

this strategy.

These four organizations will not be able to implement public works construction goals by

themselves, They are the nucleus, designed to encourage and enlist the commitment and

participation of the hundreds of other public works focused organizations whose combined

ideas, skills and resources can achieve this!

Five major components comprise this draft public works national construc~on goals strategy;

these components are summarized as follows and presented in more detail later, Full

development of these strategy components is envisioned to be accomplished in the public

works implementation plan.

22
c1 Establishing Essential Public Works Linkages

c1 stakeholder identification/inclusion strategies

❑ federal sector interaction/coordination

❑ academic participation

❑ industry participation

c1 Identification, validation and appropriate Revision of public

Works Infrastructure Goals and Products

•1 national public works condition inventory

n continuous public works problems and needs

❑ goals review, revalidation and prioritization

assessments

•1 public works product development, validation and implementation

c1 Technology Requirements Assessment and Development

•1 benchmarking “best” practices, using 1994 as baseline

❑ key technology “needs” identification

•1 technology needs alert

❑ innovative technology assessment/evaluation

c1 Program Development and Execution

•1 development of achievable product timelines

•1 consortia development

❑ demonstration strategies

•1 funding: requirements and sources

❑ barriers identification and mitigation

❑ data bases/communications

c1 Program Coordination, Information and Public Affairs

•1 oversight structure and participation requirements

❑ training/education

❑ national leadership participation/buy-in

❑ public outreach for program support

23
IV. Establishing the EssentialPublic works Linkages

The U.S. public works arena has many stakeholders, ranging from elected and appointed

officials, materials and equipment providers, public works operators to the American public,

the ultimate user and beneficiary (or, at times, victim) of the scope, quality and efficiency of

products and services.

This strategy component is addressed first because the successful execution of public works

construction goals will hinge upon its effectiveness. In this step, critical linkages are

established (or strengthened), both within the public works community and with essential

external organizations, Goals achievement will depend upon the ability to both generate

support for such goals and the existence or creation of venues for goal execution; both will

depend upon these linkages. This component is therefore an initial priority in the public

works strategy for construction goals. Unlike the other sectors, public works infrastructure

ownership belongs to the nation, albeit, with some exceptions, in the small doses that

represent our thousands of cities, towns and counties. More so than for other sectors, the

active involvement and commitment of the public at large is needed to ensure goal

attainment. This component will therefore strive to establish strong links, anchored in a

common vision for public works, and establish the framework for coordinating and

leveraging the activities of the public works communitj itself, the Federal sector, academia

and the private sector, especially the construction sector but also the other sectors of the

economy whose efficiency and competitiveness is directly linked to an effective public works

infrastructure.

24
V. identification, Validation and Appropriate Revision of Public

Works Infrastructure Goals and Products

Goals are the focal point of this initiative. As such, it is imperative that these goals be

precise, significant and attainable. To facilitate this will require:

❑ continuous public works problems and needs assessments

❑ goals review, revalidation and prioritization

❑ public works product development, validation and implementation

One important outcome of the December 1994 national construction goals workshop was

the identification of priority goals, by sector. Thus, for the public works infrastructure, three

of the seven proposed goals were selected as the most relevant and significant (see Figure

9).

C&BGod Residential

I

+

Opmliim

bnle

Eilergyusn #

,

f%oducli?ity

1

IiiEt=

Wotfm

HaIhV W

Safely

ColemerddIlwtetiollal Ieduetrb ~d~ ‘w RANK

, , [

@riMity #+= Highhiority

Figure 9

25
It is important to recognize that this prioritization did not imply that the remaining four

were unimportant, only that initial focus should be placed on these three, including:

goals

❑ reduction in operations, maintenance and energy costs

❑ reductions in facility delivery times

•1 reductions in waste and pollution

This component of the strategy addresses the most fundamental aspect of the construction

goals initiative; the goals themselves and the “products” developed to achieve these goals.

It is therefore, philosophically, the most important of the components. It is also a component

that is likely to change over time, as priority goals are attained or as priorities themselves

change due to changing societal conditions, technological breakthroughs, etc. The strategy

therefore includes the continuous review of the established priorities and appropriate

modifications based upon “stakeholder” consensus. The principal venue for this will, in all

likelihood, be the annual APWA International public Works Congress, during which current

priorities can be reviewed and modifications proposed.

