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Model Documentation for

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NATIONAL BUREAU OF STANDARDS

The National Bureau of Standards1 was established by an act of Congress March 3, 1901. The Bureau's overall goal is to strengthen and advance the Nation's science and

technology and facilitate their effective application for public benefit. To this end, the Bureau conducts research and provides: (1) a basis for the Nation's physical measure- ment system, (2) scientific and technological services for industry and government, (3) a technical basis for equity in trade, and (4) technical services to promote public safety. The Bureau consists of the Institute for Basic Standards, the Institute for Materials Research, the Institute for Applied Technology, the Center for Computer Sciences and

Technology, and the Office for Information Programs.

THE INSTITUTE FOR BASIC STANDARDS provides the central basis within the United States of a complete and consistent system of physical measurement; coordinates

that system with measurement systems of other nations; and furnishes essential services leading to accurate and uniform physical measurements throughout the Nation's scientific community, industry, and commerce. The Institute consists of a Center for Radiation Research, an Office of Measurement Services and the following divisions: Applied Mathematics — Electricity — Mechanics — Heat — Optical Physics —

Linac Radiation - — Nuclear Radiation - — Applied Radiation 2 — Quantum

Electronics :1 — Electromagnetics ; — Time and Frequency :i — Laboratory

Astrophysics '' — Cryogenics 3

. THE INSTITUTE FOR MATERIALS RESEARCH conducts materials research lead- ing to improved methods of measurement, standards, and data on the properties of

well-characterized materials needed by industry, commerce, educational institutions, and

Government; provides advisory and research services to other Government agencies;

and develops, produces, and distributes standard reference materials. The Institute consists of the Office of Standard Reference Materials and the following divisions: Analytical Chemistry—Polymers—Metallurgy—Inorganic Materials—Reactor

Radiation—Physical Chemistry.

THE INSTITUTE FOR APPLIED TECHNOLOGY provides technical services to pro- mote the use of available technology and to facilitate technological innovation in industry and Government; cooperates with public and private organizations leading to the development of technological standards (including mandatory safety standards), codes and methods of test; and provides technical advice and services to Government agencies upon request. The Institute also monitors NBS engineering standards activities and

provides liaison between NBS and national and international engineering standards

bodies. The Institute consists of a Center for Building Technology and the following

divisions and offices: Engineering and Product Standards—Weights and Measures—Invention and

Innovation—Product Evaluation Technology—Electronic Technology—Technical Analysis—Measurement Engineering—Building Standards and Code Services4—Housing Technology4 —Federal Building Technology4—Structures, Materials and Life Safety4—Building Environment4—Technical Evaluation and

Application 4 —Fire Technology.

THE INSTITUTE FOR COMPUTER SCIENCES AND TECHNOLOGY conducts re- search and provides technical services designed to aid Government agencies in improving cost effectiveness in the conduct of their programs through the selection, acquisition,

and effective utilization of automatic data processing equipment; and serves as the principal focus within the executive branch for the development of Federal standards for automatic data processing equipment, techniques, and computer languages. The Center

consists of the following offices and divisions: Information Processing Standards—Computer Information—Computer Services —Systems Development—Information Processing Technology.

THE OFFICE FOR INFORMATION PROGRAMS promotes optimum dissemination and accessibility of scientific information generated within NBS and other agencies of

the Federal Government; promotes the development of the National Standard Reference Data System and a system of information analysis centers dealing with the broader

aspects of the National Measurement System; provides appropriate services to ensure

that the NBS staff has optimum accessibility to the scientific information of the world,

and directs the public information activities of the Bureau. The Office consists of the following organizational units: Office of Standard Reference Data—Office of Technical Information and

Publications—Library—Office of International Relations.

1 Headquarters and Laboratories at Gaithersburg, Maryland, unless otherwise noted; mailing address Washington, D.C. 20234.

