A. . , . ..,. . .‘ .. . . .
. . . .. ‘ . . . .. .;‘ . . . . , _ . .

I'IIII'II'IIILIII’.

 

LIBRARY
Michigan State
University

 

 

 

This is to certify that the

thesis entitled
BUILDING REHABILITATION: A PROMISING TOOL FOR
URBAN REVITALIZATION IN DETROIT, MICHIGAN

presented by
’ LOGAN ANJANEYULU

has been accepted towards fulfillment
of the requirements for

MASTER'S degree in BUILDING CONSTRUCTION
MANAGEMENT

MJW

Major professor

 

Date MAY 14, 2003

0-7639 MSU is an Affirmative Action/Equal Opportunity Institution

v— »———- _________

fivv—fl

_,—-

PLACE IN RETURN Box to remove this checkout from your record.
To AVOID FINES return on or before date due.
MAY BE RECALLED with earlier due date if requested.

 

DATE DUE DATE DUE DATE DUE

 

A‘PII 528 @665

 

{AN} 0 2005

 

IRT‘

 

 

 

 

 

 

 

 

 

 

 

 

6/01 cJCIRC/DatoDuo.p65-p.15

 

 

ABSTRACT

BUILDING REHABILITATION: A PROMISING TOOL FOR
URBAN REVITALIZATION IN DETROIT, MICHIGAN

By

Logan Anjaneyulu

In United States, due to the augmented rate of development pattern, urban areas
are now undergoing urban sprawl, in which the cities begin to extend into surrounding
areas as low-density development. Despite the fact that there is a great concentration of
people in urban areas in United States, many cities are reported to be losing population.
This is more evident in many older cities that were developed during the early 1800’s and
1900’s. Since 1950, Detroit has lost nearly half of its population. Revitalization of these
urban centers is essential to sustain valuable urbanization. As development occurred in
these major cities in the early urban era, most of the existing building stock, a vital
component of the built environment, are now aged and are in dilapidated condition.

The goal of this research is to identify and demonstrate the potential of promoting
urban revitalization through rehabilitation of old, vacant and underutilized building stock
adopting the new Michigan Building Rehabilitation Code in the City of Detroit and to
expand the existing urban revitalization models by incorporating this new component
called the built environment along with the existing social, economic, political and
cultural factors. For this purpose, a case study building was identified in Detroit and a
comprehensive code-based rehabilitation cost analysis was performed to identify the
potential savings of using the new rehabilitation code. Based on the identified impacts, an

expanded urban revitalization model was developed to achieve successful urban revival.

Dedication

This thesis would be incomplete without a mention of the support given to me by the
below mentioned people, to whom this thesis is dedicated. They have always sown the
seeds of confidence in me and kept my spirits up when ever it was really needed. Without
their lifting me up when this thesis seemed intemtinable, I doubt it should ever have been
completed. My heartfelt dedications to the people mentioned below for the support and

encouragement provided to me at the right time, in the right manner and in the right

magnitude. I wish I could write more...

Dedicated to “The Syal Family”
Dr. Matt Syal, Ms. Dianne, Sita, Neil, and Leila

For always reminding me a home away from home

&

Dedicated to my Professors at Anna University,
Guindy Engineering College, Chennai (Undergrad)
For providing me the enthusiasm to achieve higher goals

&

Dedicated to my most loving Mom, Dad and Brother
For always being there with me for ever

iii

ACKNOWLEDGEMENTS

I would like to express my sincere gratitude to all those who gave me the possibility to
complete this thesis. First and foremost, I would like to thank Dr. Matt Syal for his continued
support, advice, guidance and valuable thoughts, during my time as a graduate student at the
portals of Michigan State University, which helped me to mold myself into a confident person
both in my personal and professional life. His continued thoughts and guidance through out this
research work and thesis writing were greatly appreciated. I sincerely thank Dr. Matt Syal for
supporting me as a graduate student for the complete two-year study at MSU without which this
would have been a distant dream for me.

I also thank two other members who served on my committee, Mr. Paul Streng and Mr.
Faron Supanich-Goldner. I sincerely appreciate their interest, enthusiasm and confidence in the
research and their taking the time to participate and actively serve on my committee.

I also thank Professor Tim Mrozowski and Dr. Tariq Abdelhamid for their valuable time
and knowledge that helped me during the times I was filled with doubts.

My sincere thanks and appreciation goes to Mr. Howard M. Schwartz and Ms. Elisabeth
Knibbe for accommodating and providing me with required information and taking time to talk
with me during my research study. I found them to be very cooperative and genuinely interested
in my research topic.

I also thank the Urban Affairs Programs for extending their support and funding for this
research. I also thank Ms. Kennetha McFadden for her support whenever needed.

Most importantly, I thank my family and friends who have been very helpful and
supporting me in achieving my accomplishments and for always understanding and being with

me. I also thank my CM friends and research team for their active participation and support.

TABLES OF CONTENTS

LIST OF FIGURES ................................................................................ x
LIST OF TABLES .............................................................................. xii
CHAPTER ONE: INTRODUCTION AND PROPOSED RESEARCH ................. 1
1.1 OVERVIEW ................................................................................. 2
1.2 NEED STATEMENT ....................................................................... 5
1.2.1 AGING OF EXISTING BUILDING STOCK ........................ 6
1.2.2 AGING HOUSING STOCK AND GROWING ..................... 9
DEMAND
1.2.3 NEED FOR DOWNTOWN REVITALIZATION ................... 1 1
1.2.4 BUILDING CODES ..................................................... 12
1.2.5 REHABILITATION COSTS ............................................ 14
1.2.6 TECHNOLOGY AND EDUCATION ................................ 17
1.3 EXISTING RESEARCH .................................................................. 18
1.3.1 URBAN REVITALIZATION .......................................... 19
1.3.2 BUILDING REHABILITATION ..................................... 22
1.3.3 BUILDING REHABILITATION CODE ............................. 23
1.4 SCOPE AND UNIQUENESS OF RESEARCH ....................................... 26
1.5 GOALS AND OBJECTIVES ............................................................. 27
1 .6 METHODOLOGY ........................................................................ 28
1.6.1 PROPOSED RESEARCH ACTION PLAN ......................... 29
1.6.2 COMPREHENSIVE MODEL OF .................................... 31
METHODOLOGY
1.7 CASE STUDY PROJECT TO BE STUDIED ......................................... 36
1.8 DELIVERABLES/OUTCOME ......................................................... 38
1.9 SUMMARY ................................................................................ 38

CHAPTER TWO: LITERATURE REVIEW ............................................... 40

2.1
2.2

2.3

2.4

2.5
2.6

INTRODUCTION ......................................................................... 41
URBAN REVITALIZATION ............................................................ 42
2.2.1 COMPONENTS OF URBAN REVITALIZATION ................ 43
DESIGN
2.2.2 STRATEGIES OF URBAN REVITALIZATION ................... 47
2.2.3 REVITALIZATION EFFORTS IN NEW JERSEY ................. 50
2.2.4 REVITALIZATION EFFORTS IN MARYLAND .................. 52
BUILDING REHABILITATION ....................................................... 56
2.3.1 PRE REHABILITATION CODE INITIATIVE ..................... 56
2.3.2 POST REHABILITATION CODE PERSPECTIVE ............... 59
BUILDING CODES ....................................................................... 60
2.4.1 SUMMARY OF HISTORY AND DEVELOPMENT OF
BUILDING CODES ..................................................... 60
2.4.2 CHRONOLOGICAL LITERATURE OF REHABILITATION
SUBCODE DEVELOPMENT ......................................... 64
2.4.3 MICHIGAN REHABILITATION CODE ............................. 79
TERMINOLOGY .......................................................................... 80
SUMMARY ................................................................................. 88

CHAPTER THREE: CURRENT REHABILITATION PRACTICES AND

3.1
3.2

NEW REHABILITATION PROVISIONS ................ 89
INTRODUCTION ......................................................................... 90
TRADITIONAL APPROACHES TO BUILDING REHABILITATION ......... 91

3.2.1 REHABILITATION PRACTICES USING PERCENTAGE
VALUES .................................................................. 91

3.2.2 BENCHMARKING OF EXISTING STRUCTURES WITH
NEW STRUCTURES ................................................... 96

vi

3.3

3.4

3.5

3.6
3.7

3.2.3 SUMMARY OF CRITICAL ISSUES IN TRADITIONAL

PRACTICE ............................................................... 98
NEW JERSEY REHABILITATION CODE .......................................... 100
3.3.1 MATERIALS AND METHODS ..................................... 102
3.3.2 NEW BUILDING ELEMENTS ...................................... 103
3.3.3 BASIC REQUIREMENTS ............................................ 103
3.3.4 SUPPLEMENTAL REQUIREMENTS ............................. 106
3.3.5 CATEGORIES OF WORK DEFINED BASED ON
SCOPE OF REHABILITATION .................................... 108
3.3.6 ACTUAL PROCESS OF USING THE
REHABILITATION SUBCODE .................................... 122

PROVISIONS OF INTERNATIONAL BUILDING CODE:
CHAPTER 34 ............................................................................. 132

INTERNATIONAL EXISTING BUILDING CODE (IEBC) ...................... 133
3.5.1 ORGANIZATION OF WORK CATEGORIES IN IEBC..... . ..134
3.5.2 COMPLIANCE REQUIREMENTS FOR SUBSECTIONS. . ....137

MICHIGAN REHABILITATION CODE ............................................ 142
SUMMARY ............................................................................... 144

CHAPTER FOUR: REHABILITATION CASE STUDY IN URBAN

4.1
4.2

MICHIGAN — DETROIT ........................................ 146
INTRODUCTION ........................................................................ 147
OVERVIEW OF DETROIT AND ITS EXISTING BUILDING
STOCK ..................................................................................... 148
4.2.1 EXISTING BUILDING STOCK 1N DETROIT — DATA

COLLECTION .................................................................. 1 50
vii

 

 

4.2.2 POTENTIAL REHABITABLE BUILDING STOCK ..................... 161

4.3 REHABILITATION CODE AND COST ANALYSIS IN IDENTIFIED

CASE STUDY BUILDING ............................................................. 162
4.3.1 CASE STUDY BUILDING DETAILS .............................. 162
4.3.2 SCOPE OF THE REHABILITATION PROJECT ................. 171
4.3.3 REHABILITATION WORK SCOPE ANALYSIS ................ 175

4.3.4 COMPREHENSIVE COST ANALYSIS OF
REHABILITATION ................................................... 21 1
4.4 ASSUMPTIONS FOR CASE STUDY ANALYSIS ................................. 222
4.5 LIFE CYCLE OF REHABILITATED BUILDINGS ................................ 223
4.6 SUMMARY ............................................................................... 224

CHAPTER FIVE: IMPACT OF BUILDING REHABILITATION ON
URBAN REVITALIZATION ...................................... 225

5.1 INTRODUCTION ........................................................................ 226

5.2 URBAN REVITALIZATION POTENTIAL BASED ON MARKET

STUDY OF REHABILITABLE BUILDINGS ....................................... 227
5.2.1 STUDY OF EXISTING DEMAND FOR BUILDINGS .......... 228
5.2.2 MAGNITUDE OF POSSIBLE REHABILITATION ............. 230

5.2.3 MARKET CAPTURE RATE FOR REHABILITATED
BUILDINGS ............................................................ 231
5.2.4 IMPACT OF CODE-BASED COST SAVINGS .................. 241
5.3 EXPANDED URBAN REVITALIZATION MODEL .............................. 242

5.3.1 INTRODUCTION TO THE BUILT
ENVIRONMENT FACTOR .......................................... 243
5.3.2 EXISTING URBAN IUEVITALIZATION MODELS ............ 245
viii

5.3.3 EXPANDED URBAN REVITALIZATION MODEL ........... 250
5.3.4 IMPACT OF SUCCESSFUL REVITALIZATION

MODEL .................................................................. 255
5.4 SUMMARY ............................................................................... 257
CHAPTER SIX: SUMMARY AND CONCLUSIONS ................................... 258
6.1 OVERALL SUMMARY ................................................................ 259
6.2 SUMMARY BY OBJECTIVES ........................................................ 262
6.2.1 OBJECTIVE 1 ................................................................. 262
6.2.2 OBJECTIVE 2 ................................................................. 263
6.2.3 OBJECTIVE 3 ................................................................. 263
6.2.4 OBJECTIVE 4 ................................................................. 264
6.2.5 OBJECTIVE 5 ................................................................. 265
6.2.6 OBJECTIVE 6 ................................................................. 266
6.3 LINGERING EFFECTS AND RECOMMENDATIONS ........................... 267
6.4 LIMITATIONS OF RESEARCH ...................................................... 270
6.5 AREAS OF FUTURE RESEARCH ................................................... 271
6.6 CONCLUSIONS ......................................................................... 273
APPENDICES
1. APPENDIX A: REHABILITATION CODE ANALYSIS ....................... 277
II. APPENDIX B: DETROIT MSA MAP .............................................. 340
BIBLIOGRAPHY ................................................................................ 342
ix

 

FIGURE 1:
FIGURE 2:
FIGURE 3:
FIGURE 4:

FIGURE 5:
FIGURE 6:
FIGURE 7:
FIGURE 8:

FIGURE 9:

FIGURE 10:

FIGURE 11:

FIGURE 12:

FIGURE 13:

FIGURE 14:

FIGURE 15:
FIGURE 16:

FIGURE 17:
FIGURE 18:

FIGURE 19:

LIST OF FIGURES

UNITED NATIONS, WORLD URBANIZATION PROSPECTS

AGE OF COMMERCIAL BUILDING STOCK IN UNITED STATES
AGE OF HOUSING STOCK IN UNITED STATES

AGE OF HOUSING STOCK IN US AND MICHIGAN
CALCULATED USING HISTORICAL CENSUS DATA

URBAN REVITALIZATION MODEL

PROPOSED RESEARCH ACTION PLAN

COMPREHENSIVE MODEL OF METHODOLOGY

PHASE 1- CALCULATE COST SAVINGS USING
REHABILITATION CODE

PHASE 2 - MARKET ANALYSIS AND REHABILITATION
RECOMMENDATION

URBAN REVITALIZATION MODEL

COMPONENT MODEL FOR THE LITERATURE STUDY
HISTORIC BUILDINGS THAT ARE VACANT AND ABANDONED
IN DETROIT

PICTORIAL REPRESENTATION OF DOWNTOWN DETROIT’S
EXISTING BUILDING STOCK

A VIEW OF THE ARCHITECTURAL DETAILS OF THE CASE
STUDY BUILDING

FRONT ELEVATION OF THE CASE STUDY BUILDING

CASE STUDY BUILDING (A& B) IN DOWNTOWN DETROIT,
PICTURED IN AUGUST 2002

THIRD FLOOR PLAN OF THE EXISTING BUILDING
DAMAGED EXISTING FLOOR COVERING IN THE CASE STUDY
BUILDING

THIRD FLOOR PLAN OF NEW AFTER-REHAB USE

FIGURE 20:

FIGURE 21:

FIGURE 22:

FIGURE 23:

FIGURE 24:

FIGURE 25:

FIGURE 26:
FIGURE 27:

FIGURE 28:

SIXTH FLOOR LEVEL OF THE CASE STUDY BUILDING,
SHOWING THE EXISTING OPENNESS OF PAST USE GROUP B,
PICTURED IN SEPTEMBER 2002.

SEVENTH FLOOR LEVEL OF BUILDING A WITH LOW CEILING
HEIGHT OF JUST AROUND 7 FEET, MAKING IT NOT
COMPLIANT WITH THE MBC MINIMUM OF 7’6”

TWO OPTIONS DEVISED BY THE RESEARCHER TO
RECONFIGURE THE EXISTING F LOOR-TO-FLOOR HEIGHT TO
MAKE THE CEILING HEIGHT COMPLIANT

EXISTING WALL AND CEILING FINISHES IN THE CASE STUDY
BUILDING AS USED DURING THE EARLIER OCCUPANCY
GROUP B, PICTURED IN SEPTEMBER 2002.