Execution of the priority goals will entail the

evaluation and integration of a formidable set of

factors, including the goals themselves, barriers to

implementation, applicable technologies and

processes, potential participants, product delivery

mechanisms, resource options, etc. The complexity of

this effort has been recognized by the C&B

subcommittee. The subcommittee has therefore

framed goals execution in the form of a set of

products that, when widely implemented in any

sector, will lead to goal attainment, This approach

has merit, and is incorporated as a concept in the

public sector strategy, The proposed

product list developed

by the C&B subcommittee is presented in Table 1;

the public works strategy envisions the further

evaluation of this product list and appropriate

modifications to accommodate the s~ecific needs of the

Pronosed tXB Products

leadership for Innovation

Regulatory Reinvention

Skilled Workforce

Baseline Measures

Human Factors

Information Systems

High Performance Materials

Construction Automation

Table 1

mblic works sector.

and System:

I
V1. Technology Development and Related Requirements

The technology component tasks have been identified as:

❑ benchmarking “best” practices

❑ key technology product “needs” identification

•1 technology product needs alert

❑ innovative technology product assessment/evaluation

❑ standards/codes development

The components of the public works construction goals strategy are, in a sense, distinct

“pieces” that require development and precise fitting in order to enable goal attainment.

While all are essential and failure of any one component jeopardizes the outcome, it is

innovative technology that will provide the essential means for goal attainment. Several

important actions are key to ensuring the development of the required technologies.

First, is to establish what constitutes the best current practices in the large and diverse public

works community, that is, benchmarking. This task is, of course, focused on the specific

goal(s) that has been accorded priority status. In this regard, the public works sector may

initially differ from the other sectors, all of whom have indicated that reduction of proiect

delivery time (or a variant but related goal of reduced first cost) is the initial priority goal.

The goal of reducing operations, maintenance and energy costs was given top priority by

the public works sub-group at the December 1994 workshop, as was indicated earlier ~n

Figure 9.

27
As already noted, reduced project delivery times and reductions in the generation of waste

and pollution emerged as the other priority goals. Benchmarking some aspect of project

delivery times, for example, may lead to the conclusion fhat a significant difference exists

between the average practice seen in the majority of instances and the very best, observed

in only a few instances; this difference is graphically depicted in Figure 10,

Benchmarking

Improvement

4

1= - \

Best 1994 wQrs@

(a%) (AVG)

State-of-the-Practice

Figure 10

The desired contribution of this specific aspect towards project delivery time goal attainment

may be achieving best practice status for everyone by a specific time frame (in this case,

2004) or it may imply the need to shift the best practice itself and ensuring this becomes the

average practice; note that this shift is not shown in Figure 10.

With the establishment of the formal public works oversight body, these initial priority goals

will be considered and modified, if deemed appropriate. Benchmarking only priority goals

is a wise use of scarce resources; other goals will likewise be benchmarked as they become

priority goals. Benchmarking at that point (when a goal is recognized as a priority) will

ensure that the then best practices are identified rather than practices that may have been

overtaken by technology or process. As appropriate, the benchmarking may consider the

best foreign practices in order to ensure that scarce resources are not expended in needless

duplication of already accomplished research and development. Once identified, the

benchmark practices will be widely recognized, in media, through video, as appropriate,

28
through regional APWA and other association gatherings and, particularly, at the

International Public Works Congress. This will help goal attainment, since benchmark

practices may already constitute substantial progress towards the stated goals. Establishing

the benchmarks is most logically a function of the respective APWA Institutes, working in

conjunction with the technical experts from ASCE/CERF, ITI and academe as well as the

many specialty professional and trade associations and, the manufacturers of public works

related equipment and systems.