2 Part of the Center for Radiation Research.

3 Located at Boulder, Colorado 80302.

* Part of the Center for Building Technology.
*$3 Coordinated Evaluation System

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(CES) Project

Model Documentation for Building Regulation

Robert D. Dikkers

Office of Building Standards and Codes Services

Center for Building Technology

Institute for Applied Technology m U.J- National Bureau of Standards

Washington, D.C. 20234 **e

NBS Technical Notes are designed to supplement the Bureau's regular publications program. They provide a means for making available scientific data that are of

transient or limited interest. Technical Notes may be

listed or referred to in the open literature. ^T °P «*

U.S. DEPARTMENT OF COMMERCE, Frederick B. Dent, Secretary

NATIONAL BUREAU OF STANDARDS, Richard W. Roberts, Director

Issued May 1973
National Bureau of Standards Technical Note 775

Nat. Bur. Stand. (U.S.), Tech. Note 775, 16 pages (May 1973) CODEN: NBTNAE

For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402 (Order by SD Catalog No. C13.46:775). Price $0. 35 domestic postpaid or $0. 25 G.P.O. Bookstore
CONTENTS

Page

1. Introduction 1

2. Relationship to NCSBCS Programs 3

3. Project Tasks 4

Background 4

State-of-Art Study . 4

Model Documents 8

4. Project Methods and Reports 10

Data Collection .10

Contracts 10

Reports 11

Staff 11

5. Summary 11

iii

Coordinated Evaluation System (CES) Project

Model Documentation for

Building Regulation

Robert D. Dikkers

Background information, objectives and the current status (February, 1973)

of various tasks and reports pertaining to the Coordinated Evaluation System

(CES) project are described. The goal of the CES Project is to develop model

informational documentation that will assist state building regulatory agencies

in establishing a coordinated and uniform evaluation, approval and inspection

system. The model documentation will be related to the following building

regulatory functions: (1) data submittal, (2) evaluation, (3) approval,

(4) compliance assurance (inspection), (5) installation, and (6) owner

information.

Key words: Building regulation; evaluation; inspection; manufactured

building; mobile homes; model documents; state-of-art study.

1. Introduction

The rapid growth of manufactured building and mobile home production (fig. 1) along

with the recent and continuing trend toward the adoption of statewide preemptive factorybuilt housing, industrialized building and mobile home laws, has established the importance

of developing state and local regulatory programs adapted to the characteristics of manufactured construction and which, if widely accepted, would further stimulate the production

of such construction. Primary objectives of these regulatory programs should be to assure

that manufactured construction complies with applicable codes and standards while encouraging the use of new technology, techniques and materials. In addition, state and local

programs should have uniform and technically sound procedures for the required evaluation,

approval and inspection functions.

The documentation used in implementing and carrying out the required evaluation,

approval and inspection procedures and functions, is an important aspect of these building regulatory programs. Requirements for form and content of documents such as plans,

specifications, test reports, and compliance assurance manuals, which are prepared and

submitted by a building manufacturer (or his agent) to a state or other approved evaluation

agency, should be uniform, as possible, to reduce the need for the manufacturer to prepare

different documents for individual evaluation agencies. Such documents also need to be

comprehensive and adequately detailed so as to permit the evaluation agency to readily

determine code compliance. Other model documents or document requirements relating to the approval and inspection functions should also be established, which will assist in the

intrastate and interstate acceptance of manufactured buildings and mobile homes, and also
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reduce the associated time and costs experienced by manufacturers as well as the various

evaluation and inspection agencies involved in the regulatory process.

In 1971 the Executive Office of the President asked the National- Bureau of Standards

to develop specific programs which would assist in removing or reducing barriers created

by the building regulatory process. Several suggested programs were developed and submitted for approval and funding in Fiscal Year 1972. Upon receipt of their approval in

November, 1971, the Coordinated Evaluation System (CES) Project was established in the

Building Research Division,* to develop, in conjunction with the state governments, model

informational documentation to serve the needs of many state regulatory agencies and to minimize the duplications and delays experienced by the producer in obtaining regulatory

approvals. This model documentation will aid the establishment of a coordinated and

uniform evaluation, approval and inspection system for use by the states, providing thereby

a necessary and valid approval record for interstate reciprocity in the acceptance and

regulation of industrialized or manufactured buildings.