MAJOR COMPONENTS OF EXISTING URBAN REVITALIZATION
MODELS

INTERACTION BETWEEN EXISTING URBAN REVITALIZATION
COMPONENTS

EXISTING URBAN REVITALIZATION MODEL

URBAN REVITALIZATION MODEL: BUILT ENVIRONMENT AS
A SIGNIFICANT FACTOR

URBAN REVITALIZATION MODEL: OUTCOME OF
SUCCESSFUL REVITALIZATION

xi

TABLE 1:

TABLE 2:

TABLE 3:

TABLE 4:

TABLE 5:

TABLE 6:
TABLE 7:
TABLE 8:

TABLE 9:

TABLE 10:
TABLE 11:

TABLE 12:
TABLE 13:

TABLE 14:

TABLE 15:

LIST OF TABLES

CITY OF DETROIT POPULATION FROM 1850 TO 2000

NEW CONSTRUCTION, REHABILITATION, AND DEMOLITION
FOR ONE AND TWO FAMILY DWELLINGS IN THE CITY OF
DETROIT

SUMMARY OF BUILDING PERMITS ISSUED IN CITY OF
DETROIT OVER 30 YEARS

HISTORY OF CODE ORGANIZATIONS

ESTIMATED COST OF REHABILITATION CONSTRUCTION
AUTHORIZED BY BUILDING PERMITS STATEWIDE AND IN
SELECTED NEW JERSEY CITIES: 1996, 1997, AND 1998
REHABILITATION PROCESS WITH PERCENTAGE VALUES
CLASSIFICATION OF BUILDINGS BASED ON OCCUPANCY
HAZARD CATEGORY FOR OCCUPANCY CLASSIFICATION
GROUPS

HAZARD CATEGORY FOR SUBSECTION MEANS OF EGRESS
HAZARD CATEGORY FOR SUBSECTION HEIGHT AND AREA
CLASSIFICATION OF REHABILITATION WORK AND ISSUES
ADDRESSED IN EXISTING STRUCTURES

HAZARD CATEGORY FOR SUBSECTION HEIGHT AND AREA
CITY OF DETROIT AND SOUTHEASTERN MICHIGAN OFFICE
MARKET AS OF DECEMBER 2002

COMPREHENSIVE LIST OF EXISTING VACANT BUILDINGS IN
THE CITY OF DETROIT THAT ARE DECLARED TO BE IN THE
VACANT / NOT IN USE CATEGORY UNDER THE REGISTER OF
WAYNE COUNTY, MICHIGAN BY THE NATIONAL REGISTER
OF HISTORIC PLACES

FLOOR AREA DESCRIPTION OF THE CASE STUDY BUILDING

xii

TABLE 16:

TABLE 17:

TABLE 18:
TABLE 19:

TABLE 20:

TABLE 21:

TABLE 22:

TABLE 23:

TABLE 24:

TABLE 25:

TABLE 26:

TABLE 27:

TABLE 28:

DETAILS OF CEILING HEIGHTS IN BUILDING “A” IN CASE
STUDY BUILDING

HAZARD CATEGORY FOR SUBSECTION LIFE SAFETY AND
EXITS

HAZARD CATEGORY FOR SUBSECTION HEIGHT AND AREA
HAZARD CATEGORY FOR SUBSECTION EXPOSURE OF
EXTERIOR WALLS

SUMMARY OF CRITICAL DIFFERENCES IN THE PROVISIONS
OF THE MBC AND THE MEBC RELATED TO STAIRWAYS, A
MEANS OF EGRESS COMPONENT

SQUARE FOOT COST OF APARTMENT (8-24 STORY)

NEW CONSTRUCTION VS REHABILITATION COST
COMPARISON TABLE IN CASE STUDY BUILDING
SUMMARY OF COST SAVINGS IN REHABILITATION USING
MEBC OVER MBC

DRAW AREA DISTRIBUTION OF MARKET POTENTIAL IN THE
CITY OF DETROIT

DELINEATION OF ANNUAL MARKET POTENTIAL FOR
DOWNTOWN DETROIT

MARKET POTENTIAL FOR NEW MARKET-RATE HOUSING
UNITS IN DOWNTOWN DETROIT CHARACTERIZED BY
GENERAL HOUSEHOLD TYPE AND HOUSING UNIT TYPE
ANNUAL CAPTURE OF THE MARKET POTENTIAL FOR
DOWNTOWN DETROIT DEPENDING ON HOUSING TYPE
RANGE OF RENTS, PRICES, AND SIZES FOR NEW DEVELOPED
MARKET—RATE RESIDENTIAL UNITS IN DOWNTOWN
DETROIT

xiii

 

 

 

CHAPTER ONE

INTRODUCTION AND PROPOSED RESEARCH

1.1 OVERVIEW

Over the centuries, cities worldwide have served as centers of economic development in
terms of fiscal growth, quality of life and new opportunities. In the year 2000, over 47%
of the world’s population resided in urban areas, and researchers predict that by 2025,
over 60% of the Earth’s people will live in urban areas [Gow and Pidwimy 1996]. A fast
paced urbanization is o ccurring in d eveloping c ountries w hen c ompared to the c urrent
development rate of developed countries. While urban growth in developing countries is
around 3.5% per year, the developed countries have a dawdling growth of less than 1%
per year, as these areas underwent urbanization almost a century ago. The fact that over
70% of the population in the United States and Europe live in urban areas rationalizes the
kind of development that occurred in the early 1900’s. Figure 1 signifies the level of
world urbanization comparing some of the most developed countries with that of the

developing countries.

I [311950 I 1970 El 2000 El 2015
30

 

 

Population (in millions)

 

 

Figure 1: United Nations, World Urbanization Prospects [Modified from PRB 2000]

In United States, due to the augmented rate of development pattern, urban areas
are now undergoing urban sprawl, in which the cities begin to extend into surrounding
areas as low-density development. Almost three quarters of the United States’s
population lives in urban areas while one quarter lives in rural settings. Despite the fact
that there is a great concentration of people in urban areas in United States, many cities
are reported to be losing population. This is more evident in the older cities that were
developed during the late 1800’s to the early 1900’s. For example, since 1950, Detroit
has lost nearly half of its population. Similarly, between 1980 and 1990, the following
cities became smaller: Pittsburgh (-12.8%), St. Louis (-12.4%), Cleveland (-1 1.9%), New
Orleans (-lO.9%), Buffalo, (-8.3%), Chicago (-7.4%), and Atlanta (-7.3%). Other
shrinking cities include Philadelphia, Baltimore, Washington, DC, Toledo, Cincinnati,
Denver, Memphis, and Kansas City [WRI 2002].

Why is this happening? Revitalization of these old is needed to sustain this
valuable urbanization. The focus of this study is to look at these dying cities and explore
the feasible measures to revitalize them. For example, someone who has not been in
Detroit cannot imagine the wild disparity between the potential beauty of structures like

the old Michigan Central Station, the Cadillac Hotel and the Broderick Tower and how
they look now in their boarded—up, vacant state [Detroit 2002]. Detroit is the economic
Cap ital of Michigan with job and business opportunities. However, it is surprising to note
that Detroit has become the first major city in US history to have fallen below a
population of 1,000,000. Newly released 2000 US Census data shows the city to have a
population of 951,270, down 7.5 % from the 1,027,974 registered in the 1990 census.

This is in contrast to other large Eastern and Midwestern central cities that experienced a

k .

 

population turnaround (such as New York, Boston, Chicago, and Minneapolis). Detroit
reached its population peak at 1,850,000 in 1950. Table 1 shows the wide range of

population fluctuations in the city over the period, 1850 to 2000 [DEM 2002].

Table 1: City of Detroit Population from 1850 to 2000 [DEM 2002]

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Year Population Increase %
1850 21, 000

1860 46, 000 25, 000 1 19.0%
1870 80, 000 34, 000 73.9%
1880 116, 000 36, 000 45.0%
1890 206, 000 90, 000 77.6%
1900 286, 000 80, 000 38.8%
1910 466, 000 180, 000 62.9%
1920 994, 000 528, 000 113.3%
1930 1,568, 000 574, 000 57.7%
1940 1,623, 000 55, 000 3.5%
1950 1,850, 000 227, 000 14.0%
1960 1,670, 000 -(180, 000) -9.7%
1970 1,514, 000 -(156, 000) -9.3%
1980 1,203, 000 -(311, 000) -20.5%
1990 1,028, 000 -(175, 000) -14.5%
2000 951, 000 -(77, 000) —7.5%

 

Many social, economical and physical factors contribute to this out-migration of
population from downtown cities, a critical issue. Similar to social and economic factors
like higher central city crime rates, declining neighborhood quality, poor central school
education, higher c entral city p ublic s ervice c osts, and inferior q uality o f s crvices, the

built environment factors such as poor infrastructure and 01d, dilapidated building stock

alSO contribute to this out-migration from cities. Availability of healthy infrastructure,

k

 

increased economic activities; good schools, low crime rate, quality of life and new
opportunities contribute to the overall model of urban revitalization. This study’s focus is
on the built environment factors, especially the old, vacant and/or underutilized building

stock, as a significant physical pull factor in achieving urban revitalization in Michigan.

1.2 NEED STATEMENT

One key resource for urban development is the availability of infrastructure. As
development occurred in these downtown urban centers in the early urban era (during the
late 1800’s to the early 1900’s), most of the available infrastructure is now aged and in
dilapidated condition. The important infrastructure segment left unnoticed or ignored is
the valuable commercial buildings along the majestic downtown crossings. There is a
great potential in rehabilitating this ignored infrastructure, and converting them to
suitable uses that can attract people back to these historically significant downtowns. A
possible solution for this urban revitalization is the economical conversion of old/vacant
office buildings and commercial centers into a large residential use. This study is focused
on reducing the wide disparity that exists in the usage of old, vacant building stock in
Detroit. The potential is high for economically converting smaller, mid-block, and high-
rise office buildings no longer reasonable for office use into residential units.

The greatest physical asset offered by most older buildings is location. In many
major cities, older buildings occupy prime downtown locations while industries are
located near the Central Business District (CBD). The existing old/vacant buildings were

built in the early 1900’s and most of these buildings are either not in use or underutilized.

 

This commercial building stock may be converted into residential use at an affordable
cost using the new Michigan Building Rehabilitation Code, which incorporates the factor
of economical feasibility in rehabilitating the stock of older buildings. The significant
element of this research work is to identify the potential of building rehabilitation
adopting the new Michigan rehabilitation code in encouraging urban revitalization in
overlooked downtown areas of Detroit. The cost—benefit factors in adopting the new
rehabilitation code over the existing building codes are analyzed and its impact on urban

revitalization is investigated.

1.2.1 AGING OF EXISTING BUILDING STOCK

In United States, the stock of existing commercial, residential and industrial
buildings continues to age. In 1995, the median age of the housing stock was nearly 30
years, and almost 34% of housing units were constructed before 1950. The situation of
commercial and industrial buildings is no different from that of the residential stock.
Figures 1 and 2 represents the age of the commercial and residential building stock in the
United States, categorized as built before 1945/1950, from 1945/1950 to 1980, or after

1980.

AGE OF U.S. COMMERCIAL BUILDING STOCK: 1999

so
EIBefore 1945 E
50 r ' [31946-1980 "
CIAfter1980 ‘

 

 

 

 

 

 

 

 

 

 

 

LU
0 40
<
E
I u, 30 A
i g 473
‘ E 20 '
32.9
10 ~ 19.8 ,
0 .. -_
YEARBUILT

Figure 2: Age of Commercial Building Stock in United States [Energy 2001]

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

I If, EH, ,, ,7, ,
l AGE OF U.S. HOUSING STOCK
60 ~
3 lrrrrrfi'ée‘feiét—QSSO
l 50 . [31950-1980 I
I . DAfter1980
l m [7“ ”"7 7.7..7... ‘
I g 40
i I-
i E 30 ——~
I o
E
l 20 43.9 ,A H“ _
10 .. ______ 22.5 .__..._fi.
0
l

I YEAR BUILT

Figure 3: Age of Housing Stock in United States [US Census 2000]

These residential and commercial buildings represent a national asset vital to meeting the
demand for housing and commercial development. In almost all of the developed U.S.
states, the primary cities that facilitated development in the early 1900’s began to lose
population as people started migrating out of cities in search of better living conditions.
This left most of the city buildings deserted due to improper maintenance and upkeep. As
there were no occupants, these buildings deteriorated in quality over time, leaving the
concrete blocks aged without rehabilitation. Michigan’s case is no different.

Detroit, Michigan’s only city with a population over 250,000, lost 76,707 or 7.5%
of its 1990 population, as shown in Table 1 earlier. Meanwhile, the suburbs of the
Detroit/Flint/Ann Arbor metropolitan region increased by 7%, and suburban districts of
other urban counties (for example, Kent, Ingham, and Ottawa) increased by 12.6%
(Suburbs of Detroit metro) [Menchik 2002] This sprawl left most of the historically
important buildings unoccupied. Most of elegantly lined-up high-rise buildings along
Woodward Avenue in downtown Detroit are currently vacant for more than twenty
consecutive years. The majority of these structures that are aged need to be rehabilitated
to attract people to move back into the cities. On a fifty-year life cycle theory of
buildings, almost half of the available building stock in Michigan is aged, and in Detroit,
more than 70% of the existing stock is aged and needs rehabilitation. Similar situations
prevail in most developed areas like Boston, Chicago, Minneapolis, New York, New

Jersey, and Cleveland, which also need revitalization of aged building stock.

1.2.2 AGING HOUSING STOCK AND GROWING DEMAND

For a sustainable urban model, housing is one key element that keeps people intact with
the urban neighborhoods. As the existing U.S. housing stock ages, the need to update and
modernize becomes critical to continued use. Figure 4 demonstrates that around 43.9%
of housing units currently available in the U.S. were built during the period 1950 — 1980,
and around 33.6% of the units were built before 1950. Michigan’s housing conditions are
similar to those of the nation. The need and opportunity for rehabilitation work is even
greater in older cities such as New York, where almost 75% of the cost associated with

building permits was for work on existing houses [Syal et a1. 2002]

 

Age of Housing Stock in US and Michigan

 

 

 

 

 

 

 

 

 

    

Percentage of Housing Stock
N
01

 

 

Before 1950 1950 - 1980 After 1980
13 us Stock

Year Ran e
g I Michigan Stock

 

 

 

Figure 4: Age of Housing Stock in US and Michigan Calculated Using Historical Census
of Housing Table Data [US Census 2000]

In Michigan, there are 3.85 million housing units, and around half of these were
built in 1959 or earlier [MI-Census 1990]. Around 1.23 million housing units have
already crossed the fifty-year age threshold and may be candidates for rehabilitation.
However, the cost of rehabilitation is often so significant that it precludes the reuse of
aging housing stock, leaving it abandoned to deteriorate further. As shown in table 3,
according to the Southeast Michigan Council of Governments, the city of Detroit issued
20,676 building permits for new residential building construction over a thirty-year
period from 1970 to 2002, whereas 165,012 permits were issued for the demolition of
residential buildings during the same period [SEMCOG 2002]. This indicates significant
potential for rehabilitation-related work in the city. If even a small percentage of these
buildings could have been rehabilitated as affordable housing, it would have made a huge
difference in the affordable housing crisis in the city.

Population growth has always been recognized as a primary driving force for
housing demand, but new recognition has centered on the vital factor of an aging stock of
available housing. At present, there is a great move to bring population back to the cities
as a revitalizational move. The crucial factor in achieving success in revitalization is
providing healthy homes in the cities. This aging housing stock needs to be rehabilitated
to provide better living conditions. In addition to the existing housing stock, cities have a
great potential for converting vacant or underutilized commercial buildings to market-rate
residential structures, thereby increasing the housing stock in the commercial center. For
example, Detroit has an amazing stock of buildings ranging from high-tech office and
commercial structures to luxury condominiums. Detroit’s developmental problems are

well known, and the city reached its depths of despair in the 1980’s. Numerous

10

commercial buildings in the Detroit downtown area are still vacant and underutilized.
These b uildings c an b e converted to h ousing units to s erve the d emand for a ffordable
housing for people at varied income levels. This conversion encourages mixed use of
buildings, bringing more harmony to the urban lifestyle. The aging stock and growing

demand for housing instigate the need for revitalization through rehabilitation.

1.2.3 NEED FOR DOWNTOWN REVITALIZATION

Downtown areas are dying as people are moving to the suburbs in large numbers. These
historically significant downtowns must be revitalized to bring back the charms of
downtown living. Downtown revitalization may call up visions of new stores and
buildings rising from decaying downtowns. In reality, downtown revitalization is a
people process. Through it, people make decisions about their community and work to
make those decisions bear fruit. It is more realistic to envision downtown revitalization as
a progression of decision-making steps that, through commitment and work, finally result
in a dynamic downtown.

In downtown Detroit, the new and large projects like Compuware‘s Headquarters,
sports 3 tadia, c asinos, the R enaissance C enter (under G M o wnership), and s o o n h ave
received a lot of attention. The Stuber-Stone, the Venn, the Garfield Building, Canfield
Lofts, the Gem Theatre, the "Good Housekeeping" building, the Addison, the CPop
Gallery, Brush Park mansions, Ferry Street mansions, and too many more to mention are
all welcome additions [Detroit 2002]. Nevertheless, there is an immense need to bring the

decaying buildings along the historic downtown corridors back to use.

11

 

1.2.4 BUILDING CODES

Building codes govern the way buildings may be built and used. Building codes are
primarily developed to protect the life, safety and health of the public. When these codes
were first developed, they were used principally for new construction, thereby
eliminating unsafe buildings from use. Adaptive re-use of existing buildings is an
effective tool in fighting urban sprawl and revitalizing urban centers, bringing peOple
back to cities.

Building rehabilitation increases the available housing stock and fosters new
businesses in central city areas. Most building codes, however, actually discourage
building rehabilitation, as they are primarily intended for new construction and minor
changes to existing structures. While it is relatively straightforward to set out
requirements for the design and construction of new buildings, predictable regulations for
the rehabilitation of older buildings have proven a challenge. Building officials generally
have wide discretion in determining the nature and extent of improvements required
when buildings are renovated or converted to new uses [Hicks 2000]. The traditional
building codes are formulated for new construction with little emphasis on rehabilitation
work, forcing b uilding o fficials to impose e xcessive, non-cost—effective regulations for
rehabilitation permits.

There are set laws for building rehabilitation, which in most cases make it more
cost effective to pull down the existing building and construct a new building. Due to the
lack o f u niforrnity in regulations, (1 evelopers o ften avoid renovating b uildings b ecause

they are unsure of the cost of the project. As a result, existing buildings, usually found in

12

older urban centers, become underutilized. New Jersey became the first state to address
this problem in January 1998 when the Department of Community Affairs created the
Code for Rehabilitation of Existing Buildings, or the rehabilitation subcode [Hicks 2000].

Any prospective buyer of a building will calculate the economies of scale in
purchasing it, keeping in mind the investment that must be made in the building for it to
become a viable, income-producing piece of property. This factor, requiring owners to
spend in excess to rehabilitate the property, has discouraged development through
rehabilitation. The application of existing building codes for such rehabilitation proves to
be highly uneconomical in rehabilitating buildings and bringing them back to use. The
drive for a separate code for rehabilitation, started by New Jersey and then followed by
the U.S. Department of Housing and Urban Development (HUD), which published the
Nationally Applicable Recommended Rehabilitation Provisions (NARRP), inclined states
to think about the need for rehabilitation of old buildings to achieve revitalization.

The International Code Council (ICC) made efforts to unite different building
codes into one single code, the International Building Code (IBC), as a national move to
adopt a unified c ode system in the U nited States. Different states adopted this unified
code, with specific amendments made to the IBC suiting their local conditions and needs.
Surprised at the pace of the move for rehabilitation of existing buildings, the ICC more
recently felt the need for a separate unified code for rehabilitation of existing buildings,
forming the International Existing Building Code (IEBC), which will be in place from the
year 2003. The final draft of this IEBC is now available. Following the national move,
Michigan felt the importance of this existing building code, as evident from the article,

“Implementing a Building Rehabilitation Code in Michigan” [Syal and Shay 2001].

13

 

A unique building code for rehabilitation that can bring existing structures back to use
less expensively will encourage owners and developers to rehabilitate buildings instead
of demolishing them. In many cases, it is simple to make a turn-of—the-century building
comply with this rehabilitation code. Foreseeing the above stated need, this work is
intended to investigate the potential of Michigan’s new building rehabilitation code to

achieve the greatest savings in building rehabilitation, thus revitalizing urban areas.