For the priority goal, the essential technology product needs (gaps) will be determined, The

product set developed by the C&B subcommittee, modified, if appropriate, by the public

sector, provides the template for identifying the required products. This determination is a

complex undertaking since each goal comprises innumerable technology related

requirements and opportunities. Reducing “operational costs”, for example, is linked to

thousands of public works actions, many of them inter-related. It can be expected that each

need or gap will, in most cases, be expressed in the form of a set of products capable of

achieving currently unattainable performance parameter(s).

Once identified, the set of needed products associated with a goal will be given wide

dissemination within the research and development community, including academe, the

public sector and industry. The product needs (gaps) set becomes, in effect, a challenge to

creativity and innovation for the research and development community. It is the “needs”

alert for each priority goal. Embedded in the “needs alert” will be market potential

estimates, in order to stimulate interest and participation by the commercial product

developers, whether designers, equipment or material manufacturers, software firms, etc.

.

An essential component in the technology development process is impartial evaluation of

candidate product solutions, whether process, equipment, or material. Existing venues for

evaluation, such as the Highway Innovative Technology Evaluation Center (i-fITEC) may

prove adequate; others may be recognized as required over time. A critically important

aspect of the evaluation, however, is that the evaluation should enhance the development of

appropriate standards and codes for those evaluated product items that require

codes/standards in order to be implemented.

29
V1l. Program Development and Execution

This component has as essential tasks the following:

❑ creation of goals oversight body

•1 development of achievable goal/product timelines

❑ consortia development

❑ demonstration strategies

•1 funding: requirements and sources

❑ barriers identification and mitigation

•1 data bases/communications

While innovative technologies may be considered the essential engines for construction goal

attainment, the development of effective construction goal management concepts and

execution parameters are the essential lubricants. The most impressive technologies are

unlikely to make an impact in the absence of a highly effective public works structure for

goal implementation.

An initial requirement is the establishment of a goals’ oversight body that is both visible and

widely recognized as the authoritative body for this purpose. While the four initial members

of the public works construction goals initiative expect to continue providing their individual

expertise until the full spectrum of public works goals are attained, the participation and

funding support from all “stakeholders” is a program prerequisite. The active participation

and endorsement of all known “stakeholders” will therefore be a program priority effort. A

number of venues will be used for this purpose, including the annual APWA International

Public Works Congress, the activities of the Rebuild America Coalition, the appropriate

venues of ASCE and CERFas well as the many annual academic, association, professional

societies and industry venues. The bottom line is an inclusive public works community,

focused on the attainment of consensus goals, The public works oversight body will also

provide appropriate representatives to the central, multi-sector oversight body for national

construction goals implementation, seeking both to transfer appropriate public works success

to other sectors and, conversely to learn and benefit from the successful products developed,

and implementation actions taken, by the other construction sectors.

30
Appropriate timelines for goal and product attainment are likewise an essential

consideration, These timelines will be developed by consensus procedures by the public

works oversight body. Timelines will be coordinated, as appropriate, with the central, multisector oversight body in order to maximize the success potential of each construction goal

and product.

For the public works sector, consortia are deemed essential for product development and

goal attainment, This conclusion simply recognizes the very fragmented and diverse nature

of the American public works community. Unlike some of the sectors in the U.S. economy

(such as automotive, many consumer product manufacturers and computers) and, perhaps,

one of the construction sectors, there are no maior “stakeholders” who can, on their own,

take on the maior resource commitments associated with proposed goals and most potential

products. As goals are established and specific products identified for goal attainment,

consortia will therefore collectively become an essential public works implementation tool.

Consortia creation will require substantial resources and will utilize all possible venues of the

public sector stakeholders to disseminate information regarding consortia opportunities,

including the increasingly popular opportunities present in such datalinks as the Internet.

A second fundamental program execution requirement will be comprehensive, realistic

demonstrations of the products that target the priority public works goals. Consortia

membership will be structured to include, from the inception of any specific consortium,

those members who will provide the platform for demonstrations/first use. Product

commercialization will likewise be a fundamental planning obiective; it is therefore

envisioned that as many viable potential product commercializers as can be identified will

be considered for inclusion in the respective consortia and the demonstrations. Multiple

demonstrations, offered by different vendors and site hosts, will be a program target in

order to fully stimulate innovation and competitiveness, As with consortia development, all

potential venues will be candidates for the development of demonstration programs, but the

control and management nucleus for all demonstrations will reside in the consortium or

consortia whose focus is the specific demonstration product; the broad supervision of all

consortia efforts wi II be accomplished by the public works oversight body, An important

aspect of all demonstrations will be the special focus on enhancing and expediting the

standards and subsequent code development for products facing those requirements.