2. Relationship to NCSBCS Programs

The National Conference of States on Building Codes and Standards (NCSBCS) , which was

formed in 1967, is an organization of state delegates, designated by their respective

governors, to represent their states in discussions and program development pertaining to building regulatory activity. Two of the specific purposes of NCSBCS as contained in its

Constitution (1972) are as follows:

"To assist in the development of programs leading to the . . . administration

of uniform comprehensive building codes and standards among the agencies involved

in the regulation of construction within and among the states where such uniformity

is deemed necessary for interstate purposes."

"To foster cooperation among government officials concerned with building regulations, and between these officials and the design, manufacturing, business and consumer interests affected by their activities."

At the Fourth Annual NCSBCS Conference (April, 1971) the state delegates approved the

following resolution:

"It is recognized that a sound laboratory accreditation program provides the

essential background base for the development and operation of an interstate

evaluation mechanism. Now that a positive accreditation program development

* In July, 1972, the Building Research Division was reorganized into The Center for

Building Technology.
effort has been initiated, this Committee (Standards and Evaluation) recommends the

early implementation of ... an interstate innovation evaluation system. This

Committee further recommends that the National Bureau of Standards be requested

to undertake the development of a program acceptable to the NCSBCS that will:

(a) coordinate, augment and lend a uniform validation to the efforts of those

academic institutions, governmental units and private commercial organizations now engaged in testing and evaluating products and systems, so as to provide a sound base for interstate reciprocity regarding innovation evaluation ..."

In response to these NCSBCS purposes and requests, NBS developed and initiated two research projects, the Laboratory Evaluation and Accreditation Program (LEAP) and the

Coordinated Evaluation System (CES) Project. LEAP is concerned with the development of

criteria necessary for judging the capabilities of institutions (public or private) to perform functions of engineering analysis or evaluation, laboratory testing, and compliance

assurance (inspection) for manufactured buildings. LEAP is also directing its attention to the methodology for examining such institutions for their capabilities. As indicated previously, the initial CES Project objective is to develop model informational documentation

for use by the various institutions and agencies engaged in the process of evaluation,

approving and inspecting manufactured buildings.

3. Project Tasks

Background . Based on available information (as of February, 1973), 27 states have

adopted manufactured building or factory-built housing laws; 34 states have adopted statewide standards and programs relating to mobile homes; and 15 states have adopted statewide

building codes (i.e., general codes regulating most types of construction and occupancy).

Figures 2, 3 and 4 indicate the specific states which have adopted the various types of

statewide regulatory programs.

State-of-Art Study . The initial task in the CES Project consists of a state-of-art

study. The purposes of this task are: (1) to gather detailed background data which will

be useful in the preparation of model documentation; and (2) to provide data for a stateof-art report on current state building and mobile home regulatory programs. The primary

objective of the state-of-art report on state programs is to provide an informative compilation and summary which would be useful to state and local building officials, NCSBCS

delegates and committees, and various other segments of the building and mobile home

industry.

In general, this task will include a study of evaluation, approval and inspection

functions, procedures and reports relating to manufactured buildings and mobile homes in

current use by various private and public organizations, institutions and agencies.

Specifically, these studies will include the following program areas and institutions:

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(a) literature survey pertaining to existing reports and publications on the evaluation

and regulation of building materials, components and systems; (b) various state regulatory

programs including factory-built housing, mobile homes, and other statewide building codes;

(c) several federal agency evaluation and inspection programs (e.g., HUD, VA, DOD) relating

to manufactured housing and mobile homes; (d) various private evaluation institutions

engaged in the evaluation and certification of building systems and/or equipment; and

(e) building industry and manufacturer needs and experiences relating to state regulatory

programs. Figures 2, 3 and 4 also show the various state regulatory programs presently

included (as of February, 1973) in the CES Project state-of-art study.