1.2.5 REHABILITATION COSTS

Modern building codes treat unique older structures like outlaws. Surviving building
elements in existing structures, such as the windows, stairways, and ceilings, are often
ripped out and replaced to conform with the modern codes. In most cases, this
replacement is performed even though the existing elements are perfectly safe and sound.
Local codes requiring entire existing buildings to meet modern standards ultimately make
rehabilitation highly non-lucrative. The elevated cost of rehabilitating the structures, in
many cases, impels building owners to tear down the entire structure. More often, these
costs make rehabilitation a less profitable investment and potentially leave structures
abandoned, causing urban uncohesiveness.

Table 2 demonstrates the number of building permits that were issued in the City
of Detroit over thirty years and the cost involved for each type of permit: new
construction and demolition. Table 3 depicts the number of structures that were
demolished over the past thirty years. The critical factor in this immense demolition is the

cost of rehabilitating these structures.

14

Table 2: New Construction, Rehabilitation, and Demolition for One and Two
Family Dwellings in the City of Detroit [Detroit 1999]

 

 

 

 

 

New Cost Additions & Cost Demolition
Type Construction (In Millions) Alterations (In Millions) Permits
Permits Permits
One Faimly 163 $16.94 4,808 $42.99 1,914
Dwellings
TWO FEM” 2 $0.01 479 $4.54 566
Dwellings
Total 165 $16.95 5,287 $47.53 2,488

 

 

 

 

 

 

New Jersey took a lead in identifying the need for, developing and adopting the nation’s

first rehabilitation sub-code to successfully remove this major impediment to

redevelopment in most of its cities and downtown areas.

For example, William A. Connolly, a key person in New Jersey rehabilitation

code development as director of the division of codes and standards for the state, explains

the impact of rehabilitation-specific code on the cost of rehabilitation in New Jersey. It is

demonstrated that there is as much as 50% savings by using rehabilitation code over the

codes for modern buildings. In an article published by Ben Forest, it is validated that a

four-story senior citizen complex and day care center at 203 Academy Street in Jersey

City saved $391,000 in building costs compared to those under the existing code [Forest

1999].

15

 

Table 3: Summary of Building Permits Issued in City of Detroit over 30 Years

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

[SEMCOG 2002]
New Units Permitted Demolition Permits Totals
Year Single Two Multi Single Two Multi New Demo Net
Family Family Family Family Family Family Units Units

1969 350 14 222 0 0 1.339 586 1.339 -753
1970 828 20 801 683 836 939 1,649 2.458 -809
1971 788 36 861 1,011 1.130 912 1.685 3.053 -1.368
1972 379 12 1,747 3,001 2,690 1,014 2,138 6,705 -4,567
1973 61 2 956 3,583 2,222 1.592 1.019 7,397 -6.378
1974 20 4 868 2,016 1.644 2.021 892 5,681 -4,789
1975 13 O 1.193 1,594 1 252 2.366 1,206 5.212 -4.006
1976 11 0 577 2,741 1,428 2,786 588 6,955 -6.367
1977 19 0 377 1,922 1.296 2,733 396 5,951 -5.555
1978 9 0 610 2,423 1.464 1,784 619 5.671 -5.052
1979 0 775 2,178 1,032 1,228 781 4.438 -3,657
1980 13 0 915 2,165 2.236 1,104 928 5,505 -4,577
1981 0 1,365 2,482 3,340 1,850 1,372 7,672 -6.300
1982 40 1,238 1,497 1,216 1.304 1,281 4.017 ~2,736
1983 9 O 156 1,173 2.272 1.728 165 5.173 -5,008
1984 12 0 57 1,192 1,598 1.566 69 4,356 -4.287
1985 2 4 213 1,097 2.004 1.736 219 4,837 -4._618
1986 1 0 123 1,548 2,080 2,428 124 6,056 —5,932
1987 2 0 298 1,821 1.562 1,413 300 4.796 -4.496
1988 3 0 362 1,609 1,420 3,272 365 6,301 -S,936
1989 1 0 345 2,936 1,954 1,028 346 5,918 -5,572
1990 0 0 659 1,945 1.512 1,274 659 4,731 -4,072
1991 18 0 338 1,163 920 1,624 356 3,707 -3,351
1992 163 4 333 1,702 998 740 500 3,440 -2,940
1993 40 2 201 1,296 748 1.160 243 3.204 -2,961
1994 39 0 356 964 682 627 395 2.273 -l,878
1995 67 0 138 2,391 1,414 2.144 205 5,949 -5,744
1996 35 20 31 1,223 864 6,345 86 8,432 -8,346
1997 68 2 25 2,167 1.156 1,515 95 4,838 -4.743
1998 79 2 235 1,984 928 1,541 316 4,453 4137
1999 176 4 374 1,914 1.132 1.771 554 4,817 —4,263
2000 84 18 216 1,517 768 2.225 318 4.510 4192

£01 62 4 155 2,345 1.120 1.212 221 4,677 -4,456
2002 0 0 0 223 162 105 0 490 490
Totals 3,368 188 17,120 59,506 47,080 58,426 20,676 165,012 -144,336

 

l6

 

Under the old code, the rehabilitation would have cost $1,536,000; under the new
rehabilitation code, it cost $1,145,000. Before the rehabilitation, the building — formerly
an apartment and retail complex — had been vacant for eight years.

The success of the rehabilitation code in New Jersey, followed by its success in
Maryland and other states, has encouraged Michigan to develop its own building
rehabilitation code, which is based on the International Existing Building Code (IEBC)
developed by the International Code Council (ICC). This new Michigan rehabilitation
subcode should promote renovation of older buildings, thereby affecting the over all
model of urban revitalization. The demolitions permits that total more than 8 times the
amount of the new construction, as seen in Table 3, can be radically decreased in number,

bringing effective revitalization to Michigan, and Detroit in particular.

1.2.6 TECHNOLOGY AND EDUCATION

Rehabilitation of existing buildings is an imperative mechanism to revitalize and to meet
the growing demands of urban centers. Scores of research are conducted on technologies
and processes to reduce the cost of rehabilitation. Even though the rehabilitation industry
tends to be very slow in adopting new technologies, a survey of new technologies could
help promote more cost-effective practices. This includes advances in materials,
products, tools, equipment and systems and their applications, methods used during the
design and construction process, and new and improved equipment used in diagnostics or
construction activities. In addition to rehabilitation code research, such technology

innovations could also significantly impact changes in revitalization. While there is a

17

clear move for new technologies, advances and innovations in the existing rehabilitation,
technologies should be brought by amplified research activities for materials, products,
tools, equipment and existing systems.

Some of the major technology innovations in terms of rehabilitation construction
methods and materials, design manuals for rehabilitation, innovative site utilities, Cost
Effective Energy Conservation Standards (CEECS) in existing buildings, innovations in
rehabilitating septic systems, electrical and plumbing technology guidelines, thermal
compliance for old buildings, and on-site waste water treatment and disposal systems for
existing urban structures can cause accelerated revitalization in terms of technological
back up for innovative codal solutions [HUD 1995]. Rehabilitation technology training
must be initiated to implement successful research in real rehabilitation fields.

Owners of old, dilapidated, unused and under used buildings in urban corridors
must be educated of the need for revitalization through rehabilitation to bring real change
in existing urban settings. Developers, owners, and city officials must be made aware that
Rehabilitation subcode reduces project costs in order to encourage them to implement it.
Training programs, continuing education for contractors and developers, and published

research -results will initiate this mass building rehabilitation.
1.3 EXISTING RESEARCH
The three major research areas that initiated this study are the need for building

rehabilitation, manifestation of the building rehabilitation codes, and urban revitalization

with growing demand for urban infrastructure. As urban problems result from intertwined

l8

social and economic factors, combating these problems requires a collaborative effort
from various entities involved in the urban conglomerate. No extensive research has been
performed investigating building rehabilitation as a vital tool to achieve urban
revitalization. This is the unique target 0 f t his research w ork. T he s econd c hapter, the
literature review, details various literature contributing to this discussion. A variety of
research articles and reports related to urban revitalization and building rehabilitation

code serve as sources of existing research.

1.3.3 URBAN REVITALIZATION

Urban revitalization is an economic and social strategy that has been necessitated by
decreased interest in both residential and commercial buildings within major cities.
Throughout the United States, many major metropolitan cities have witnessed this
decreasing interest pattern over the years. Revitalization initiatives have been created and
are being effectively implemented in various cities across the United States. These
initiatives are described as comprehensive, integrated strategies and initiatives,
multidimensional and holistic in n ature, with a focus 0 n s ocial, economic, p hysical o r
political components of community development [Kadushin 1996]. The study performed
by Abraham Kadushin [1996] on the Neighborhood Transformation Design Model at the
University of Michigan illustrates a comprehensive community revitalization design
model highlighting planning processes, neighborhood stabilization, children and families,
sustenance, shelter and security, and culture and spirit. The author synthesized all these

components to constitute a comprehensive strategy for the diagnosis and treatment of

19

many dysfunctional segments and systems of a declined neighborhood, such as housing,
human services, health care, education, employment, and safety. Figure 5 modifies the
ideas of Kadushin [1996] into a model form of urban revitalization encompassing social,
physical and economic fabrics, which are the essential ingredients of a neighborhood
transformation design model.

Scholars in urban studies who feel the need for urban revitalization have
performed in-depth research identifying the social, economical and political factors
hindering the growth of distressed cities. The study performed by Sherie Mershon [2000]
on corporate social responsibility for effective urban revitalization highlights the need for
participation of private, business-sponsored civic associations to participate in
revitalizing deprived cities. In addition to transforming the city’s social image and
growing its economy, this study was also focused on defending the local autonomy that
hinders revitalization. Another case study by Richard Kujawa [1990] highlights the local
social and political efforts with strong emphasis on economic restructuring, critical
components of urban revitalization.

This study examines these comprehensive revitalization ingredients and models
and analyzes key factors that affect revitalization. Based on the existing information, the
author proposes to improve the existing urban model by adding a physical factor called

building rehabilitation to the various parameters affecting revitalization (Figure 5).

20

 
   
 
        
     

Process & Stabilization
Community Rebuilding
and Stabilization of the
Existing Physical, Social
and economic fabric

 
 
   
  
 

Culture and Spirit

Rebuilding communities b
restoration of an ethical
culture — Human Values

with worth, dignity, respec

Children, Youth and
Families - Human
services Community
Centered activities,
facilities and programs

  

    
  
 

 

     

\ V
URBAN
REVITALIZATION

FACTOR

 

 

  
  

  
      
     
     
     
   
   
    
   
 

Sustenance
Regenerate healthy local
economic system — Urban
Economic self-
sufficiency and

Sound, safe shelter in
secure environment to all
- Homeownership to
promote urban stability

Shelter and Security ll

BUILT ENVIRONMENT
Rehabilitation of
Old/vacant building stock
and stimulate economic
growth inviting people back

  

Exfifing

Proposed

Figure 5: Urban Revitalization Model [Modified from Kadushin, 1996]

21

   
  

1.3.4 BUILDING REHABILITATION

As buildings age, the need to rehabilitate them and keep them up to occupancy
standards necessitates the proper tools and techniques to perform building rehabilitation.
Even though much research has been performed to identify technological solutions for
building rehabilitation, very little emphasis has been placed on identifying the effect on
and worth to urban revitalization. Providing new building stock is not the only way to
meet the growing demand for commercial infrastructure. Rehabilitation, renovation, or
improvement in the value of vacant and underutilized commercial buildings can
contribute considerably to overall urban revitalization.

“Innovative Building Rehabilitation T echnologies" [HUD 1995], a study
performed by the U.S. Department of Housing and Urban Development (HUD), explored
new opportunities for cost-effective rehabilitation techniques. This study also identified
the most effective ways to regulate the rehabilitation of existing buildings. In “Innovative
Rehabilitation Provisions” [NAHBRC 1999], another HUD study, research efforts
recognized the need for a new and predictable approach to rehabilitation regulations,
identifying the prevailing difficulties for building rehabilitation as interpreting and
dealing with the current inconsistent and unrealistic requirements that discourage
renovation. The increased interest in and initiatives for building rehabilitation are a

positive signs for urban revitalization.

22

1.3.5 BUILDING REHABILITATION CODE

The volume of rehabilitation work is growing throughout the United States.
Rehabilitation expenditures have steadily increased from $11.4 billion in 1962 to over
$120 billion in 1998 [Census 1999]. These numbers clearly indicate the need to develop a
nationwide building strategy that includes a focus on rehabilitation. One major aspect of
this strategy is to create a building rehabilitation code independent of the code for new
modern buildings. Rehabilitating dilapidated building stock will pave the pathway for
better 11 rban infrastructure. N ew Je rsey b rought the b uilding rehabilitation issue to the
forefront due to its own growing need; based on a fifty-year life cycle; about half of all
houses were candidates for possible rehabilitation within the next ten years [Syal and
Shay 2001].

New Jersey’s initiative in developing a rehabilitation code was also due to years
of ambiguity in traditional building codes. From the early years of building codes until
the late 19705, the three major building codes (BOCA, SBBCI, and ICBO) used a
formula called the 25/50 rule to determine the acceptability of proposed rehabilitation
work [NAHBRC 1999]. The 25/50 rule allowed a considerable amount of latitude for the
local building official to make changes to a proposed plan. Many building professionals
cited this latitude as an obstacle to rehabilitation work. Without knowing the work’s
exact scope and associated requirements, the rehabilitation project’s cost could not be
estimated accurately. As a result, the estimators were forced to apply additional safety
factors to their estimates and the resulting estimated cost numbers were often high

enough to discourage rehabilitation. The building industry strongly felt that, by

23

developing rules that could be accurately applied, rehabilitation projects would have
realistic costs [NAHBRC 1999].

During the 1970's, there was a growing awareness that building codes would have
to be adjusted somehow to address rehabilitation. In 1978, the U.S. Congress recognized
the need for and entrusted the Department of Housing and Urban Development (HUD)
with the task of developing guidelines to assist with the rehabilitation industry. These
guidelines were not meant to be adopted as a building code; instead, they were meant to
supplement the current building codes. In 1995, HUD organized a symposium and, later,
a survey on the rehabilitation guidelines in order to assess their effectiveness. The final
analysis indicated that the guidelines were not sufficient for rehabilitation use and would
need to be substantially expanded in order to be effective [Survey 1995].

The analysis of guidelines provided an impetus for the development of
independent rehabilitation building codes. New Jersey began developing a separate
rehabilitation subcode [Connelly 1998, Forrest 1999] which was the basis for the
national version of the rehabilitation subcode, developed by HUD. The final HUD
subcode is referred to as the Nationally Applicable Recommended Rehabilitation
Provisions (NARRP) [NAHBRC 1999]. This version of the code is used as a basis to
develop independent rehabilitation codes for many states, including Michigan.
Nationwide recognition of the need for a separate code for existing buildings encouraged
the International Code Council (ICC) to expand Chapter 34 of the International Building
Code (IBC), which covered existing buildings, into a separate exhaustive code called the
International Existing Building Code (IEBC). This code will be available for use by

January 2003. Many states started developing statewide existing building codes based on

24

the available final draft ofthe IEBC. Michigan is no exception in c apitalizing o n this
outcome of the ICC. Michigan has already developed a detailed statewide code called the
Michigan Existing Building Code (MEBC), which is based on the final draft of the IEBC.

The author will focus on analyzing the impact of Michigan’s new rehabilitation
subcode on building rehabilitation leading revitalization in urban Michigan. Some of the

key research publications used by the author are:

0 National Survey of Rehabilitation Enforcement Practices, UIUC and HUD, 1995

0 Uniform Construction Code — New Jersey rehabilitation subcode developed and
implemented in 1998 by the New Jersey Department of Community Affairs,
Division of Codes and Standards

0 Innovative Rehabilitation Provisions - Demonstration of the Nationally
Applicable Recommended Rehabilitation Provisions (NARRP), prepared by HUD
and the NAHB Research Center, 1999

0 Implementing a Building Rehabilitation Code in Michigan - policy paper,
Community and Economic Development, Michigan State University. Published
by Matt Syal and Chris Shay, 2001.

0 Smart c odes in Your C ommunity — A G uide to B uilding R ehabilitation C odes.
Prepared by HUD, 2001.

0 Other research articles about the rehabilitation code and urban revitalization.

25

1.4 SCOPE AND UNIQUENESS OF RESEARCH

The scope of this research is to identify and demonstrate the significance of
building rehabilitation as an effective urban revitalization tool. In addition, this research
work will attempt to look at the e ffect o frehabilitating v acant b uildings o n the entire
urban revitalization cycle. The author will attempt to investigate the economic issues in
rehabilitating old/vacant buildings in downtown Detroit using the new Michigan
Rehabilitation Code as compared to the traditionally used Michigan Building Code. The
author will not attempt to investigate the social and cultural factors of urban
revitalization. The author will address the issues related to the traditional code parameters
that increase the cost of rehabilitation, thus creating more obstacles to rehabilitation of
buildings in urban centers. The author plans to conduct a detailed case study with an
old/vacant abandoned mid-rise building in downtown Detroit for the purpose of
validating the cost parameters involved with the new rehabilitation code versus the
traditional building code and then project the new code’s impact on renaissance in
downtown Detroit. The author plans to modify the existing urban revitalization models
by incorporating the built environment revitalization factor (i.e., building rehabilitation).

Although Detroit and similar cities feel the need for rehabilitation, the process has
not sped up to meet the growing demands due to many factors, including the cost
involved in rehabilitation. This defines the uniqueness of this research, as the author
explores the opportunities for economical rehabilitation p ooled with s upportive factors
like market dynamics and available incentives in Detroit facilitating rehabilitation of
uninhabited structures. The built environment, non-social dimension to urban resurgence

and its effect on economical factors makes the author’s research unique.

26

H

1.5 GOALS AND OBJECTIVES

The overall goal of this research is to identify and demonstrate the potential of
promoting urban revitalization through cost effective rehabilitation of old, vacant and

underutilized building stock. The major objectives of the work are categorized as below:

To study the pattern of existing old and vacant building stock in the City of Detroit
and analyze the current market trend in rehabilitated residential units converted from
old existing building stock.

