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APPENDIX B
APWA PROPOSAL ON LIFE-CYCLE ANALYSIS
OF BUILDING MAINTENANCE COSTS
This description was prepared by staff of the American
Public Works Association prior to completion of the committee's
study. Refer to Chapter 1.
Execunve Summary
Public agencies invest millions in capital facilities, gena-
ally without sufficient attention to the long-term effects on
the maintenance budget. A new building obliges public
officials not only to maintain the asset but also to under-
stand the impact of decisions made at the time the building
is designed and constructed.
This research will provide public building managers with a
planning tool enabling them to forecast maintenance
requirements for both new and existing facilities. The
product of this research will provide facility managers with
a better method of forecasting short- and long-tenn
maintenance expenses.
This project will develop a detailed process for analyzing
annual as well as rehabilitation and replacement costs of
individual building components. An accurate budget
forecast, based on the facility's total maintenance needs,
can then be prepared. Public managers will also be able to
relate their maintenance requirements to a percentage of the
replacement cost of their facilities.
Background
Forecasting maintenance needs for public buildings has
created major problems for many public agencies. While it
is possible to predict accurately many aspects of building
performance, such as structural performance and energy
use, we are not able to estimate with any degree of reliabil-
ity what expcoditures must be put back into the building on
a regular basis to extend its useful life. Often, in order to
secure funding for new facilities, the least expensive
building construction design is selected with little concern
for the long-term, life-cycle cost implications of the design.
As public agencies budget for maintenance, major prob-
lems are encountered in making a case for adequate
funding.
Maintenance requirements for buildings are largely
governed by four factors: (1) quality of materials and
equipment used; (2) quality of the workmanship in con-
struction; (3) wear that the various components of the
structure receive from occupancy or natural conditions; and
(4) level of periodic preventive maintenance.
Materials and equipment for various components of new
andJor rehabilitated buildings are frequently selected with
seemingly little regard for long term maintenance costs. In
order to decrease life-cycle costs, building design must be
more than a commitment to provide a given amount of
space for a designated purpose. Effective public building
design can serve to decrease both short- and long-term
maintenance and operation requirements.
In the absence of any scientific data pertaining to building
maintenance requirements, there is little, if any, correlation
between building design and long-term maintenance
investment requirements. As a result. the following
adverse conditions may develop: (1) underfunded annual
maintenance, leading to costly, rehabilitation and repair; (2)
budgetary fluctuations, resulting in sporadic maintenance
of mechanical and other systems; and (3) overfunding, an
unusual occurrence, in which the agency establishes a
prohibitively costly and cumbersome maintenance pro-
gralT~. These conditions stem from an ad hoc assessment of
building maintenance requirements and their associated
costs, rather than an analytical approach to detcnnine long-
term, or life-cycle, costs. Designers who wish to consider
whether they arc "building out" future maintenance
problems do not have a reliable guide to judge selection of
materials and equipment. Likewise, owners do not have
reliable guides to judge the future consequences of their
instructions as to types of materials and equipment to be
used or regarding life-cycle costs that they consider
acceptable for a type of structure.
This project will include the wide variety of buildings used
by federal, state, provincial, and local governments, such
as office facilities, garages and shops, libraries, police and
fire stations, recreational facilities, institutional housing,
and special structures, such as water and wastewater
treatment plants. Structures will be assessed both as
designed and as built.
Maintenance is often the first item to be eliminated or
reduced as public agencies struggle to balance their
budgets. Problems resulting from deferred maintenance
have become increasingly apparent. In some cases, major
rehabilitation may be necessary, requiring funds far
(~3 American Public Works Association · 1313 E;asr 60rh Srreer · Chicago. Illinois 60637-2881 · 3127667-2200
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exceeding the cost of timely maintenance. This project will methods for life-cycle cost calculations and procedures to
develop the basis to support justification of annual mainte- evaluate maintenance programs based on design and
nance investments in buildings. materials for separate building components. Training will
The research project will draw on the principles of life-
cycle cost analysis that are used in the selection of maten-
als and equipment for new and/or rehabilitated public
structures and for budgeting funds for maintenance and
replacement costs.
Proposed Research
The APWA Research Foundation proposes to develop a
tool that will allow, building managers to determine their
ongoing maintenance and rehabilitation budgets. Specifi-
cally, the Foundation will: (1) analyze estimating tech-
niqucs for determining annual building maintenance costs;
(2) define methods to quantify the consequences of
deferred maintenance; and (3) identify life-cycle costs of
major building system components.
Development of this information will allow the agency to
protect its original investment, assure continuous usage
within design capacity, and reduce the possibility of
expensive repairs.
The proposed research will be a joint effort by the APWA
Research Foundation, the Public Facilities Council (PFC)
of the 'national Research Council, and APWA's Institute
for Buildings and Grounds.
The study will be conducted in three phases. During the
first phase, the PFC will establish a committee to develop
the most appropriate methodology required to develop
annual maintenance cost analyses for public buildings.
The committee will develop a methodology and approach
to consider: (1) calculation of the effects of natural
causes and occupants: (2! the cost relationship among
building system components in various typos of structures;
(3) tows and grades of commonly used building material
system components; (4) annua] and periodic maintenance
costs associated with various systems based on use and
climate considerations; and (5) effects of deferred mainte-
nance.
In the second phase, the APWA Research Foundation will
develop procedures to'allow utilization of the Phase One
findings by facility managers and by designers of new or
rehabilitated structures. Data will be compiled in a format
that can be readily used by facility managers.
In the third phase, the Research Foundation will develop
training materials that will include a description of
34
also include details for managers in developing an
inventory and data base for as-built facilities.
Key products available to each sponsor will be materials
to assist building managers in assessing their annual and
life-cycle cost for maintenance, including alternative
assumptions on the effects of deferred maintenance.
Benefits of Project Sponsorship
Improved techniques for evaluating operations and
maintenance programs will allow public agencies to
establish optimum levels in annual budgets, with specific
applications to:
0 Annual maintenance. You will be able to develop an
optimum level of maintenance based on use and building
condition to ensure that expenditures are not only justifi-
able but also quantifiable.
0 Deferred maintenance. You will be able to estimate
the increased costs associated with postponing repairs and
deferring maintenance.
o Building components. You will be able lo utilize
comparative data when reviewing alternatives for new or
replacement systems.
As a project sponsor you will assist in directing the project
and have the opportunity to have your specific needs
considered in developing the project's research activities.
In addition, you will receive periodic reports that will
allow you to begin implementation of the project findings
immediately.
Cost to Participate
Cost is based on the population of the area served by the
public agency. The range of sponsorship fees is from
$750 to S3,000, based on estimated project costs to
APWA for phase two and three of $96,000. The length of
the project is expected to be 30 months. Projects con-
ducted by the APWA Research Foundation are coopera-
tively funded by local, state, and federal agencies through-
out Canada and the United States. Lois cooperative
arrangement allows for a wide distribution of project
costs, greatly reducing the financial burden of individual
agencies to conduct essential research. A funding
schedule and reply form accompany this proposal.
The Next Sirp
To join this research effort, return the cosponsorship form
and designate a representative for followup contacts.
Representative terms from entire chapter:
maintenance costs