The greatest difficulty associated with moving technologies from the research and

development phase into commercial use is often found in this phase, which has aptly been

referred to as the “valley of death, ” is shown in Figure 11. The effective bridging of this

valley is a primary consortia responsibility.

31
THE UALLEY OF DE(3TH

RESEARCH~

DEVELOPMEW COMMERCIAUZAllOIl

UTILIZATION

DEMONSTRATION

VALIDATION

Figure 11

No progress towards national public works focused construction goals will be made in the

absence of adequate resourcing, including both in-kind contributions and actual funds.

Moreover, it is unlikely that public sector funds will, alone, be sufficient or perhaps even

available to meet the requirements that will be developed in the comprehensive public works

implementation plan. A priority function of the public works oversight body must therefore

be not only the development of resource requirements but the obtaining of resource

commitments from interested stakeholders, particularly stakeholders with strong benefits

potential from ongoing product development or goals attainment. One important aspect of

this is the clear demonstration to public works agencies and potential vendors that the

combined resourcing of important products, through viable consortia, may provide

opportunities and results that have heretofore been unattainable be any single entity.

The C&B subcommittee has proposed that a product category be established specifically for

the many challenging non-technical “barriers” that, at present, often prevent innovative

technologies from being implemented. How these barriers are addressed and surmounted

in the public works sector will be a specific responsibility of the oversight body, An

important aspect of each product development task will be the identification of known or

anticipated barriers and the development of appropriate barrier reduction strategies. An

important principle will be the attempt to distribute the risks associated with any barrier so

that no single participant is faced with potentially unacceptable consequences.

32
An important anchor for all proiect development and execution will be the creation of both a

comprehensive data base and the communications links required for its effective

implementation and wide-spread use. This data base and the communications link will be

the primary operational and archival links among the many stakeholders in the public works

community and the input/output linkage between the public works sector and other sectors,

as well as other interested or involved entities.

In the end, this public works construction goals strategy envisions a process that becomes a

continuous, important and embedded component in the U.S. public works agenda, a

process that will enable the consistent and continuous improvement in the effectiveness and

quality of the nation’s public physical capital, in sum, the creation and sustaining of the

world’s most capable public works infrastructure. The path that can enable this is portrayed

in Figure 12, below.

i%% ‘1/

/

/

33
Vlll. Program Coordination, Information and Public AHairs

Itis likely that one of the primary reasons for the serious investment and quality decline in

public works infrastructure that has been experienced over the past quarter century is the

absence of a broad public understanding of the role and impact of infrastructure in

everyday life, One consequence of this absence is the lack of strong national leadership

imperatives in both the Congress. and the Administration for excellence and innovation in the

public works infrastructure. How can this be changed?

❑ a strong oversight structure and participation requirements

❑ hard-hitting, factual training/education

•1 national leadership participation/buy-in programs

•1 public outreach for program support

A strong oversight structure involving all appropriate “stakeholders” will be developed to

accomplish these tasks.

PUBIJC EDUCATION

The general public, as well as the media, do not see the reason for most of the investment in

public works infrastructure because most of the investment is literally invisible to them.

Underground water and sewer pipes are usually neglected until they break. Roads, streets,

and bridges, once built, are taken for granted by those who travel them, again until they

need repair or replacement. For these reasons alone, getting the public to look at the

investment in public works infrastructure from a life cycle perspective is a great challenge.

Looking at the construction, operation, and maintenance of public works structures and

facilities in a holistic manner, seeing the interrelatedness of these physical systems is a goal

for the public education component of the Implementation Strategy.