To study the c urrent c ode regulations in the u rban Michigan for rehabilitation and
reuse of existing old and vacant buildings and investigate the scope and potential of
using the new Michigan Rehabilitation Code.

To develop a set of specifications for rehabilitation and conversion of old/vacant
buildings into residential units with the help of a case study in Detroit.

To calculate and analyze the cost savings for the rehabilitation of the selected case
study building in Detroit based on both the Michigan Building Code and the
Michigan Existing Building Code.

To illustrate existing building rehabilitation as a critical factor in overall urban
revitalization by performing a market analysis based on the case study project.

To modify existing models of urban revitalization by incorporating the built

environment factor into them based on lessons learned from objectives four and five.

27

1.6 METHODOLOGY

Methodology for this research work is categorized based on the objectives defined
by the author to accomplish the specified goal. Detailed models have been prepared to
illustrate the working procedure to accomplish each of the author’s objectives. A
comprehensive model representing the methodology for each specified objective is
presented in the next sections. A detailed action plan of how the work is to be
accomplished is shown in figure 6, outlining the sequence of activities set up to achieve
the goal.

The author has categorized the entire work into three phases. Objective one is
accomplished with the general data collection and literature review. Objectives two
through four are realized by adopting phase 1 of the comprehensive methodology model.
Phase 2 of the methodology accomplishes objective 5, while Phase 3 is adopted to

achieve the last objective. Each of the methodology models is explained.

Objective I : T 0 study the pattern of existing old and vacant building stock in the C ity of
Detroit and analyze the current market trend in rehabilitated residential units converter!

from old existing building stock.

Data c ollected from D etroit is c ompiled a nd c ategorized b y t abulating b uilding

type, year built, historic usage, current occupation status, physical condition of the

structure, and any available rehabilitation history of the structure.

28

 

 

1.6.1 PROPOSED ACTION PLAN

 

c IEBC 2002
o NARRP - HUD
0 NJ Rehab Subcode

 

 

 

0 Urban Revitaliza’n
0 Building Rehab
0 Building Codes

 

 

 

Data Collection
Existing Building Stock
in the City of Detroit
(Age, Quality, Location)

 

‘P Specifications for

 

 

 

Current market
scope for rehabilitated
residential units in
Detroit

 

 

 

 

ZVA Detroit

 

 

 

Figure 6:

 

Study the Provisions /

 

 

 

 

 

 

 

1

Identify a vacant Office
Bldg. in Detroit-Develop

 

Rehabilitation and
Estimate the Rehab Cost

1

Perform Cost Analysis for
the Selected Case Study

 

 

 

 

Michigan Existing
Building Code

1

Identify the potential for

 

 

 

 

Solutions in Detroit

1

 

 

 

 

 

 

 

 

_> SCOPE Of the New Detroit Downtown
Michigan Building Building Rehab
Rehabilitation Code Pattern Analysis / Past
- Rehab Projects Study
Market Analysis —
. Literature Review ‘___ The Potential Market
for Housing in

Downtown Detroit

 

 

 

 

Michigan Building

Rehabilitation Code

[Based on the IEBC
Final Draft 2002]

 

 

 

 

 

Input from the code

__> Building Applying *— analysis performed for

the case study building

 

 

 

 

Urban Revitalization

Market Study . the Proposed Rehab ‘ _' Models - Literature

 

 

 

 

Modified Urban Revitalization
Model Incorporating BE Factors
(Building Rehabilitation)

 

 

PROPOSED RESEARCH ACTION PLAN

29

 

.

.3

. ,7
..

- x! '

... . s;

 

I5 .1
.
\
\
c
\. '
l . .
I
~\,‘,.
..4.
‘v.
~-.
. \

 

 

.,‘ “J.

 

Rehabilitated vacant structures in downtown Detroit that have been converted to a
different use are studied to identify the market potential of such rehabilitated structures.

Also, demographic data for Detroit will be collected.

Objective 2: T 0 study the current code regulations in the urban Michigan for rehabilitation
and reuse of existing old and vacant buildings and investigate the scope and potential of
using the new Michigan Rehabilitation Code.

Phase 1 of the comprehensive methodology model is adopted to achieve
objective two. The codes that are currently in use in Michigan, and particularly Detroit, will
be studied. The detailed model for this objective is shown in figure 7. This model is a
graphical representation of the methodology with a sequence of yes or no questions. More
efforts will be rendered to understand the Michigan rehabilitation code and to determine the

scope of adopting this new code in rehabilitation works in Detroit.

Objective 3: T 0 develop a set of specifications for rehabilitation and conversion of
old/vacant buildings into residential units with the help of a case study in Detroit.
Objective three is also achieved through phase 1 of the comprehensive
methodology model. To study the real dynamics of rehabilitation code, a case study
building is identified in downtown Detroit. This building is of the required category: a
Commercial building that is vacant, old and underutilized over several years. The scope of
the rehabilitation that needs to be done is defined and based on this scope, detailed
SPecifications necessary for rehabilitation are deveIOped. A complete code analysis and

COSt analysis is performed based on these specifications.

3O

 

1.6.2 COMPREHENSIVE MODEL OF METHODOLOGY [OBJECTIVE 2 to 6]

Phase 1: Calculate Cost Savings Using Rehabilitation Code [OBJECTIVE 2,3,4]

 

Identify a potential old/vacant office building and develop a set of specifications -—
arrive at the rehab cost using the new Michigan Building Rehabilitation Code

0 Study the Michigan Rehab Code’s provisions and limitations in rehabilitation
' Develop a set of specifications for rehabilitation intended to performed
' Scope of rehabilitation of old/vacant office buildings into residential units

0 Cost of rehabilitation (direct & indirect costs) — use case study to find savings
percentage in comparison with the traditional building codes

 

 

 

11

Phase 2: Cost Analysis and Rehabilitation Recommendation

 

Perform proposed cost analysis and literature market study of rehabilitated residential
units from old/vacant commercial buildings in Detroit (viability).

Comprehensive rehabilitation cost analysis

Market area dynamics (proposed use with surrounding land uses)

Study of demand and supply — Draw areas (ZVA 2002)

Analysis of competition and capture rate (rehab market segmentation)

Study the potential available for rehabilitated units in relation to the market
available and analyze the potential for revitalization

 

 

 

ll

Phase 3: Expand Existing Models of Urban Revitalization [OBJECTIVE 5, 6]

 

Expand existing models of urban revitalization by incorporating built environment
factor based on lessons learned from phases one and two above.

0 Study the existing urban revitalization models and identify the key components
that influence urban revitalization and the magnitude of their effects.

0 Modify the existing model of urban revitalization by incorporating the built
environment factor, with focus on the subcomponent, existing building stock.

Figure 7: COMPREHENSIVE MODEL OF METHODOLOGY

31

 

Objective 4: To calculate and analyze the cost savings for rehabilitation of the selected
case study building in Detroit based on both the Michigan Building Code and the

Michigan Rehabilitation Code.

As above, phase 1 of the comprehensive model addresses this objective. See
figure 8 for a flow chart of the process that will be followed to achieve this objective.
Based on the specification developed in objective 3, detailed code analysis and cost
analysis is performed. The code analysis includes evaluating the building to meet the
code requirements. This is p erfonned u sing b 0th the Michigan B uilding C ode and the
new Michigan Rehabilitation Code. Based on the code requirements, rehabilitation cost
estimates are prepared for this case study project.

Then the costs will be tabulated into two categories: the costs with the regular
code and the costs related to the new rehabilitation code. This cost then serves as an input
to the market analysis that is to be performed to achieve objective 6. This objective also
validates the cost savings factor of the new rehabilitation code over the available modern
building code or the Michigan Building Code. This objective, accomplished with the case

study project, forms a vital part of the further analysis.

32

1.6.2.1 DETAILED METHODOLOGY FOR OBJECTIVE 2, 3, & 4

 

 

- Select a Samnle

 

 

Identify Old/Vacant Office Buildings In
Detroit That Are Potential Candidates
for Rehabilitation

 

Select a Samnle —"

 

 

Specifications

Residential Unit

 

 

 

Rehab Cost

 

V

Traditional
Code (BOCA)

 

 

 

 

—>

 

Viability of Using

Traditional Code. If It N0

Bldg Unfit for
Rehabilitation

 

 

 

required for rehab ’ W

 

 

Study the provisions/ Limitations of
Michigan Rehab Code and Apply Them
to the Building Under Study

I— Codc Provisions—‘

l-_C0(IC Limitations

 

 

I

 

 

 

Perform Cost Analysis Using
Traditional Code and New Michigan
Rehabilitation Code

1- Direct Cost

I" Indirect Cost

 

 

1v

 

 

 

 

 

Cost Comparison
(Direct & Indirect Costs)

vy:

 

Michigan Rehab
‘ Code

 

 

 

 

 

Is Not Economical, —

       
   

Is the Cost of
Rehab
Economical with
the new code?

 

 

 

 

Figure out the Cost of Rehabilitation Using the New Michigan
Rehabilitation Code and Prepare Detailed Estimate for Rehab

 

 

I

 

 

Calculate the Savings Percentage in Rehabilitating Old/Vacant
Commercial Buildings Using Smart Codes over Traditional Codes

 

 

I

 

 

Rehab Cost Serves as Input to

Phase 2 — Market Analysis

 

 

Figure 8: Calculate Cost Savings Using Rehabilitation Code

33

Objective 5: T 0 illustrate existing building rehabilitation as a critical factor in overall

urban revitalization by performing a market analysis based on the case study project.

Phase 2 of the comprehensive model accomplishes this objective. A market
analysis and feasibility study is performed for the proposed building rehabilitation to
identify the demand that exists in Detroit for residential units rehabilitated from
old/vacant commercial buildings. The market analysis study conducted by Zimmerman
Volk Associates on behalf of Greater Downtown Partnership in identifying the potential
market for housing in downtown Detroit will be used as an important resource for this

phase of study.

 

Market Study based on ZVA 2002

I

Draw Area

I

Housing Type

1

Household Type

I

Annual Capture Rate

1

Rent, Price and Size of units

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Figure 9: Market Study based on Zimmerman Volk Associates study [ZVA 2002]

34

 

Also, interviews will be conducted to identify different private and public funding
sources such as the commercial banks’ flexibility in rehabilitation lending, the Small
Business Administration Loans (SBA Loans), Business Development Center loan
programs, local banks and financial institutions lending, Real Estate Investment Trust
(REIT), and Limited Partnership funds [ULI 2000] and equity opportunities available for
building rehabilitation projects are identified by conduction interviews.

Urban revitalization programs will be successful only if there is a cumulative
effort from various participants in the urban centers. Considering this as a significant
part, objective 5 will help the researcher to identify the market dynamics of rehabilitated

buildings and their effect on overall urban revitalization in Detroit.

Objective 6: To modify existing models of urban revitalization by incorporating the built

environment factor into them based on lessons learned from objectives four and five.

Objectives one through five will help to validate whether the new Michigan
Building Code is a viable solution that will bring about an economical rehabilitation
process. Once the structures are rehabilitated and converted to residential use and other
mixed-use types of developments, the market available in Detroit need to be determined.
The market analysis performed earlier for downtown Detroit is also used to accomplish
this objective. The changes that this element, building rehabilitation, will bring the
overall urban revitalization model is then studied to measure the significance of this

process. Incorporating the identified built environment factor, building rehabilitation,

35

modifies the urban revitalization model from literature with varied socio-economic
factors. In addition, the effect of this input on the urban revitalization cycle is studied and
documented. Figure 6 illustrates the proposed modification to the existing urban

revitalization model.

1.7 CASE STUDY PROJECT TO BE STUDIED

For this research work, a case study building has been identified. The case
study building selected is a commercial building (office building) built around 1910 on
the historically significant Woodward Avenue in downtown Detroit. This building is
lying vacant without any use for more than 15 years excepting a very small first floor
area that is occupied by retail shops. The owner of this building permitted the researcher
to access the building to estimate rehabilitation costs in order to accomplish objectives
three and four.

The total area of this commercial office building is around 80,000 Sq. Ft.
The building is structurally sound and architecturally very pleasing. The researcher
selected this building as a case study candidate based on the codal complications that this
building has in terms of rehabilitation. The rehabilitation plans have been obtained from
the architect and these drawings are used to develop the specification as defined in
objective three. The Michigan Rehabilitation Code- and the traditional Michigan
Building Code-based cost estimates are calculated with these drawings obtained from the

architect through the owner of the case study building.

36

 
   
     
     
      
  
    
   
 
   

Process & Stabilization
Community Rebuilding
and Stabilization of the
Existing Physical, Social
and economic fabric

 
  
  
  
  

Culture and Spirit
Rebuilding communities b
restoration of an ethical
culture —- Human Values wi
worth, dignity, respect

Children, Youth and
Families — Human
services Community
Centered activities,
facilities and programs

  

   
   
 

    

 

V

URBAN
REVITALIZATION
FACTORS

 

 

 
  

  
         
      
  

Sustenance
Regenerate healthy local
economic system - Urban
Economic self-
sufficiency sustainability

Sound, safe shelter in
secure environment to all
- Homeownership to
promote urban stability

Shelter and Security H

     
     
   
 

BUILT ENVIRONMENT
Rehabilitation of Old/vacant
building stock and stimulate
economic growth inviting
people back to urban centers
Existing

Proposed
Figure 10: Urban Revitalization Model [Modified from Kadushin, 1996]

37

1.8

DELIVERABLES / OUTCOME

As an outcome of this thesis, the author plans to produce a comprehensive model

for urban revitalization with building rehabilitation as a key instrument. The author will

depict the urban resurgence cycle in the form of an Urban Revitalization Model. The

other major deliverables would be:

1.9

Compilation of the specifications and rehabilitation cost estimates of selected case
study project in Detroit.

Code analysis report presenting the differences between using the regular
Michigan Building Code and the new Michigan Existing Building Code, with
tabulated values of cost savings.

Literature based market study for the pr0posed rehabilitation process and
identification of building rehabilitation as a potential factor for urban
revitalization in the City of Detroit.

Deliver an expanded urban revitalization model incorporating the Built
Environment factor and compile the recommendations for potential revitalization
based on the rehabilitation of existing buildings, a defined component of the built

environment.

SUMMARY

Many old cities like Detroit understand the necessity of revitalization and have

initiated the process. However, despite continued efforts for urban revival through social

38

 

transformation, incredibly little emphasis has been placed on the economic factors such
as the cost of revitalization. The one such crucial factor probed in detail in this work is
building rehabilitation, encompassing all the supportive factors such as innovations in
codes, new technologies, increased incentives, the growing market and accelerated
demand. No attempts have been made to understand the social and affordability issues in
urban renaissance even though they have considerable impact on the overall revival life
cycle. This thesis is an attempt to better understand this issue of revitalization through
rehabilitation.

Through this proposed research, the author has tried to emphasize the need for
implementation of innovations that are taking place to bridge the gap between the
growing demand and the declining s upply to m eet p eople’s n eeds. The objectives and
methodology of this research will result in better understanding of the building codes and
the ways and means of achieving an unblemished urban society through urban

revitalization.

39

CHAPTER TWO

LITERATURE REVIEW

40

2.1 INTRODUCTION

The literature in this chapter can be divided into three major categories: urban
revitalization, building rehabilitation and building codes as shown in Figure 11. The
author has used the wide domain of urban renewal and revitalization research
encompassing social, economical, political and other built environment parameters in
introducing the research community with terminology and literature related to urban
revitalization. As this thesis illustrates various urban revitalization parameters, the author
has detailed issues such as community rebuilding and stabilization, community centered
human services, regeneration of local economic system, shelter and security, and
neighborhood regeneration, which form a substantial cluster of the urban revitalization

model developed in this research.

/URBAN REVITALIZATION

 

   
  

 

 

     

 

 

 

 

 

\ Main
Component
BUILDING REHABILIE’D Sub
Component
BUILDING CODES >
,, Sub - Sub
Component

 

 

‘__—/

 

Figure 11: Component Model for the Literature Study

41

This section will introduce the reader to various building rehabilitation
procedures, recommended rehabilitation provisions and rehabilitation projects. The
author has used literature with more emphasis on the impact of the building codes on the
process of building rehabilitation. Shay (2001) explored the need and implementation of
a building rehabilitation code in Michigan, and the author has used this work as the
baseline literature detailing the evolution and impact of the new building rehabilitation
subcode. The author will present both terminology and existing literature related to all

these three fields.

2.2 URBAN REVITALIZATION

The concept of “urban revitalization” is the need to address the concerns of
people who live in cities and urban centers that have been undergoing a process of
decline characterized by urban sprawl leading to continuing population loss, higher levels
of poverty, increasing unemployment, rising fiscal stress, degrading environmental
quality, and overall physical deterioration of the existing physical infrastructure. It is not
only a conflict between the emotional-spiritual and the social—economical—political;
instead, revitalization has to meet the overall collective neighborhood objectives of the
people b y improving their quality of l ife. Urban 5 cientists and s ocial researchers h ave
explored the cause and signs of urban distress and identified the opportunities for urban
renaissance by defining the social, economical, political, emotional and spiritual factors
contributing to urban decline. The author has looked at each of these revitalization factors

detailed in various research studies and hopes to expand the existing urban revitalization

models.

42

2.2.1 COMPONENTS OF URBAN REVITALIZATION DESIGN

The basic urban parameters that constitute effective urban renewal (such as social,
economical, cultural and political factors) are further broken down and organized under
these terms: Planning Process, Stabilization, Children and Families, Sustenance, Shelter
and Security, and Culture and Spirit [Kadushin 1996]. The urban regeneration model is
woven through all of these components as a social, economical, cultural and political
thread. If one closely observes all of the above components it is interesting to note that a
constant physical thread, building, which facilitates and supports all of these
revitalization components, is present. For better understanding of how these components
can constitute a comprehensive strategy for the diagnosis and treatment of distressed
urban communities and ultimately lead to revitalization, the author has used the literature
to detail each of these components as detailed by Kadushin (1996) in the following

sections:

2.2.1.1 Planning Process

The planning process is a basic part of towards achieving successful urban community
regeneration, including organizational development, envisioning and goal setting,
leadership training and development, community organizing, collaboration, coalition and
capacity building as strategies for successful and meaningful urban planning and
rebuilding process. It begins with an understanding of existing physical, social and
economic conditions, assets, opportunities, and human needs people have in the urban

community. This planning process then helps to set priorities and prepare the required

43

physical, social and economic programs and designs [Kadushin 1996]. The planning
process in an urban revitalization lifecycle facilitates creation and adoption of a
comprehensive urban revitalization strategy that provides a framework for solving the
puzzle 0 f urban revitalization. T his b asic planning p rocess h elps the u rban scientist to
define the problems persisting in a distressed urban community in terms of social,
economical, p olitical and other p ull factors and to generate s olutions to achieve u rban

renaissance.