Model Documents . The major CES Project task is to coordinate, and develop, where

necessary, the model informational documents which may be needed to implement and establish

a comprehensive program for the state regulation of manufactured buildings and building

components. The basic background data to be used in this task will be that obtained in

the state-of-art study along with requirements and procedures contained in the Model Act

and Model Rules and Regulations for Manufactured Building. This model act and rules and

regulations have been drafted by a Special Working Group comprised of representatives from

NCSBCS, National Association of Building Manufacturers, Council of American Building

Officials, U. S. Department of Housing and Urban Development and U. S. Department of

Commerce.

The model documentation will be related to the evaluation, approval, inspection and

installation phases of the manufactured building regulatory process illustrated in

figure 5. As shown, it is anticipated that this regulatory process will utilize the

following model documents: (1) data and information (plans, specifications, test reports,

calculations and compliance assurance manuals) to be submitted to state agencies (or

approved evaluation agencies) by producers of manufactured buildings; (2) evaluation

procedures, techniques, check lists, and reports to be used by evaluation agencies to verify compliance of the building system with the applicable state codes and standards;

(3) approval reports to be issued by state agencies, which describe the conditions under

which the manufactured building (or building component) may be used; (4) in-plant inspection, handling, storage, and transportation procedures, techniques, check lists and reports

to assure compliance of the manufactured buildings or building components with the approved

building system (plans, specifications, etc.); (5) data and information to be submitted by

the producer to the local enforcement agency in order to obtain a local building permit

and to assure proper on-site installation; and (6) data and information prepared by the

producer which will pertain to the use, operation, maintenance, etc., of the manufactured

building, and which will be useful to the building owner or user.
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4. Project Methods and Reports

Data Collection . In order to obtain detailed and complete state-of-art information

from state agencies on various state building and mobile home programs, recommended data

collection sheets were developed by the CES Staff. These sheets contain comprehensive

questions and information to aid and guide the investigator (private contractor or project

staff member) in assembling and studying the state laws, regulations, procedures and documents, conducting on-site interviews, and reporting his study results.

Because of variations in existing state programs, the data collection sheets were

organized into six sections. Section 1 contains instructions to the interviewer or investigator who would be conducting a particular state study. It includes background

information on NCSBCS, CES Project, Laboratory Evaluation and Accreditation Program (LEAP),

and instructions for conducting interviews and submission and scope of final reports. Sec-=- tion 2 contains questions relating to the following subjects: state laws and regulations

such as elevator or boiler codes (i.e., laws and regulations other than those pertaining to manufactured building, mobile homes, and state building codes); personnel qualification

requirements; training and educational programs; automatic data processing systems; and

transportation requirements pertaining to manufactured buildings or mobile homes. Three

sections of the data collection sheets, Section 3 (Manufactured Housing or Building),

Section 4 (Mobile Homes) , and Section 5 (Combined Manufactured Building and Mobile Home

Programs) include questions pertaining to the following program areas; law, rules and

regulations, administrative organization, training and educational programs, evaluation

and approval procedures, compliance assurance (inspection) procedures, local enforcement

and on-site activities, reciprocity, owner information, and current level of activity.

Section 6 contains similar questions which would be applicable to states that have a comprehensive state building code regulating most types of building construction and

occupancies.

Contracts . Most of the state-of-art studies described are being conducted under

contracts with private consulting architectural and engineering firms, and various

universities. In Fiscal Year 1972 and to date in Fiscal Year 1973, a total of 11 contracts, some with multiple tasks, have been awarded. Six of the contracts include stateof-art studies of 30 state regulatory programs; two pertain to preparation of suggested

model documentation; three contain studies of various city and model code organization

programs; two include a review of various manufacturer needs and experiences in regard

to state programs; one incorporates a brief review of federal agency programs relating to manufactured housing and mobile homes; one is a literature survey of industrialized building system evaluation and regulation; and one pertains to planning computer compatibility

for building regulation documents. In addition, one contract provides for various reviews

of the CES Project objectives, methodology and reports. Final reports on all current contract work are scheduled for completion by June 30, 1973.

