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Azarang Mirkhah, P.E. (1998) Preparing For The Performance Based Fire & Life Safety Codes, http://www.fitting-in.com/ozzie1.htm. |
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ABSTRACT By the year 2000, the International Code Council (ICC) will not only combine all of the different regional prescriptive codes into a single nationwide document, but more importantly, it will publish this country’s first performance based fire and building codes. Currently the codes in this country are primarily “specification-based”, or “prescriptive”. The performance based codes are fundamentally different from the prescriptive codes. With the prescriptive codes, the engineers design to comply with a set of predetermined requirements identified in the codes, based on generic occupancies, constructions, or hazard classifications. In the performance based design
approach, the engineers design to comply with the desired fire and life
safety objectives, outlined as the design criteria, and agreed upon and
approved by the Authorities Having Jurisdiction (AHJs), during the
preliminary phases of the project.
The engineers have the design freedom, to accomplish the set goals,
based on any/all available engineering solutions. This will require a paradigm shift for the AHJs, which means an
attitude and philosophy change, toward the plans review and code enforcement
process. The purpose of this evaluative research paper was to outline some of the major technical obstacles, identify the AHJs’ current level of preparedness, and recommend appropriate measures that the AHJs could take to better prepare them for the successful application of the performance based codes. The following question was addressed: 1. How could the AHJs enhance their technical capabilities and better prepare themselves, to be able to successfully implement the performance based codes? This paper analyzed the implementation impact of a future policy, that does not have a historic precedence. Thus, lack of historical and statistical data, along with inherent ambiguities associated with long range forecasting, could be identified as the main limitations of this paper. Since the performance based codes are heavily dependent on engineering solutions, lack of technical engineering expertise on the part of the AHJs to implement the performance based codes, could be identified as the major problem. The most important recommendation that could technically prepare the AHJs, is to utilize the technical expertise of the fire protection engineers. Basically the AHJs have two general alternatives available to them in addressing this issue. They could either depend on the technical expertise of the fire protection consulting firms in the private sector and obtain their services as their technical consultant, or hire a staff fire protection engineer as their in house technical expert. The AHJs will then have the technical expertise to be able to determine the design criteria for the performance based designs, analyze the fire modeling calculations, determine the integrity of the fire and life safety designs, and participate in the final acceptance and approval of the projects. |
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INTRODUCTION
This research paper has been developed as a natural and logical evolution of the author’s previous Applied Research Project (ARP) titled “Challenges Confronting the Application of Performance Based Fire & Life Safety Codes”, available at the National Emergency Training Center’s (NETC), Learning Resource Center (LRC).
As it should be quite clear from the title, the focus of the author’s previous ARP was on identifying the challenges and obstacles confronting successful implementation of the performance based codes. Also this year’s title should point out that in this current paper the focus was on developing strategies and solutions to resolve the obstacles identified in the previous paper, and to prepare the AHJs for the successful implementation of the performance based codes. Due to the fact that the global subject matter of both of these papers is the “performance based codes”, it is quite natural to find similarities, resemblance and continuity between the content of this paper and the last.
Logic dictates that in order to outline the solutions, one must first identify the subject matter and the problems first. The subject matter and the problems were focused on in great detail in the last paper. Brief reintroduction of the subject, and identification of the previously outlined problems, is a necessary regurgitation process that is essential in developing the solutions, which is the focus of this year’s research paper.
Prior to introducing the concept of the performance based codes, which seems to be the new trend for the upcoming millennium, it is most important to first identify the existing building and life safety codes in the United States. Identifying some of the shortcomings associated with the existing codes, might then explain the reason for the development of this new approach.
Current building and fire codes in this country are primarily “specification-based,” or “prescriptive”. Prescriptive, refers to providing detailed requirements in terms of specific measurements, materials, methods and so forth. These requirements generally have been derived through the accumulated judgment of a group of experts, or by actual field experience, and represent the practical knowledge and experiences accumulated throughout the years.
Prescriptive codes and standards developed by the National Fire Protection Association (NFPA) and the other three model code developing agencies, International Conference of Building Officials (ICBO), Southern Building Code Congress International (SBCCI), and Building Officials and Code Administrators (BOCA), are all similar in their approach toward system designs. The prescriptive codes tend to provide only one methodology for design and construction.
Conversely, a performance based code system takes a proactive approach by clearly stating the intention of the code, and by providing references to the tools or methodologies needed to meet the intent. A performance based code provides guidance on how the intent could be achieved. This includes the application of prescriptive codes and standards currently in use, as well as analysis and design using engineering methods, or a combination of both methods. A performance based code system does not mean the elimination of prescriptive codes, but instead will enhance them.
Problem Statement
All around the country, the majority of the Authorities Having Jurisdiction (AHJs) responsible for the review and approval of the fire and life safety systems and designs, do not possess the extensive technical engineering and practical expertise necessary to evaluate the performance based designs. The problem can be stated as AHJs’ lack of technical engineering expertise and practical experience to implement the performance based codes is one of the most challenging obstacles confronting the successful implementation of the performance based codes.
Purpose Statement
The main purpose of this paper was to identify some of the major technical challenges facing the AHJs in applying of the performance based codes, and propose possible solutions, to better prepare them for their successful implementation. The reason for selection of somewhat ambiguous words such as “ some of the major challenges”, or “possible solutions”, in the purpose statement , is that the performance based codes are not scheduled to be published before the year 2000, and even the first draft scheduled for publication on July 1998, has not been published yet. Therefore, it was difficult to predict all possible problems and the recommended solutions. Due to inherent ambiguity of long range forecasting, the purpose of this paper was limited only to depicting the outlines, rather than exploring the specific details.