2.2.1.2 Stabilization

Stabilization of the existing physical, social and economic conditions is a major step
towards achieving revitalization. Two of the primary factors, physical and economic
stabilization, can be achieved to a considerable magnitude through rehabilitation of the
existing residential and commercial structures. These rehabilitation projects seem to have
a small and inconsequential impact on revitalization; however, their real economic impact
will be great [Kadushin 1996]. The value of the existing structures, once rehabilitated,
will begin to stabilize, thereby also stabilizing overall property values, and resulting in
increased investment in the designated urban neighborhood. This will bring a change in
the pattern, which ultimately brings in physical and economical stabilization.

A secondary stabilization factor that determines success or failure of revitalization
is social stabilization. Local institutions such as churches, schools and many CDCs, can
serve as mediating bodies to bring social stabilization into a distressed urban community
[Kadushin 1996]. Because increased support of church leaders, school districts and

CDCs will foster effective urban stabilization, efforts are already in place to promote

44

Detroit’s church-based leadership organizations in order to bring in new momentum to

the revitalization process.

2.2.1.3 Children, Youth and Families

Children, youth and families form the most vital part of any society. Programs and
services targeted at promoting child development, youth development and family
functioning contribute critically to the success of any revitalization design. Facilities such
as parks, libraries and community centers and services targetting such issues as child
welfare and family health care should be provided to meet the needs of the children,
youth and families who form the most integral part of the successful urban community.
Community-centered development activities supporting the future of these groups will

promote people-friendly urban regeneration.

2.2.1.4 Sustenance

Sustenance has many different interpretations but generally alludes to economic
development in a manner which can be sustained in the long run. This component of the
urban regeneration model seeks to rebuild a healthy local economic system with
individual, family and community economic self-sufficiency as primary goals. Kadushin
(1996) states that a ‘sustainable urban community’ is one that meets the basic needs of all
its inhabitants. One major goal in achieving sustenance is to provide employment
Opportunities and training suitable to secure them to urban residents, leading to greater
financial security and a higher standard of living. Economic stimulus can be brought to

distressed communities by the active participation of financial institutions and

45

 

community development banks. Sustaining all these economic developments will support
urban rebuilding, giving it endurance and strength. Sustenance requires a constant

improvement and an effort-based approach to achieve regeneration.

2.2.1.5 Shelter and Security

In a stable, secure, safe and sound urban environment, it is possible for the urban
population to engage in the usual activities of life with less worry and stress [Kadushin
1996]. To achieve this stability, this safe place to live, Shelter is a primary need.
Irrespective of the structural stability and spatial conforrnability of a living space, the
external security of the urban setting and safety of the neighborhood is equally important.
Ensuring livable, secure buildings and ending the worry of homelessness are main
objectives in promoting urban revitalization and bringing people back to cities that are
now considered to be neither safe nor secure. Developments should occur in such
environments promoting a sense of security. The revitalization model should incorporate
factors related to achieving this sense of security, such as the condition, value and type of
developments that are revitalized; the type of ownership; the investments planned for
promoting existing infrastructure; and investments related to increasing the public safety
and policing powers of the regenerated urban center.

Programs such as comprehensive crime prevention, reduction, and control
programs; community—oriented policing programs; and existing building and
infrastructure maintenance programs can lead to an increase in individual, family and
neighborhood safety in an urban locality, which will serve as a key to successful urban

regeneration [Kadushin 1996]. Even though these factors may seem more like social

46

scientists’ thoughts, the author is attempting identify to the relation of these factors in the

overall urban revitalization model as one valuable outcome of this research.

2.2.1.6 Culture and Spirit

The cultural and spiritual values of a neighborhood define the way one should behave and
the way one can lead a happy life. It brings a sense of oneness with the neighborhood,
which is almost totally absent in the current city lifestyle. Cultural and spiritual values in
to these distressed cities will answer the questions such as: “What should city life be
like?” and “What sort of life should be lived?” [Kadushin 1996]. These questions will
cause urban residents to think and generate better living conditions. Religious institutions
— often termed church-based community development corporations — provide the cultural
and spiritual v alues in the c ommunity. T hese have b ecome o ne 0 ft he m ost e ffective

vehicles for urban revitalization.

2.2.2 STRATEGIES OF URBAN REVITALIZATION

Successful urban revitalization experiences have been achieved with innovations in the
strategies adopted. Christopher Howes (1986) at the University College of London
identified some successful strategies for achieving urban revitalization encapsulating
social, economical and political programs, which the author will be using to define the

urban revitalization model in the later part of this research.

47

 

Inner City Redevelopment
Inner city redevelopment can be achieved through extensive measures initiated to
improve the economic, social and functional urban structural fabric. Some of the
strategies that are adopted to achieve this redevelopment are [Howes 1986]:
0 Developing more retail space and promoting retail businesses with incentives and
motivation;
0 Creating more residential space within the inner city, thereby inviting new
population into the distressed city;
0 Modernizing old and historic buildings, giving them new life and new use;
0 Creating diversified play areas for children, recreational facilities and public
community gathering centers;
0 Removing existing slums and unsafe inhabited buildings and providing better and
safer living conditions; and
0 Initiating intensive public participation through awareness programs and

community gatherings.

Brownfield Redevelopment in Inner Cities

A brownfield is an abandoned, unused, or underused industrial or commercial
facility where expansion or redevelopment is complicated by a real or perceived
environmental contamination [MBR 2002]. Brownfield redevelopment forms an
important urban revitalization component as it helps in recycling devastated industrial
properties for v arious p urposes. This improves and facilitates the o verall revitalization

process.

48

 

Urban Neighborhood Environmental Improvement Strategy
Increasing the pedestrian areas of the existing city road networks, improving and
increasing public and private green spaces will facilitate environmental improvement of

existing urban neighborhoods.

Creation of Low-Rental Public and Private Housing

In order to bring people back to cities in large numbers, it is very important to
create large amounts of low-cost public and private rental housing with safer living
conditions. The absence of affordable, quality rental housing can adversely impact both
the labor m arket, b y reducing geographic m obility, a nd equality, b y h urting the u rban
poor. Based on the lessons learned from past successful revitalization projects, it is
evident that creation of low-income rental housing promotes better and faster urban

revitalization.

Rehabilitation and Conservation of historic buildings and landmarks

Abandoned, unused and dilapidated buildings pose a threat to the rebuilding of
the city. These old buildings must be rehabilitated because of their historical importance.
They must be assigned new uses, thereby promoting increased investments in

rehabilitating and conserving landmark historical structures.

The author has divided the urban revitalization literature study into two major

parts. Part one identifies the various important components of and strategies for urban

revitalization, which will be used in the later part of the research to develop a

49

comprehensive revitalization model. Part two focuses on literature related to the urban
revitalization efforts taken by major U.S. cities and on the lessons learned in
revitalization. T his 8 econd p art in p articular d etails the e fforts taken b y these cities in
achieving revitalization by defining new uses for older or dilapidated buildings (i.e.,
building rehabilitation). The author uses this literature as an important support for his
definition of rehabilitation as a vital tool for urban revitalization.

Looking at successful urban revitalization strategies that are practiced in many
cities in the U.S. and other developed countries, the author delves into the strategy of
rehabilitation and conservation of old, dilapidated historic buildings as a tool for
revitalization. Revitalization that occurred in major cities in New Jersey, Maryland, and
other states through the process of building rehabilitation is studied and analyzed in detail

as part of this literature study.

2.2.3 Revitalization Efforts in New Jersey

Though the fourth smallest state in the country, New Jersey is the eighth highest
populated state, constituting almost 4% of the nation’s population. New Jersey’s
population has grown by almost five times in the last 100 years, which is an alarming rate
for an urbanized U.S. state. New Jersey’s population is expected to increase from 8.15
million people in 2000 to 9.1 million by the year 2020—an increase of approximately
12%. [NJ State 2002].

With a negative migration trend found in most cities and developed states, New
Jersey’s efforts to revitalize its urban centers have proven successful in bringing in new

people and new life. This growing trend is a sure effect of the revitalization efforts that

50

are in place in the state, meeting the growing demands of the population. Many of New
Jersey’s cities are experiencing a renaissance, including Jersey City, Hoboken and Perth
Amboy [NJ Online 1999]. People in New Jersey’s cities are rediscovering the advantages
of urban life: the opportunity for broader cultural, social, economic and political
experiences. With the ease of getting to Wall Street and the other businesses and benefits
of New York, New Jersey had always been successful in attracting residents and
maintaining the attracted population in order to make a living in its cities. The urban
planners and state developers have taken steps forward in formulating various Urban
Enterprise Zones (UEZ), which have become a hallmark for urban revitalization and a
cornerstone for economic growth and development.

In the state of New Jersey, the number of Urban Enterprise Zones has expanded
from an original 10 in 1984 to the 30 zones in 35 municipalities today. Moreover, the
program has helped create 65,070 full-time and 5,000 part—time jobs within the zones.
This represents an estimated $13.8 billion in private investment by these businesses [NJ
Commerce]. The investments generated through these revitalization zones are in turn
offered as incentives for further developments. Revitalization efforts carried out by the
state of New Jersey adopted all of the major strategies discussed above such as inner city
redevelopment, turning brownfields into greenfields, making the state revitalization plan
work through regional partnerships, creating urban redevelopment partnerships,
protecting sensitive environmental resources, creating homes for working families,
creating housing that makes sense in locations and addressing the need, promoting
economic diversity and revitalization, building communities near jobs, providing special

housing for those with special needs, helping low-income families save for the future,

51

revitalizing New Jersey's older cities and suburbs, community-based neighborhood
planning, providing financial resources and incentives to rehabilitate old commercial and
residential buildings in cities and towns, revitalizing traditional mixed—use centers,
encouraging city living, ensuring the safety of urban residents, and being more responsive
to meet urban demands.

One of the significant efforts taken towards revitalization is the investments that
have targeted defining new uses for old existing buildings, which in turn served the
growing demand for both residential and commercial space in the urban centers. Even
though this mode of achieving revitalization through bringing old buildings to new use
was slow, there was a clear increase in the later 1990’s, starting from 1996 when the state
initiated this mode of revitalization at a greater magnitude. The outcome of these
significant efforts was the development of a separate code for building rehabilitation
called the Rehabilitation Code for the State of New Jersey. This research work is based
on success achieved in New Jersey in developing a separate rehabilitation code, which
created a unique momentum for urban revitalization that was later followed by many
other dying U.S. cities. The literature relevant to the development and impact of the new
building rehabilitation code and its effects on rehabilitation costs and overall

revitalization is discussed in the later part of this literature study.

2.2.4 Revitalization Efforts in Maryland
Maryland has demographical and geographical characteristics very similar to New
Jersey. Maryland is the seventh smallest state in United States, yet it has almost 2% of the

country’s population (5,296,486 people spread over 12,4066 square miles of area) [Facts

52

2002]. Maryland, being located at the economic hub of the eastern coast, has experienced
quick growth as well as fast urban decline over the past 100 years. This dynamic change
in gaining and losing population in Maryland’s major cities initiated the need for
effective revitalization and regeneration plans for the dying cities. The fundamental goal
of the state planning and development agencies was to assure that Maryland's unique
quality of life would be preserved for generations to come. This move brought vivid
changes in the pattern of urban design and revitalization in Maryland.

Maryland began several Smart Growth initiatives to return the dying cities to
healthy, livable communities and centers of economic momentum. Maryland was the first
state to attempt and to achieve success at using incentive-based efforts to reverse the
costly, inefficient, and often unsightly patterns of development known as "sprawl" by
investing in old cities and towns and brining people back to cities [Maryland 2002].
Some of the main goals that were set and achieved by the state as a part of the
revitalization plan are [Maryland 2002]:

0 To strengthen and revitalize older towns and cities;

0 To permanently preserve the state's most beautiful historic buildings,
commercial centers, and natural landscapes and most valuable
environmental resources;

0 To save taxpayers the high cost of building new infrastructure required to
support sprawl deveIOpments;

0 To bring new uses to old, vacant buildings;

0 To generate a focused economic momentum in distressed cities and urban

centers

53

0 To sharply increase state spending on school renovation and
expansion in older communities;
0 To encourage cleanup and redevelopment of contaminated "brownfields";
0 To spur j ob d evelopment b y o ffering tax c redits for j ob c reation within
targeted growth areas;
0 To fight crime by targeting "hot spots," particularly cities like Baltimore,
where crime is the worst
a To resolve economic and social problems caused by the abandonment of
older cities and urban centers; and
0 To assure that Maryland's unique quality of life is preserved for
generations to come.
The Smart Growth initiatives addressed multifaceted urban needs in cities such as
Baltimore, Columbia, and Silver Springs, which were facing problems of urban decline.
In the case of Baltimore, most of these strategies were adopted at a higher level of
importance as the city was losing population at an alarming rate in the late 19805 and
early 19905. During the 19905, Baltimore lost nearly 85,000 people (11.5%), the largest
absolute decline and the fourth largest percentage decline of any city in the country of
100,000 or more in population. This decline corresponded to a loss of more than 18,000
households [Maryland Planning]. The state development and planning department
identified various corrective measures to prevent urban decline and bring people back to
the city, adopting the aforementioned strategies for the problems identified in the

historical downtowns and cities.

54

One of the important and effective strategies adopted by Maryland and
Baltimore in particular was to revitalize and reuse the old, deserted and dilapidated
buildings along the downtown corridor. Based on the analysis and detailed study
performed by the Downtown Partnership of Baltimore, it was found that there existed a
great potential to renovate the old structures and bring them into new use. On analyzing
the number and kind of old unused buildings in the city, it was noted that a large number
of vacant buildings were in the commercial building category. Class A office buildings
were relatively new and were in great demand, while the class B and class C buildings
were lying vacant and posing a sense of death to the city atmosphere. As a part of the
revitalization, the city and the state made efforts to identify the scope of rehabilitating
these vacant structures and make use of them to fill the available demand in the city. As
developmental activities increased both socially and economically, people started
migrating to the city (a reverse phenomenon), and these vacant buildings found a great a
scope of renewal if converted to residential units. This rehabilitation activity gave a great
momentum to urban revitalization in Baltimore, which is very evident from the fact that
the population in Baltimore has increased from 2,382,172 in 1990 to 2,552,994 by the
year 2000 with a net increase of 7.2%, showing a positive trend in population growth
after a long period of declining population [Census Scope].

Further discussion of the kind of rehabilitation performed and investigation of
the lessons learned in terms of urban revitalization and the cost related to rehabilitation
are covered in the next part of the literature study, focused on exploring building

rehabilitation with a focus on building codes.

55

2.3 BUILDING REHABILITATION

The process of building rehabilitation not only serves spatial and functional needs,
but also acts as a tangible symbol of regeneration and new growth, which supports
healthier urban life [Kadushin 1996]. In areas of slow growth and accelerated
deterioration, rehabilitation can act as a catalyst and a motivator for sustained
development that would include reuse of old diversified building groups such as
commercial, educational, industrial, institutional, mercantile, residential, storage, utility

and other miscellaneous structures.

2.3.1 PRE REHABILITATION CODE INITIATIVE

Any building or structure erected prior to November 6, 1975, is designated as an
existing building as per the International Building Code. This is because, before 1975,
structures that were erected did not follow a prescribed, nationally or regionally accepted
standard building code. Different regions were using different model codes developed by
three major code agencies in the United States: the Building Officials and Code
Administrators (BOCA), the International Code of Building Officials (ICBO), and the
Southern Building Code Congress International (SBBCI). Discussion of the code
agencies and a brief history of building codes is offered in the later part of this literature.
The local building departments validated and offered acceptance based on whichever
model code was used in that region, or, in a few cases, using their own set criteria either
based on experience or locally documented technical specifications. This discussion of
the pre-rehabilitation code period is further divided into two parts: rehabilitation before

the 1970’s and rehabilitation between 1970 and 1998.

56

2.3.1.1 Building Rehabilitation before the 1970’s

Rehabilitation works performed prior to 1970 were based on the three model building
codes developed by the BOCA, the ICBO, and the SBBCI. These building codes adopted
the 25/50 rule to determine the kind of rehabilitation work and the acceptability of the
proposed work. If the rehabilitation project’s value was lower than 25% of the building’s
value, the local building official had the flexibility to determine how much of the
rehabilitation must conform to current codes. If the rehabilitation value was detemiined
to be between 25% and 50%, then the entire rehabilitation work scope had to conform to
all new building codes. If it was greater than 50%, the entire building had to be brought
up to the current building codes [NAHBRC 1999 and Shay 2001].

As per the research study performed by the NAHB Research Center, it is found
that rehabilitation works carried out with the 25/50 rule often end up with estimates that
are not realistic with higher costs without knowing the exact work scope and associated
requirements. The lack of standard rules and methods to determine the scope of
rehabilitation often resulted in costs that were enough to strongly discourage
rehabilitation, leaving old structures without any reuse. In many cases, when owners plan
to rehabilitate some parts of a building, they end up as victims of this 25/50 rule. They
are forced to spend many times more than what is needed for that planned renovation,
leaving them without any further option other than leaving the building vacant. The
author strongly feels that this might be one of the main reasons for so many vacant

buildings in urban areas to stay unused.

57

2.3.1.2 Building Rehabilitation between I 970 and 1995

Based on the growing need for and awareness of the need f or rehabilitation of
existing old structures, efforts were made to replace the system that linked the
compliance of rehabilitation work to the model building codes. The inefficient 25/50 rule
was revisited in many ways to formulate a better system to meet the requirements of
rehabilitation in a way that could be accurately applied to realistically estimate costs
associated with the rehabilitation work [NAHBRC 1999]. In the late 1970’s, the U.S.
Congress asked HUD to provide leadership in this regard. As a result, HUD introduced a
set of guidelines to streamline and simplify the approval of rehabilitation work. These
guidelines were not meant to be adopted as a building code. Instead, they were meant to
supplement the three existing model building codes. As an outcome of this move, HUD
initiated a study, the National Survey of Rehabilitation Enforcement Practices [Shay
2001, Survey 1995].