Public support for National Construction Goals in public works needs to be built on a

foundation of knowledge and understanding of the importance of public works to the

economic, environmental and social well-being of every community. The Rebuild America

Coalition, itself a consortium of public and private organizations interested in building

broad support for infrastructure investment, will take the lead in developing and transmitting

the public education component of the Implementation Strategy, The Coalition is composed

of organizations representing local elected officials, supported by organizations

representing engineers, builders, financiers, contractors, and architects,

34
The number one item

“create public

in the Rebuild America Coalition’s mission statement is to:

awareness of the need to increase infrastructure investment and

infrastructure’s role in building the nation’s economy and improving the productivity

of the nation. ”

To achieve this mission, the Coalition undertakes grassroots campaigns at the state and local

level. Local Coalitions will work closely with the 58 state and local Chapters of the

American Public Works Association to develop and deliver public education programs, This

will be facilitated by the fact that APWA serves as the Secretariat for the Rebuild America

Coalition.

Four organizations will serve as the points of contact and facilitators for the development of

consortia in specific areas:

Organization Constituency

American Public Works Association (APWA) Local public works agencies

Civil Engineering Research Foundation (CERF) Industry, consultants

Rebuild America Coalition State & local government

Infrastructure Technology Institute (ITI) Academic research

organizations

Representatives of each of the four lead organizations will meet as follows:

July 1995: Develop materials to send to various constituencies

Identify key members of constituencies

Design oversight/coordinating body/invite members

Meet with NSTC representatives

August 1995: Review survey responses

Organize meetings at APWA Congress

*

*

*

individual constituencies

oversight coordinating body

Federal NSTC representatives

35
September 1995: Meet at APWA Congress (Dallas)

* validate goals

* prioritize goals

* announce goals/implementation program

Following the APWA Congress meeting, there will be monthly meetings of the public works

oversight group. The purpose of these meetings will be to monitor progress, facilitate

coordination, maintain communication with NSTC, and develop the final implementation

plan in time for the APWA Congress in Washington, DC (August, 1996)

LOCAI. PUBUC WORKS AGENCIES

APWA will be the lead organization to develop strategies to implement the National

Construction Goals for the local public works agencies. APWA will utilize its national

organizational resources such as its 7 Institutes for Professional Development, its 58 U.S.

Chapters, the APWA Reporter Magazine, and the APWA Electronic Bulletin Board (BBS).

In a special sector of the APWA BBS, hundreds of local leaders in each of the various

functional areas (transportation, water supply, wastewater treatment, solid waste collection

and disposal, etc.) will have the stated goals from the December 1994 workshop. They will

be asked to provide their agency’s comments via electronic survey.

surveys will be analyzed and summarized by an APWA committee.

disseminated to all local public works agencies.

The results of the

The results will be

In cooperation with the Rebuild America Coalition, all local efforts directed at public

education regarding investment in public works infrastructure, understanding the nature and

importance of infrastructure will be coordinated. A national clearinghouse of public

educational materials and programs will be established under the auspices of the public

works oversight group.

Training/education, national leadership participation/buy-in and public outreach will

benefit from the very extensive mechanisms already operational in the public works sector.

The emphasis will therefore be to cost-effectively use and improve existing venues rather

than create new venues that lack recognition, acceptance and require substantial

resourcing. Examples of the existing published venues from APWA, the Rebuild America

Coalition and ASCE/CERF are attached to provide a modest indication of the significant

venues that can be effectively channeled to inform, promote, coordinate and involve the

broad public works constituency.

36
IX. Summary

The success of this bold national construction

goals initiative for public works infrastructure

depends, intheend, upon theability of the

initial implementation “partners” to establisha

compelling case for these goals, generate the

requisite enthusiasm, commitment and .

participation from the large public works

stakeholder constituency and develop the

effective implementation mechanisms that ensure

program success. The strategy outlined in this

report is an important first step towards success,

but, nevertheless, only the first step in a process;

moreover it is a draft strategy that will now be

more closely evaluated and modified, as

appropriate, by the public works stakeholder

community in the process of completing the

public works sector construction goals

implementation plan,

The process has begun with this initial strategy; it

will be continued through the monthly (or more

often) meetings of the public works oversight

group, commencing in July with the first meeting

of the four organizations who have stepped

forward to provide the initial leadership for this

vital national initiative.

37