There is limited historical research conducted on this subject, since the subject of performance based codes is still in the infancy stages.
In this evaluative research the following question was addressed:
1. How could the AHJs enhance their technical capabilities and better prepare themselves, to be able to successfully implement the performance based codes?
BACKGROUND & SIGNIFICANCE
The performance based codes are the new evolutionary wave that will be sweeping the code enforcement community within the next couple of years. To be able to embrace this evolutionary wave and successfully implement these codes, the AHJs need to change their paradigms. A paradigm is an accepted way in which things have always been done, and is viewed as the way they must continue to be done; some sort of a model or an established mindset. The AHJs should realize that the best solutions to the fire and life safety systems issues in any building, may not necessarily be addressed in the prescriptive codes. Engineering solutions developed, focusing on addressing the desired level of safety outlined in the performance based codes could also meet or even exceed the fire and life safety minimums identified in the prescriptive codes. Having an open mind and the technical expertise to be able to determine the best solutions for these complicated issues, is essential for the advancement of fire protection in the community.
On December 9, 1994, the three model code development agencies, ICBO, SBCCI, and BOCA, formed the International Code Council (ICC), with the intent of developing single model prescriptive codes for the entire country.
As the twenty-first century approaches, what are the issues facing those of us in the code enforcement field?
Everyone involved in code enforcement, as well as in the design and construction industries, is concerned with this far-reaching question. The computer age has brought us within seconds of reaching people anywhere in the world. Technology has evolved to make us members of a world community; we can no longer afford to think strictly in terms of “our jurisdiction” or “our region.” All of us need the tools and information to stay knowledgeable and competitive in this new world community, regardless of the model code organization with which we are affiliated (Codes Forum Editorial, 1996, p.1).
By the year 2000, the ICC will combine all of these regional prescriptive codes into a single nationwide document. The convergence of all of the prescriptive codes into a single document for the entire country, is a monumental accomplishment. The most significant development though, is the fact that for the first time in this country performance based codes are also being acknowledged and are being developed in parallel to the prescriptive codes. ICC has established a two tier parallel process, and has assigned the Prescriptive Drafting Committee, and the Performance Drafting Committee, the task of developing the respective codes separately. In June 97, the ICC Board of Directors authorized the creation of the ICC Code Scoping Coordination Committee, with the responsibility of coordinating the work of the two committees and ensure consistency.
The current plan is to compile performance based provisions in an independent document. This document will contain general intent and scoping statements and a set of topic-specific intent statements. These topic-specific statements will explain, in detail, the expected performance of various building-related aspects such as egress, structural stability and spread of fire. As discussed previously, these expectations could be met by applying a prescriptive approach, a performance approach or a combination of the two. The prescriptive International Building Code (IBC), will therefore exist independently as an acceptable means of complying with the performance based document. In fact, the performance based code system will not be complete, and will not work properly, without the prescriptive code. Additionally, keep in mind that a performance based code structure will no longer consider a performance based design as an alternate to the code, but instead will give equal weight to all types of designs, whether performance or prescriptive in nature. As always, the authority to accept any design will remain in the hands of the enforcer (Armstrong, P., Bowman, D., & Tubbs, B., 1997, p.4).
The concept of performance based design, and the future designs based on the performance based codes, will be heavily dependent on technical expertise and engineering judgments. The engineers have many years of academic and technical training, preparing them for the task. But how do the AHJs and the code enforcement communities perceive these changes? The following quotation from an article in the NFPA Journal, the bi-monthly magazine for the National Fire Protection Association (NFPA), explains some of the difficulties:
It takes a qualified engineer to develop a performance based design, and right now there’s no standardized approach to use. So how does a code official ask critical questions about a performance based design, or decide if it really is equivalent to a building that meets prescriptive codes? How can prescriptive codes evolve to include performance based options? These are the questions with which the building and fire protection industries are dealing right now (Seaton, M., 1997, p. 75).
The majority of the AHJs responsible for review and approval of the fire and life safety systems and designs, do not possess the technical expertise necessary to evaluate the performance based designs. This is one of the most important obstacles that must be addressed before the performance based codes are implemented. The following quotation from an article co-authored by Brian Meacham, P.E., the Technical Director for the Society of Fire Protection Engineers (SFPE), also confirms this concern.
There are, however, a number of perceived disadvantages to performance based design. Especially in the early stages of performance based fire safety engineering, Authorities Having Jurisdiction (AHJs) may be reluctant to approve designs because of a lack of understanding or experience with the approach. This is due in part to the lack of a generally accepted framework for performance based design and the uncertainty in the applicability of tools used within the process (Custer, R.., & Meacham, B., 1995, p38).
Armin Wolski, P.E. a fire protection consultant and one of the speakers at the Second International Conference on Performance Based Codes and Fire Safety Design Methods, held in Maui, Hawaii, on May 1998, identifies a similar concern.
A practical approach to manage a technological risk problem is one that is ready to address reality. It is comprehensible and succinct, it can be executed by qualified people and sufficient human resources are available for implementation. In the prescriptive approach to building fire safety, many in the building industry have sufficient competence to adequately apply prescriptive code requirements to the overwhelming majority of buildings. In performance based building fire safety design, computer fire models are fast becoming the primary analysis and design tools. Are there sufficient trained human resources available to apply these tools (Wolski, A.., Dembsey, N., & Meacham, B,. 1998, p.274)?
Clearly AHJs lack of technical expertise present a major obstacle in the successful implementation of the performance based codes. This is a nation wide problem and is not a local issue limited to a certain code enforcement organizations, such as