Following the survey performed in 1995, HUD prepared rehabilitation guidelines
from the lessons learned and these guidelines were used in conjunction with local
building officials’ building codes. Since these guidelines were not comprehensive
enough to meet the diversified rehabilitation needs across the country, there was some
dissatisfaction and numerous concerns were raised. These concerns lead to a detailed
study initiative by HUD, organized along with the University of Illinois Urbana-
Champaign to c onduct a thorough study 0 f the guidelines and their enforcement. This
study identified the need for comprehensive guidelines and enforcement practices
standardized throughout the nation. This survey acted as the first stepping—stone towards

the formation of a separate subcode for rehabilitation works. This era between 1970 and

58

1995 was the crucial period for the identification of the need for a separate rehabilitation

code.

2.3.2 POST-REHABILITATION CODE INITIATIVE

The National Survey of Rehabilitation Enforcement Practices performed in 1995 gave a
good head start to the rehabilitation initiative in some state code organizations. One of the
imperative p layers was New Je rsey, which took a clear lead in analyzing the n ational
survey and identifying the need for extensive rehabilitation code research to meet the
growing needs of rehabilitation in the state. The New Jersey State Department of
Community Affairs ~ Codes and Standards Division began in 1996 to develop a
comprehensive rehabilitation subcode called the New Jersey Uniform Construction Code
- Rehabilitation Sub Code, which was adopted statewide in 1998. Following the success
of rehabilitation economics in New Jersey, many states that faced similar problems of
aged existing buildings began to develop rehabilitation codes. Parallely, based on New
Jersey’s success, HUD developed the Nationally Applicable Recommended
Rehabilitation Provisions (NARRP). Later, NARRP served to make various states aware
of the need to develop a separate rehabilitation code. Before chronologically detailing
the rehabilitation code development process, the author offers a summary and a brief
history of building codes and code development organizations for better understanding of

rehabilitation code development discussions.

59

2.4 BUILDING CODES

2.4.1 SUMMARY OF HISTORY AND DEVELOPMENT OF BUILDING CODES

A brief definition of building codes and standards is given in the terminology
section of this literature review. Codes are the standards, the set of regulations, with
which a building must comply in order to protect the life, safety and health of the public.
Building codes w ere first u sed in B abylon around 2 000 B .C. T hese codes w ere c rude
instruments used to associate building failures with the death of the builder. Since that
time, many different codes have been developed, often being spurred on by major
tragedies within a society. The first building code used in the United States was in New
Amsterdam, New York (now New York City), in 1625. Likewise, the first construction
code was established in New York City in 1862. [Shay 2001].

Awareness of the need for more comprehensive building codes increased in the
early 1990’s, which lead to the development of various model code organizations that
developed model building codes that were used in many states either directly, to regulate
the construction process, or indirectly, as a guideline for developing their own building
codes. The BOCA, the SBCCI, and the ICBO are the three model code organizations that
still exist and work to develop standards and regulations in building construction. The
model codes developed by these organizations were used by various states and local
governments in the United States until a national move made it possible to develop an

international building code encompassing the knowledge and expertise of these three

60

major model code organizations through the formation of the lntemational Code Council.

Table 4 details the history of code organizations.

Table 4: History of Code Organizations [Shay 2001]
(Yatt 1997, ASCE 1999, ACI 1999, ANSI 1999)

 

 

 

 

 

 

 

 

 

 

 

 

Year of . .
S.No . Code Organization Formed
Formation
1 1852 American Society of Civil Engineers (ASCE)
2 1894 United Label (UL)
American Society of Testing and Materials
3 1896
(ASTM)
4 1896 National Fire Protection Association (NF PA)
5 1905 American Concrete Institute (AC1)
6 1915 Building Officials and Code Administrators
(BOCA)
7 1918 American National Standards Institute (ANSI)
8 1922 International Code of Building Officials
(ICBO)
Southern Building Code Congress
9 1940
International (SBCCI)
Council of American Building Officials
10 1972
(CABO)
11 1994 International Code Council (ICC)

 

 

 

 

The three model code organizations were brought to the same platform through the

formation ofthe lntemational Code Council (ICC) in 1994. The first draft ofthe IBC was

61

 

prepared in 1997 by five drafting committees appointed by the ICC, which held one
public hearing in 1998 and two in 1999. The final IBC was published and released
nationwide in 2000. This was a major successful move as the lntemational Building Code
(IBC) was developed more generically, which enabled most states to modify the IBC to
suit local needs and conditions and to use it as the state building code. Following are brief
descriptions of each of the three model building code organizations in the U.S. and of the

ICC:

Building Officials and Code Administrators — BOCA

Building Officials and Code Administrators (BOCA) was started on May 14, 1915 in
New York City. The first conference of the BOCA was an informal meeting that focused
on floor loads, hollow tile for outside and bearing walls, automatic sprinklers, enclosure
of stairways, and certificates of occupancy [Becker 1975, BOCA 1999, Shay 2001]. Later
BOCA developed the detailed BOCA code that is used even today by some states and

local governments.

International Code of Building Officials — ICBO

The lntemational Conference of Building Officials (ICBO) was started in 1922 with the
expressed purpose of creating a code that all communities could accept and enforce. The
first 0 fthe o rganization’s m odel c odes was released in l 927 as the U nifonn B uilding
Code. The code was adopted by governments around the United States, many of the

Caribbean island nations, and other governments worldwide [Shay 2001]. This was the

62

first successful move to develop international code regulations and was successful in

reaching across the globe.

Southern Building Code Congress International - SBCCI

The Southern Building Code Congress lntemational (SBCCI) was created in 1940 and
included forty original southern cities within its ranks. By 1999, these 40 cities had
expanded to include 2300 cities. The area covered by the SBCCI includes almost the
entire Southeast United States. It had wide recognition and acceptance from a diversified

group of architects, engineers, owners, developers and city departments.

International Code Council — ICC

These three model code developers have joined to work under an umbrella organization
called the lntemational Code Council (ICC). The ICC was formed in 1994 and was
assigned the task of developing a comprehensive building code to replace the three
organizations’ existing codes. The ICC also developed a series of international codes
such as the lntemational Energy Conservation Code, the Fire Code, the Fuel Gas Code,
the Mechanical Code, the Plumbing Code, the Private Sewage Disposal Code, the
Maintenance Code, the Residential Code, the Zoning Code and the International

Electrical Code.

63

2.4.2

CHRONOLOGICAL LITERATURE RELATED TO REHABILITATION
SUBCODE DEVELOPMENT

Congressional Action During the 1970’s and Follow-up in 1995

The Status 0 f B uilding Regulations for H ousing Rehabilitation prepared by the
HUD Office of Policy Development and Research (1995)

National Survey of Rehabilitation Enforcement Practices prepared by Housing
Research and Development and Building Research Council at the School of
Architecture, University of Illinois Urbana-Champaign (1995-1998)

New Jersey Uniform Construction Code - Rehabilitation Subcode developed and
adopted by the State of New Jersey, Department of Community Affairs — Division
of Codes and Standards (developed in 1996 and adopted in 1998)

Nationally Applicable Recommended Rehabilitation Provisions (NARRP),
Prepared for HUD by NAHB Research Center and Building Technology, Inc.
(1997-1998)

Innovative Rehabilitation Provisions — A Demonstration of Nationally Applicable
Recommended Rehabilitation Provisions (NARRP), prepared by the HUD Office
of Policy Development and Research (1999)

Maryland Building Rehabilitation Code — Smart Codes developed by the State of
Maryland for rehabilitation works [adopted in 2001]

Smart Codes in Your Community — A Guide to Building Rehabilitation Codes,
prepared for the HUD Office of Policy Development and Research, by Building

Technology, Inc. (2001)

64

o lntemational Existing Building Code — an expanded version of chapter 34 of the
International Building Code, developed by the ICC (final draft prepared and
released August 2001, final publication expected in 2003)

0 Rehabilitation Subcode Initiatives by various states based on New Jersey’s and

the national trend. (2002 to Future)

Congressional Action During the 1970’s and Follow-up in 1995: [1970 — 1995]

In the late 1970’s, the U.S. Congress identified the need to develop a systematic process
to address the growing issue of aged buildings. HUD was appointed to perform research
to develop rehabilitation requirements and formulate guidelines for the rehabilitation
process. HUD performed some interesting studies during this period even though the
magnitude of action taken was smaller. As a result of them, HUD introduced a set of
guidelines in the late 1970’s to streamline and simplify the approval of rehabilitation
work. These guidelines were not meant to be adopted as a building code. Instead, they
were meant to supplement the three existing model building codes [SURVEY 1995].
Though the guidelines developed by HUD were useful in addressing the issues of
rehabilitation, there was a great factor of dissatisfaction among the users, and this lead to
the revision of these guidelines. In the course of revising the guidelines, HUD joined
hands with the University of Illinois Urbana-Champaign to conduct a national survey of

rehabilitation enforcement practices in 1995.

65

The Status of Building Regulations for Housing Rehabilitation [1995]

To meet the growing demand for housing and to resolve many regulatory issues
pertaining to housing rehabilitation, HUD published Residential Rehabilitation
Guidelines. However, these guidelines did not achieve success as each of the model
building codes addressed the subject of building rehabilitation in different ways. In
response to the need to regulate rehabilitation in a more consistent manner, HUD
sponsored the first National Symposium on the Status of Building Rehabilitation
Regulations in May 1995. The meeting established the status of and trends in
rehabilitation regulation, and it resulted in recommendations for follow-up activity by
industry, the three model code organizations, and HUD [Report 1995]. Even though this
symposium addressed only issues related to housing rehabilitation, the ideas generated
served as a catalyst for further U.S. research on various areas of rehabilitation. HUD
made five action recommendations in the report published as an outcome of this
symposium:

0 To develop a national policy on housing rehabilitation

To conduct a national survey of code enforcement practices related to

rehabilitation

0 To develop a national model rehabilitation code

0 To formulate a compendium of acceptable compliance alternatives for
rehabilitation

- To develop methods of complying with legislative mandates related to

rehabilitation

66

Out of these five, the National Survey of Code Enforcement Practices related to
rehabilitation achieved immediate attention. Thus the symposium conducted to address
the Status of Building Regulations for Housing Rehabilitation became the vital base for

future efforts in building rehabilitation by identifying the need for the national survey.

National Survey of Rehabilitation Enforcement Practices [1995 — 1998]

The national survey is one of the 5 recommendations made by the National Symposium
on Housing Rehabilitation conducted by HUD in 1995. The model code organizations as
well as some individual states (Massachusetts and Georgia) have developed and adopted
some regulations that encourage rehabilitation. The enforcement of earlier rehabilitation
regulations relied on the extensive exercise of discretion by code enforcement personnel.
The code organizations had no information on how this discretion was exercised at the
state and local levels and whether the objective of encouraging rehabilitation was
achieved or not. To address this question and concern of the model code organizations, a
national survey was performed to identify all regulatory constraints to rehabilitation so
that they could be removed. The Building Research Council at the University of Illinois
Urbana-Champaign performed the survey for HUD between 1995 and 1998.

One of the important findings of this survey was that the extent of code enforcement
varies from one jurisdiction to another. The HUD survey also found that different
regions tend to focus on different code provisions. Some of the interesting findings about

code enforcement brought out by the national survey are [Survey 1998]:

67

o In some communities, code administration and enforcement for rehabilitation
follows the same procedures that exist for new construction. Others have
developed processes and procedures specifically tailored to rehabilitation.

o More than three-fourths of the administrators responded that their local processes
provided for pre-application reviews that are a part of the review process for
rehabilitation construction projects.

0 Rehabilitation professionals had a more positive view of pre-application reviews
than did the code administrators.

o Twenty-nine percent of the administrators indicated that building permits are
always required while 40% always required construction documents.

0 If there was a change of use in the existing building, the entire building had to
meet the code requirements for new construction in 35% of the cases; another
35% invoked the new construction code if the new use was more hazardous than

the old use.

The survey results HUD published provided important perspectives that were useful in
future efforts to revise building codes and practices to accelerate the conservation of the
nation’s existing building stock. This survey’s results were also useful for the three model
code organizations, and state and local code agencies in developing efficient
rehabilitation construction codes. New Jersey took a lead in capitalizing on the lessons
learned in the national survey and started developing a comprehensive rehabilitation
code. This code was greatly successful in terms of revitalization and savings in

rehabilitation expenditures, as discussed in detail in the next section.

68

 

New Jersey Uniform Construction Code - Rehabilitation Sub Code [1996 — 1998]

New Jersey issued building permits authorizing construction valued at over $7
billion in 1996. Additions to and alterations of existing structures accounted for about
47% of this amount, and this rate kept increasing as more structures aged [NJ code].
These old buildings, which were built to comply with an earlier building code or with no
code, were often still safe and sound. However, the new building codes penalized owners
deciding to improve existing structures by requiring compliance with regular building
codes at s hitting, unpredictable levels, c ausing rehabilitation c 0515 to be irrational a nd
unpredictable. The building codes that were prepared to meet the requirements of new
construction had very little room for existing structures, which in turn resulted in either a
costlier rehabilitation process or the owners choosing just to abandon the building to
avoid huge investments in rehabilitating the structure. This challenged New Jersey to
develop provisions for existing buildings that were rational and predictable and that
delivered safe, sound rehabilitated structures [NJ Code].

Capitalizing on the knowledge gained and the lessons learned from HUD’s
national survey to identify enforcement of rehabilitation regulations in the United States,
a rehabilitation subcode committee was formed by the Department of Community Affairs
with guidance from a 30—member committee under the coordination of the Center for
Urban Policy Research at Rutgers University. The committee was composed of code
officials, fire officials, architects, historic preservationists, advocates for people with
disabilities, and government representatives [NJ Code].

This committee, formed to work with the rehabilitation guidelines to develop a

exclusive rehabilitation subcode, was the first of its kind in the entire nation. The

69

committee published its first draft of the rehabilitation subcode in the New Jersey
Register on August 18, 1997, for public comments and opinions. After conducting two
public hearings, the rehabilitation subcode was finally released and adopted throughout
the state on January 5, 1998. The published code became the first comprehensive code for
existing buildings. The new rehabilitation subcode achieved overwhelming success as it
made restoration and reuse of old dilapidated buildings possible at reasonable costs,
which inspired numerous building owners to rehabilitate their vacant buildings and bring
regeneration to the state. As a reward for its success, the rehabilitation subcode or "rehab
code" won the national “Innovations in American Govemment” award in 1999, earning
the code’s creator, the New Jersey Department of Community Affairs, a $100,000 prize
[NY GORR]. The effect of the new subcode was amazingly positive, increasing the total

rehabilitation spending dramatically in the state’s largest cities as shown in Table 5.

7O

Table 5: Estimated Cost of Rehabilitation Construction Authorized by Building Permits
Statewide and in Selected New Jersey Cities: 1996, 1997, and 1998 [NJ DCA]

 

 

 

 

 

 

 

 

 

 

 

 

 

Year 1996 1997 1998 Percent Change
Area (million $) (million $) (million $) 1996-97 1997-98
Newark
Housing rehab 22.2 19.3 15,2 _ 12,9 — 21.2
Nonresidential rehab 36.4 48.8 93.3 34,2 90.9
Total rehab 58.6 68.1 108.5 16.4 59.2
Jersey City
Housing rehab 22.5 16.7 17.6 — 25.7 5.5
Nonresidential rehab 29.0 31.8 71.4 9.8 124.4
Total rehab 51.5 48.5 89 — 5.7 83.5
Trenton
Housing rehab 14.4 8.0 10.3 — 44.4 27.8
Nonresidential rehab 18.1 12.9 19.1 — 28.5 47.7
Total rehab 32.5 21.0 29.4 — 35.6 40.1
New Jersey
Housing rehab 1,274.3 1,395.6 1,561.3 9.5 11.9
Nonresidential rehab 2,028.9 2,401.7 2,527.3 18.4 5.2
Total rehab 3,303.2 3,797.3 4,088.6 15.0 7.7
L

 

71

 

The Codes and Standards Division of New Jersey’s Department of Community Affairs
(DCA) estimated that rehabilitation costs were lowered by around 50%, varying between
10 and 60% depending upon the condition of the structure. The long-felt need to address
the issue of rehabilitation cost was duly addressed by this new rehabilitation subcode. As
an example of the success and benefit of the rehabilitation code, as stated by William
Connolly, Director of New Jersey DCA [Forest 1999], “a four-story senior citizen
complex and day care center at 203 Academy Street in Jersey City saved $391,000 in
building costs thanks to the new code. Under the old code, the rehabilitation would have
cost $1,536,000; under the new code, it cost $1,145,000. Before the rehab, the building-
fonnerly an apartment and retail complex—had been vacant for eight years”. Many
similarly triumphant projects have been completed in the state under the new subcode.
Attracted by the economic and implementational successes, many other states (such as
New York, Massachusetts, and Maryland), the lntemational Code Council (ICC) at the

national level, and local governments started developing rehabilitation codes.

Nationally Applicable Recommended Rehabilitation Provisions [1997 — 1998]

The NARRP was a continuation of the efforts of HUD in sponsoring the National
Symposium on the Status of Building Regulations for Housing Rehabilitation, convened
by the NAHB Research Center in May 1995. One of the symposium’s five major
recommendations was to develop detailed national rehabilitation recommendations.
Simultaneously, New Jersey was developing its rehabilitation subcode based on the need
identified by HUD’S national survey. New Jersey’s Code for Rehabilitation of Existing

Buildings served as the starting point for the development of the NARRP. The important

72

focus of the NARRP was to make the existing rehabilitation regulations addressed in the
model codes more comprehensive such that an existing building in which work is to be
undertaken need not be brought up to full compliance with the code requirements for new
construction [NARRP 1999].