10
During Fiscal Year 1972 other preliminary background studies were also initiated

within the Building Research Division. These studies related to owner or consumer information needs in industrialized housing, and evaluation and approval programs of electrical,

mechanical and plumbing systems used in building construction.

Reports . The two major project reports now under preparation are: (1) a state-ofart report on state building and mobile home regulatory programs and (2) a report containing model informational documentation relating to the evaluation, approval and inspection

of manufactured buildings. In general, the latter report will contain model documents

primarily related to one and two family dwellings. These reports will be completed for

various committee reviews and discussions during Fiscal Year 1973. Other reports resulting

from selected contract and staff studies discussed previously are also being reviewed for

possible publication.

In Fiscal Year 1974, based on comments and feedback received on the initial project

reports as described in the preceding paragraph, the CES staff will develop additional

model documentation pertaining to other building types and occupancies and modify and

refine the documentation previously developed.

Staff . The selection of the CES Project staff was completed in June, 1972, and

presently consists of six members: Project Manager, Research Architect, Architect,

Quality Assurance Specialist, Mechanical Engineer, and Secretary.

5 . Summary

Although the primary goal of the CES Project is to develop model informational

documentation that will assist state building regulatory agencies in establishing a coordinated and uniform evaluation, approval and inspection system, it is expected

that the model documents will be useful to all those directly involved in the building

regulatory process - the state building officials, the design professionals (architects

and engineers), the evaluation and inspection agencies, the manufactured building

producers, the local building officials, and the building owners or users. It is also

believed that model informational documentation will benefit the general public by

providing an efficient regulatory system that will permit and stimulate the use of more productive manufacturing and marketing techniques, new and improved materials;

and increase the available supply of economical housing and other buildings.

4 11. S. GOVERNMENT PRINTING OFFICE : 1973—511-325/243

11
form NBS-114A U-71)

U.S. DEPT. OF COMM. BIBLIOGRAPHIC DATA

SHEET

1. PUBLICATION OR REPORT NO. NBS TN-775

2. Gov't Accession No.

3. Recipient's Accession No.

4. TITLE AND SUBTITLE

Coordinated Evaluation System (CES) Project

Model Documentation for Building Regulation

5. Publication Date May 1973

6. Performing Organization Code

7. AUTHOR(S)

Robert D. Dikkers

8. Performing Organization

10. Project/Task/Work Unit No. 4601132

9. PERFORMING ORGANIZATION NAME AND ADDRESS

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

11. Contract/Grant No.

12. Sponsoring Organization Name and Address

Same as No. 9

13. Type of Report & Period Covered Final

14. Sponsoring Agency Code

15. SUPPLEMENTARY NOTES

16. ABSTRACT (A 200-word or less factual summary of most significant information. If document includes a significant

bibliography or literature survey, mention it here.) Background information, objectives and the current status (February, 1973)

of various tasks and reports pertaining to the Coordinated Evaluation System

(CES) project are described. The goal of the CES Project is to develop model

informational documentation that will assist state building regulatory agencies

in establishing a coordinated and uniform evaluation, approval and inspection

system. The model documentation will be related to the following building

regulatory functions: (1) data submittal, (2) evaluation, (3) approval,

(4) compliance assurance (inspection) , (5) installation, and (6) owner

information.

17. KEY WORDS (Alphabetical order, separated by semicolons)

Building regulation; evaluation; inspection; manufactured building;

mobile homes; model documents; state-of-art study.

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SUNLIMITED.

I 1 FOR OFFICIAL DISTRIBUTION. DO NOT RELEASE

TO NTIS.

19. SECURITY CLASS

(THIS REPORT)

UNCLASSIFIED

20. SECURITY CLASS

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UNCLASSIFIED

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21. NO. OF PAGES

16

22. Price

$.35 Domestic postpaid. $.25 G.P.O.

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