In general, the model codes (BOCA, ICBO and SBBCI) categorized work related
to existing structures into four categories: repair, alteration, change of occupancy and
addition. The level of flexibility that was offered by these four categories often left most
buildings with few options for rehabilitation. Identifying this factor, the NARRP
expanded alteration (most important in many rehabilitation projects) into three parts,
thereby increasing the total number of categories to six instead of four. They are:

0 Repair

0 Renovation

o Alteration

0 Reconstruction

0 Change of occupancy

0 Addition

Rehabilitation work on existing structures is classified into these categories in order to
facilitate structuring proportional requirements for additional work instead of penalizing
owners with additional regular building code compliance requirements. Following the
New Jersey Rehabilitation Subcode’s success, the NARRP gained valuable recognition
among various states and local governments in the nation. The NARRP helped to set
forth a recommended framework for addressing all types of rehabilitation work in all
types of buildings (residential, commercial, etc.). These provisions were developed to be

suitable for use by any state, local jurisdiction or model code organization with a

73

minimum of adaptation [NARRP 1999]. Some states and cities that benefited
immediately from this were New York State; Massachusetts; Maryland; Minnesota;
Rhode Island; Wichita, Kansas; and Kansas City, Missouri. Also, some of the major code
development organizations such as the ICC, the Uniform Code for Building Conservation
(UCBC), and the National Fire Protection Association (NFPA) adopted the NARRP as a
revision to their w ork o n e xisting b uilding c odes. The U CBC w as revised in the year
2000 based largely on the NARRP’s concepts of work area and categorization of
rehabilitation work, changing its name to Uniform Code for Existing Buildings (UCEB).
The ICC used various resources in 1999 when it established a code drafting committee
to develop a code exclusively for building rehabilitation, called the International
Existing Building Code [SMART CODES], primarily the New Jersey Rehabilitation
Subcode and the NARRP. Thus, these two major innovations served as the base for all
future research, development and deployment related to building rehabilitation codes in
the United States. In these past five years since the implementation of the New Jersey
Rehabilitation Code and the NARRP, rehabilitation of existing structures widely has been

more lucrative.

74

Innovative Rehabilitation Provisions by HUD [1999]

HUD received an overwhelming response to the NARRP publication that
followed the New Jersey Uniform Construction Code - Rehabilitation Subcode. To
address a wide audience about the need for and importance of the rehabilitation code,
HUD decided to p repare a p ublication as a follow-up to the N ARRP with a real-time
rehabilitation p roject e ncompassing the c osts related to rehabilitation u sing the regular
model building codes and the new NARRP guidelines. HUD requested that the NAHB
Research Center conduct this study in conjunction with a remodeling group based in New
Jersey, Asdal Builders. As a case study project, a 200 year old home in Chester, New
Jersey, was selected [HUD 1999], and a complete study was performed identifying the
cost 0 f rehabilitating this h ome with the 0 1d New Jersey Uniform Construction Code
(NJUCC) and the NARRP/New Jersey Rehabilitation Subcode.

The case study project in Chester, built 200 years before, had a variety of code
issues to comply with in the NJUCC. It had been in need of remodeling for a long time
and had been lying vacant for more than ten years. This project was selected as it met the
requirements of the study in terms of code issues, age of structure and study location,
New Jersey. The old code, the NJUCC used the 25/50 rule for rehabilitation requirements
and, as per this rule, if renovations exceeded 50 percent, the structure was required to
comply with the regular building code. This project exceeded more than 50% of the value
of the building and, hence, the entire structure would have had to comply with the code
requirements for new structures [HUD 1999]. On the other hand, the study revealed that
the new rehabilitation subcode took a lead over the old Unifomr Construction Code with

the new benefits to rehabilitation. This study, sponsored by HUD, had some interesting

75

findings in terms of identifying key areas of cost in rehabilitation of existing structures
using the rehabilitation code, such as:

0 Cost of compliance of the existing Foundations

0 Cost of compliance of the existing Egress Windows

0 Cost of compliance of the existing Corridor Width

0 Cost of compliance of the existing Stair Geometry

0 Cost of compliance of the existing Ceiling Heights
On completion of this study, it was found that there was a net savings of 20.6% in
rehabilitation cost using the new rehabilitation code over the NJ Uniform Construction
Code [HUD 1999]. Cost related benefits were made evident through this study performed

by HUD and the NAHB Research Center.

Maryland Building Rehabilitation Code [1998-2000]

The Maryland Building Rehabilitation Code (MBRC) was created as a part of the Smart
Codes Initiative during Maryland’s 2000 General Assembly session after seeing the
success of the New Jersey Rehabilitation Code. The Maryland Department of Housing
and Community Development, along with the Maryland Rehabilitation Code Advisory
Council, proposed the rehabilitation regulations in February 2001; the final version of the
code became effective throughout the state on June 1, 2001 [MBRC 2001]. The code is
organized in a manner very similar to the NARRP, excepting a few changes in terms,
redefining the NARRP’s “alterations” as “modifications.” These changes were made to

suit Maryland’s local amendments.

76

Smart Codes in Your Community by HUD [2001]

This study, performed for the HUD Office of Policy Development and Research by
Building Technology, Inc., serves as a guide to the building rehabilitation codes that were
developed in the late 1990’s, including HUD’s effort, the NARRP. Though this study was
not very comprehensive, it helped to examine the aspects of the current regulatory system
and identify some areas of complexity in the existing provisions and new codes that may
act to impede the rehabilitation of existing buildings [SMART CODES]. This study also
reviewed the major provisions of HUD’s NARRP, issued in 1997, which established a
model regulatory framework for possible adoption at the state or local level throughout
the nation. This study was a part of HUD’s continued effort to encourage the local
communities to address the need for revitalization through rehabilitation of existing

buildings that are dilapidated and abandoned.

International Existing Building Code followed by Chapter 34 of IBC [2001-2003]

The ICC successfully united all three model codes and formed a comprehensive
international code called the International Building Code (IBC). The IBC followed a
pattern similar to the three model codes and did not have much emphasis on work related
to existing structures. Chapter 34 of the IBC, meant for existing structures, was
addressing the same four categories (alteration, repair, addition and change of occupancy)
as the three model codes. Chapter 34 failed to address all the complex issues related to
work in existing structures, as the work’s flexibility was limited. The ICC came to see the
importance of work in existing structures based on rehabilitation code development in
New Jersey, followed by HUD’s NARRP. This lead to the ICC ’5 formation of a technical

committee to develop a draft of a comprehensive existing building code consistent with

77

the family of similar international codes developed by the ICC [IEBC 2001]. Thus,
Chapter 34 of the IBC was drafted into a comprehensive existing building code, and the
final draft was released for public hearings and comments in August 2001. At this stage
the issues addressed by the IEBC are more related to the IBC and future work will be
carried out by ICC to make it more comprehensive in relation to its other codes, such as
the Fire Code, the Mechanical Code, the Electrical Code and others.

A comparison between the New Jersey Code / NARRP and the IEBC is shown
below. The IEBC categorized as three levels of alteration what the NARRP called
renovation, alteration, and reconstruction. Definitions related to these terms are compiled

in the terminology section that follows this literature review.

 

 

Categories of WormNJ Code / NARRP Categories of Work 1g IEBC
0 Repair 0 Repair
0 Renovation o Alteration - Level I
o Alteration - Alteration - Level 2
0 Reconstruction o Alteration - Level 3
0 Change of occupancy 0 Change of occupancy
0 Addition 0 Addition

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2.4.3 MICHIGAN REHABILITATION CODE

The State of Michigan adopted a single statewide building code, named the
Michigan Building Code, based on State Public Act 245 of 1999. This code is based on
the lntemational Building Code with some minor changes suiting the state’s needs. The
level of benefits that the state code offered for rehabilitation of existing structures was
similar to the ICC code’s Chapter 34. The study by Shay and Syal [2001] identified the
need for implementing a building rehabilitation code in Michigan, which is facing a
similar situation in terms of rehabilitation of existing structures to other states such as
New Jersey and Maryland. Having seen the success of rehabilitation codes and having
felt the need for and importance of a rehabilitation code for the state, the Michigan
Department of Consumer & Industry Services (CIS) formed a rehabilitation code
committee to consider the adoption of a rehabilitation code for Michigan. The committee
began its work by looking at three nationally accepted options for rehabilitation of
existing buildings, such as:

1. The New Jersey Rehabilitation Subcode
2. HUD’s Nationally Applicable Recommended Rehabilitation Provisions

3. Chapter 34 of the lntemational Building Code

The efforts that started in November 2000 lead to the active participation of many experts
in the State of Michigan and to the release of a detailed rehabilitation code for discussion.
Meanwhile, the ICC released the IEBC final draft in August 2001; later, this became the

primary source for the Michigan Rehabilitation Subcode. C IS recently filed the Michigan

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Rehabilitation Code for Existing Buildings with the Secretary of State to become
effective as of October 2002.

Michigan Department of Consumer & Industry Services Director, Noelle Clark,
during the code release session said, “Without these new rules, our communities would
undoubtedly continue to see property owners and developers investing in new
construction rather than using existing buildings. This would mean more aging buildings
would be left abandoned, which would only exacerbate the development of valuable farm
land, increase urban blight and decay, and reduce the tax base that is necessary to make
Michigan cities economically viable” [CIS 2002]. The need for applying this code is
more acute in the old cities of Michigan, such as Detroit, which have a large stock of old,
dilapidated buildings. This research is intended to identify the effectiveness of the new
Michigan Rehabilitation Code to bring urban revitalization to the state, particularly

Detroit, which needs early attention.

2.5 TERMINOLOGY

This section details the terminology that is used in the later part of the thesis to
explain rehabilitation code use and analysis. These terms are adopted from the
lntemational Building Code (IBC) and the final draft of the lntemational Existing
Building Code (IEBC). A few important terms related to the research discussion are
detailed in this section; the remaining terminology is attached as an appendix in the last

part of this report.

80

 

BUILDING:

“Building” means a combination of materials, whether portable or fixed, forming a
structure affording a facility or shelter for use or occupancy by persons, animals, or
property. The term does not include a building incidental to the use for agricultural
purposes of the land on which the building is located if it is not used in the business of

retail trade.

BUILDING OFFICIAL:
“Building official” means the person who is appointed and employed by a governmental
subdivision charged with the administration and enforcement of the state code or codes

and who is registered in accordance with the requirements of 1986 PA 54, MCL

338.2301 et seq.

BUILDING CODE:
Building codes, as defined by the National Fire Protection Agency (NFPA 1999): “A
standard that is an extensive compilation of provisions covering broad subject matter or

that is suitable for adoption into law independently of other codes and standards.”

BUILDING STANDARDS:

Building standards, as defined by the National Fire Protection Agency (NF PA 1999): “A
document the main text of which contains only mandatory provisions using the word
“shall” to indicate requirements and which is in a form generally suitable for mandatory

reference by another standard or code or for adoption into law. Non mandatory

81

 

provisions shall be located in an appendix, footnote, or fine print note and are not to be

considered a part of the requirements of a standard.”

DWELLING:
A building that contains one or two dwelling units used, intended, or designed to be used,

rented, leased, let or hired out to be occupied for living purposes.

DWELLING UNIT:
A single unit providing complete, independent living facilities for one or more persons

including permanent provisions for living, sleeping, eating, cooking and sanitation.

EXISTING STRUCTURE:
A structure erected prior to the date of adoption of the appropriate code, or one for which

a legal building permit has been issued.

REPAIR:
The restoration to a good or sound condition of materials, systems and/or components
that are worn, deteriorated or broken, using materials or components identical to or

closely similar to the existing.

RENOVATION:

The removal and replacement or covering of existing interior or exterior finish, trim,

doors, windows, or other materials with new materials that serve the same purpose and do

82

not change the configuration of space. Renovation shall include the replacement of

equipment or fixtures.

ALTERATION:

The rearrangement of any space by the construction of walls or partitions or by a change
in c eiling height, the addition 0 r elimination o f any (1 oor o r window, the e xtension o r
rearrangement of any system, the installation of any additional equipment or fixtures, and
any work which reduces the loadbearing capacity of or which imposes additional loads

on a primary structural component. The IEBC breaks alteration down into three levels:

0 Altergtion Level 1: Level 1 alterations include the removal and replacement, or
the covering of existing materials, elements, equipment or fixtures using new

materials, elements, equipment or fixtures that serve the same purpose.

. Altergtion Level 2: Level 2 alterations include the reconfiguration of space, the
addition or elimination of any door or window, the reconfiguration or extension

of any system, or the installation of any additional equipment.

0 Altergtion Level 3: Level 3 alterations apply where the work area exceeds 50%

of the aggregate area of the building

RECONSTRUCTION:

Any project where the extent and nature of the work is such that the work area cannot be
occupied while the work is in progress and where a new certificate of occupancy is
required before the work area can be reoccupied. Reconstruction may include repair,

renovation, alteration or any combination thereof.

83

CHANGE OF OCCUPANCY:

A change in the purpose or level of activity within a structure that involves a change in

application of the requirements of the building code or of these provisions.

EQUIPMENT OR FIXTURE:

Any plumbing, heating, electrical, ventilating, air conditioning, refrigerating and fire

protection equipment, and elevators, dumb waiters, escalators, boilers, pressure vessels

and other mechanical facilities or installations, which are related to building services.

Equipment or fixtures shall not include manufacturing, production or process equipment,

but shall include connections from building service to process equipment.

HISTORIC BUILDING:

Any building or structure that is:

1)
2)

3)

4)

Listed in the state or National Register of Historic Places,

Designated as a historic property under local or state designation, law, or survey,
Certified as a contributing resource within a National Register-listed or locally
designated historic district, or

Certified or judged by the State Historic Preservation Officer or the keeper of the
National Register of Historic Places to be eligible to be listed on the state or
National Register of Historic Places either individually or as a building

contributing to a historic district.

84

 

CONSTRUCTION DOCUMENTS:
Written, graphic and pictorial documents prepared or assembled for describing the
design, location and physical characteristics of the elements of a project necessary for

obtaining a building permit.

FIRE PARTITION:
A vertical assembly of materials designed to restrict the spread of fire in which openings

are protected.

FIRE-PROTECTION RATING:
The period of time that an opening protective assembly will maintain the ability to
confine a fire as determined by tests prescribed in Section 714. Ratings are stated in hours

or minutes.

FIRE RESISTANCE:
That property of materials or their assemblies that prevents or retards the passage of

excessive heat, hot gases or flames under conditions of use.

FIRE-RESISTANCE RATING:
The period of time a building element, component or assembly maintains the ability to
confine a fire, continues to perform a given structural function, or both as determined by

the tests, or the methods based on tests, prescribed in Section 703.

85

FIRE WALL:

A fire-resistance—rated wall having protected openings, which restricts the spread of fire
and extends continuously from the foundation to or through the roof, with sufficient
structural stability under fire conditions to allow collapse of construction on either side

without collapse of the wall.

SHAFT:
An enclosed space extending through one or more stories of a building, connecting
vertical openings in successive floors, or floors and roof. Shaft enclosures are the walls or

construction forming the boundaries of a shaft.

HABITABLE SPACE:
A space in a building for living, sleeping, eating or cooking. Bathrooms, toilet rooms,
closets, halls, storage or utility spaces and similar areas are not considered habitable

spaces.

IMPORTANCE FACTOR, I :

A factor that accounts for the degree of hazard to human life and damage to property.

MEANS OF EGRESS:
A continuous and unobstructed path of vertical and horizontal egress traveling from any
point in a building or structure to a public way. A means of egress consists of three

separate and distinct parts: the exit access, the exit and the exit discharge.

86

MEZZANINE:
An intermediate level or levels between the floor and ceiling of any story with an
aggregate floor area of not more than one-third of the area of the room or space in which

the level or levels are located

BUILDING PERMIT:
An official document or certificate issued by the authority having jurisdiction which

authorizes performance of a specified activity.

EXIT:

That portion of a means of egress system which is separated from other interior spaces of
a building or structure by fire-resistance-rated construction and opening protectives as
required to provide a protected path of egress travel between the exit access and the exit
discharge. Exits include exterior exit doors at ground level, exit enclosures, exit

passageways, exterior exit stairs, exterior exit ramps and horizontal exits.

REHABILITATION:
Any work, as described by the categories of work defined herein, undertaken in an

existing building.

TECHNICALLY INF EASIBLE:

An alteration of a building or a facility that has little likelihood of being accomplished

because the existing structural conditions require the removal or alteration of a load-

87

bearing member that is an essential part of the structural frame, or because other existing
physical or site constraints prohibit modification or addition of elements, spaces or
features that are in full and strict compliance with the minimum requirements for new

construction and which are necessary to provide accessibility.

UNSAFE BUILDINGS OR EQUIPMENT:

Buildings or existing equipment that are unsanitary or deficient because of inadequate
means of egress facilities, inadequate light and ventilation, or which constitute a fire
hazard, or are otherwise dangerous to human life or the public welfare, or which involve
illegal or improper occupancy or inadequate maintenance, shall be deemed an unsafe

condition.

2.6 SUMMARY

In this chapter, a detailed review of the literature and the terminology used in
urban revitalization, building rehabilitation and building rehabilitation codes have been
provided. The chronological explanation of rehabilitation code development in the United
States provides the reader with a clear understanding of the need for and use of building
rehabilitation code. The next chapter serves as the foundation to the use and application
of rehabilitation code as it introduces the current practices and a comparison with the new

rehabilitation code provisions.

88

 

CHAPTER THREE

TRADITIONAL REHABILITATION PRACTICES AND
NEW REHABILITATION PROVISIONS

89

 

3.1 INTRODUCTION

The rehabilitation practices currently adopted in Michigan for existing structures are
highly unpredictable and left to the discretion of the local building official. Given the
state’s growing supply of vacant and deteriorating structures, efforts are underway to
implement a building rehabilitation-specific code in the state. In this chapter, the author
has made an attempt to summarize the existing building rehabilitation practices with the
regular building codes and compare them with the provisions developed in the new
rehabilitation code. Specific benefits offered by the new rehabilitation code over the
regular building codes are discussed in this chapter with suitable examples. The New
Jersey Rehabilitation Code, which is the first of its kind, is used to introduce this chapter
and later illustrations based on international code and Michigan’s code are offered for
better understanding. This chapter is divided into five sections:

0 Traditional approaches to building rehabilitation

o The New Jersey Rehabilitation Subcode

0 Provisions of the lntemational Building Code — Chapter 34

0 lntemational Existing Building Code (IEBC)

o The Michigan Rehabilitation Subcode

The p urpose o f these c odes and p rovisions is to e ncourage rehabilitation a nd r euse o f
legally existing buildings, permitting repairs, renovations, alterations, reconstructions,
additions, and change of occupancy. Each of these processes is illustrated with suitable

examples for the benefit of the reader.

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3.2 TRADITIONAL APPROACHES TO BUILDING REHABILITATION

This section is categorized into three sub divisions, two detailing the traditional
rehabilitation approaches that were practiced in various states and local governments in
the United States, and the third division summarizing the critical issues in traditional

rehabilitation practice.

3.2.1 REHABILITATION PRACTICES USING PERCENTAGE VALUES

Traditionally rehabilitation works in existing buildings are primarily dependent on the
cost of rehabilitation associated with the project. The higher the cost of rehabilitation, the
greater the need for the entire structure to comply with the standards that are enforced for
new construction. This system of rehabilitation adopted in many states is widely known
as the 25/50 rule. For example, in New Jersey before the rehabilitation subcode was
introduced, the Uniform Construction Code (UCC) was used statewide for all works
related to existing structures. The UCC used the same 25/50 rule to determine the level of
compliance of the structure with the code requirements for newly built structures
[NAHBRC 1999 and Shay 2001]. Under this rule, the total value of a building was
determined and then compared with the total estimated cost of the rehabilitation work by

calculating the percentage of value (PV).

 

Percentage of Value (PV) = Cost of Rehabilitation * 100

 

Cost Value of the Building

 

 

 

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Based on the PV calculated for the structure, the required degree of compliance to
the requirements for new buildings is determined. Three areas of threshold percentage
values are determined based on the relation of the cost of rehabilitation to the cost value
of the building:

(a) PV less than 25% ofthe building’s value

(b) PV between 25% and 50% ofthe building’s value

(c) PV over 50% ofthe building’s value

In case of a percentage value less than 25 percent, where the cost of the work is
under 25% of the value of the structure, the building code provides flexibility to the local
building code official to determine the degree to which the alteration work should meet
code requirements similar to those for new construction. In many such cases, to avoid the
risk of liability that may fall on the shoulders of the building code official in the future, it
was found that usually the structures were rehabilitated with the new structure
requirements. This situation offered the building code officials greater levels of
discretionary powers, leaving the owners with very little predictability of the costs
involved in rehabilitation and often resulted in a very high cost for rehabilitation.

In the second case, where the percentage value of rehabilitation is between 25%
and 50%, the building code requires all altered or repaired portions to meet the
requirements of the new construction. This requirement of the alteration to comply with
the new code was often not permitted or was technically infeasible with the existing
configuration of the structure. As a result of this infeasibility, projects result in high

levels of variation in the existing parts of the structure that are not altered of changed.

92

The owner who wanted to add a small thing like a storeroom or a restroom to the existing
building was forced to rework most of the parts of the building; that made rehabilitation a
costly issue. In addition, it lead to increased levels of unpredictability for the owner in
investing in smaller rehabilitations to improve the conditions of the structure to new

construction standards.

Table 6: REHABILITATION PROCESS WITH PERCENTAGE VALUES

 

 

 

 

 

 

 

 

 

Disadvantage of PV Less PV Between PV Greater
S.No using Model Codes than 25% 25% - 50% than 50%
. Code requires
. Code requ1res the .
Code Offic1al (CO) . that the entire
Procedure . alterations made
decrdes degree of . structure
1 Adopted for . to comply w1th .
compliance of the comply w1th
Compliance . new structure
pr0j ect to code _ new structure
Requirements requ1rements .
requ1rements
Higher cost as CO Project penalized Very high
2 Effect on Cost of _ . .
1ncreases scope to w1th very hlgh cost of
Rehabilitation _ _ . . . . . . .
reduce liability rehab1lrtatron cost rehabilitation
Low predictability lnfeasibility of Often owners
3 Effect on Rehab of rehab cost by project often avoid rehab,
Process (Owner) owner — increased results in high afraid of cost
L variation levels of variation associated

 

93

 

In the third case, where the percentage value of the rehabilitation work exceeded
50%, the building code declared the building unfit for reuse and forced the entire building
to be rehabilitated as per the requirements for new construction. This not only affected
the rehabilitation scope of the project, but also affected the portions of the building that
were not planned for rehabilitation. For example, a building which has three stories and
has an occupant load of 200 people, built in the early 1900’s, would often have one
means of egress. Assume that the owner submits a proposal to add a extra floor to the
existing building to meet increased demand, and a building evaluation process is
performed on the structure. If the percentage value is more than 50 percent, then the
entire building has to comply with the new structure requirements. In this case, the
building that had only one means of egress is forced to be rehabilitated with two means of
egress as per the building code, and this leaves the owner with higher costs of
rehabilitation. Because of this, many structures that have potential for reuse are left

vacant and allowed to dilapidate over time.

In addition to the percentage value-based code compliance regulations for existing
structures, there were three other major limitations of using the regular building codes
such as:
0 Area modification in existing structures during the rehabilitation process when
additions were made to the existing configuration
0 Accessibility requirements in existing structures
0 Change of occupancy compliance requirements, where the change of use is made

in the existing structure

94

This can be more vividly explained with an example of an existing structure. Let us
consider a structure that was built 50 years ago, used as an Educational facility and
classified as a Group E building. If the owner decides to rehabilitate this old educational
facility and has two options: to rehabilitate the building to the same use again or to
convert this school building into a institutional facility under Group I, an occupancy
group including hospitals, penal or correctional facilities or day care and child care
facilities. For option two, the code requirements under the regular building codes are
very severe.

Let us first consider first the option of rehabilitating the structure to the same use.
As this structure was erected prior to November 6, 1975, and did not follow any
prescribed standard building code, the area limitations and the accessibility requirements
of the new code are not similar to the state of the building. When additions to such old
structures during rehabilitation exceed 5% of the area of the existing building, then the
existing structure is required to meet current building code for items such as interior
finishes, lighting, ventilation, means of egress, sizes of windows, open space, seismic
requirements, and fire protection and safety. If the value of the rehabilitation of the
existing structure is more than 50% of the actual building value, then the accessibility
compliance imposed by the modern building code during rehabilitation is considerably
strong. The new rehabilitated structure needs to address accessibility requirements such
as elevators, platform (wheelchair) lifts, stairs and escalators, ramps, dining areas,
performance areas, assembly areas, toilet rooms, sales and service counters and,

maximum height of thresholds at the doorways.

95

Now, let us consider the second option in which the owner decides to change the
use of the existing building from an educational use to an institutional use. As per the
model building codes, whenever a change in use is proposed for an existing structure,
then the e ntire structure n eeds to c omply with the p roposed n ew u se group’s b uilding
code requirements, Group I’s requirements in this case. When an entire building must be
brought to compliance with the new code requirements, the scope of rehabilitation is very
high, and this situation often leaves the owner with highly unpredictable rehabilitation
costs. Many existing structures have had rehabilitation plans shelved in the past because
of these code complications and higher rehabilitation costs, leaving behind old and

dilapidated structures.

3.2.2 BENCHMARKING OF EXISTING STRUCTURES WITH NEW

STRUCTURES

The method of benchmarking an existing structure with a similar new
structure to determine the scope of rehabilitation was widely found in the model codes, in
particular the BOCA National Building Code. This method is outlined in detail in
Chapter 34 of the BOCA code. This method is an alternative approach to the percentage
value method. The benchmarking method [Connolly 1999] is based on an extensive
evaluation of the existing structure for its condition and features. Benchmarking is
performed with the standards of a new structure and points are designated during the

evaluation process. These points are then used to determine the scope of rehabilitation.

96

Various features in the existing building such as the general building height and
area, type of construction, fire protection systems, interior finishes, means of egress,
accessibility, energy efficiency, condition of exterior walls, roof assemblies, structural
design, condition and stability, windows and doors, glazing, electrical systems,
mechanical systems, plumbing systems, elevators and conveying systems, the
encroachment of structures into the public right-of-way, and standards and quality of the
materials used in the building, are compared to the existing levels in new structures and
points are assigned to the existing structure.

Let us consider an example with one of the features of the existing structure, the
means of egress. In the old building under rehabilitation, the design, construction and
arrangement of means of egress components, which are required to provide an approved
means of egress from the structure, are studied and benchmarked with the same qualities
of the new structure’s means of egress standards. If the structure has sufficient features
that either meet or exceed the code requirements for a new structure, then positive points
are assessed to the existing structure. Negative points are assessed for the features in the
existing building that are evaluated as hazardous and not safeguarding public health and
safety. Zero points are awarded for those features that neither have a positive effect nor
have a negative effect [Connolly 1999].

If the net cumulative points of the evaluation are positive, then the building
code official has the authority to decide upon the level and scope of rehabilitation to be
performed on the structure. If the evaluation yields negative points, then without any
further option, the entire structure must comply with the code requirements for new

structures. In this case, means of egress features such as egress width per occupant

97

served, door openings into the path of egress travel, egress ceiling height, minimum
headroom, type of walking surfaces of the means of egress, changes in elevation, egress
continuity, exit signs, and the openness of the egress to minimize the accumulation of
smoke or toxic gases during emergencies contribute to the points assessed in the
evaluation. This system was widely used in determining the scope of rehabilitation, but
often penalized owners by requiring additional costs to improve the standards and

features of the existing building to make them similar to those of new structures.

3.2.3 SUMMARY OF CRITICAL ISSUES IN TRADITIONAL PRACTICE
Some of the critical issues in traditional building rehabilitation practice, that often
increased the scope and cost of rehabilitation and were not addressed by the model

building codes or the state and local codes are as follows:

(a) The primary critical issue is the code compliance related to change of
occupancy in an existing building. When there is a change of use in the
proposed rehabilitation, the entire structure must comply with the

requirements of the proposed new use as per the regular building code.

(b) There is a possibility that the building materials and methods used in old
structures built over the past 100 years not meeting the current building
codes’ material and method standards. These codes often impose change
in the building’s existing materials to meet the current standards, thereby

increasing the cost of rehabilitation.

98

(c)

(d)

(6)

Compatibility of the geometry of the existing structure with the current
building codes’ geometric standards is often not possible because of the
change in people’s tastes and architectural styles over time. For example,
the new requirements for stairway geometry with the minimum tread (11
inches / 279 mm minimum) and maximum riser (7 inches / 178 mm
maximum) dimensions causes existing stairs to be declared too steep and
forces replacement as per the new stair standards. The stair rooms that
were (1 esigned for the e xisting stairs c annot accommodate the n ew stair
dimensions, which often results in complete demolition of the existing

stairs and provision of new stairs, a massive investment for the owner

Enforcement of new building requirements and regulations on existing
structures generates a strong barrier to the rehabilitation of historic
structures. Most historic structures lose their important historical value
when remodeled with the code requirements of new buildings. This serves
as a barrier to historical preservation efforts [Connolly 1999]. Some
building code parameters that often pose danger to historical structures are
the stairways, doorway width, corridor width, interior and exterior

finishes, and the materials used in the building.

The dimensional requirements of existing structures such as minimum

room widths, minimum ceiling heights, room sizes, dead-end corridor

99

3.3

(f)

(8)

lengths and dimensions of the structural elements necessitate change in the
existing structures to a magnitude which is close to building a new
structure. Changing these dimensions in the existing structure results in

very high costs of rehabilitation.

Uncertainty among different building code officials in the same region in
defining the scope of rehabilitation that is necessary to improve the safety
of the existing structure. Because of this uncertainty, building owners are
left with minimal information about the costs associated with the
rehabilitation process, which often results in shelving the project without

rehabilitation.

One other critical issue in the traditional rehabilitation procedure is the
absence 0 f p reliminary discussions and m eetings b etween b uilding c ode
officials, designers and building owners to define the scope of the
proposed rehabilitation work, which will decrease the level of uncertainty

that exists in rehabilitation projects.

NEW JERSEY REHABILITATION CODE

New Jersey adopted the Uniform Construction C ode (UCC) in January 1977 for

all new construction in the state. Until recently, the same code was used for both new

construction and existing structures. The UCC used the 25/50 Percent Percentage Value

(PV) rule for all the works related to rehabilitation. As explained in the previous section,

100

the 25 and 50 percentages refer to the cost of the building’s rehabilitation work, which
determines the required degree of compliance to the Uniform Construction Code. If the
value of the rehabilitation work is within 25% of the total building value, then the code
official has the authority to decide the level of compliance. If the value of work is
between 25% and 50% of the structure’s value, then the sections of the building that
undergo alteration should comply with the new building requirements, and if the cost is
more than 50% of the total value, then the entire structure must comply with the
requirements of a new structure.

In New Jersey, out of the total $7 billion spent on construction works, about 48%
is spent for works related to alterations and additions to existing structures. This
percentage has grown over the years as more and more structures are aging and requiring
rehabilitation. The 25/50% rule in many cases made it very difficult for owners to afford
rehabilitation, as the new additions or alterations that were made often exceeded 50% of
the value of the building. As the need for rehabilitation in the state grew, the Department
of Community Affairs - Codes and Standards Division formed a 30-member
Rehabilitation S ubcode C ommittee u nder the guidance 0 f t he C enter for U rban P olicy
Research at Rutgers University [NJ CODE]. This committee worked over a period of two
years starting in 1995 and releasing the first complete draft of the rehabilitation subcode
for public hearing in 1997. The rehabilitation subcode was finally approved and adepted
throughout the state in January 1998. This became the nation’s first individual
rehabilitation.

The core concept of the rehabilitation subcode was to designate the compliance

requirements for rehabilitation of existing buildings based on the nature of the work

101

instead of cost of the work to be executed. The compliance requirements of existing
buildings are entirely different from the requirements of new construction, which caused
the rehabilitation code committee to formulate four different sets of compliance
requirements for works related to existing buildings [Connolly 1999]. The four sets of

requirements categorized by the rehabilitation code are:

0 Materials and methods
0 New building elements
0 Basic requirements

0 Supplemental requirements

These five sets of requirements form the skeleton of the rehabilitation project and

determines the compliance standards of the work to be executed.

3.3.1 Materials and Methods: The materials used in new construction and the
methods adopted for executing particular work in new construction are very different
from the ones used many years ago. The new rehabilitation code specifies the material
requirements and explains how to use the materials for the selected project. The scoping
requirements (provisions that define what must be done for compliance) that model codes
adopted for new buildings were revised, developing new material and method
requirements for rehabilitation projects. These requirements were developed considering
the standards and materials used in the late 1800’s and the early 1900’s for construction.

For example, the fire protection systems that are required as per the regular code use

102

advanced materials and methods. Changing the materials and methods to those used in
new buildings will impose very high rehabilitation costs. This problem is addressed in

the requirement section of the rehabilitation code.

3.3.2 New Building Elements: Any new building element that is added to the existing
building as a part of the rehabilitation project shall comply with the requirements of the
new construction without affecting the existing building elements. Examples of new
building elements defined in this section of the code are new corridors, installation of a
new floor system which did not previously exist, new additional stories put up without
increasing the height of the building, new floor openings, new door openings, newly
created exit stairways, fire escapes, newly constructed mezzanines, new stages and

platforms, newly installed electrical service equipments, and new window openings.

3.3.3 Basic requirements: These are the most fundamental scoping requirements,
which are essential as health and safety standards. The basic requirements are only
imposed on the areas of the project that are under rehabilitation, which is very different
from traditional practices. Some of the important parts of a rehabilitation project covered

under these basic requirements are:

1. No. of Exits: Exit requirements for a defined story level and occupant load in an

existing building in the presence of the existing exits and newly planned exits.

103

. Egress Doorways: Minimum number of egress doorways required for a given
number 0 f rooms for a specified 0 ccupant load and a p articular travel distance

from the farthest point in the building to the nearest exit.

Capacity of Means of Egress: Detemrination of the minimum and allowable
capacity of the means of egress for the given occupant load in a building to serve

emergency exit needs.

. Dead End Corridors: L ength and dimension requirements 0 f the e xisting d ead

ends and corridors.

Means of Egress Lighting: Artificial lighting requirements in the means of egress
path with specifications on intensity of the light and the spacing of the lighting
elements. The requirements also specify the need for electrical system compliance

with the National Electrical Code (NEC) NFPA 70.

. Illuminated Exit Signs: Illuminated exit signs required for all means of egress,

rooms and spaces leading to exits. Requirements of exit sign visibility and

supplemental directional signs when necessary are covered in this section.

. Handrails: Stairways having three or more risers which are not provided with

handrails or have existing handrails that are in danger of collapsing when used for

104

10.

II.

12.

emergency must be supplied with handrails complying with the requirements of

this section.

Guards: Guard requirements exist for every portion of a stair, landing or balcony
which is more than 30 inches above the floor grade, including new provisions and
existing areas which have guards in danger of collapsing when used in emergency

conditions.

Vertical Opening: V ertical o pening p rotection in the interior 5 tairways a nd the

openings connecting different floor levels.

Structural Elements: Compliance requirements for structural elements that are
uncovered during the course of rehabilitation and found to be unsound or
otherwise structurally deficient. The load carrying capacity and deflection allowed

are specified in these requirements.

Plumbing Fixtures: Requirements for the substitution or omission of fixtures as
specified in the plumbing code, such as water closets, lavatories, drinking water

facilities, and service sinks, based on the total serving occupancy load.

Mechanical Requirements: Need for either natural or mechanical ventilation

systems in the existing building. Natural ventilation includes provision of

openable doors, windows, louvers, and other openings in the building with

105

requirements specifying minimum openable area with respect to the floor area
being ventilated. Mechanical ventilation includes provision of HVAC systems

with minimum Cubic Feet per Minute (CF M) of ventilation air per person.

13. Interior Finishes: Flame spread rating requirements for existing interior finishes
of walls and ceilings. Materials permitted for interior finishes and treatment
procedures for the existing materials to secure compliance with code requirements

are detailed in this section.

14. Specific occupancy areas: Specific occupancy areas such as paint shops that
contain chemicals, incinerator rooms, physical plant maintenance shops, and
laundries in excess of 10 square feet in area shall comply with the requirements

specified in this section.

3.3.4 Supplemental Requirements: Supplemental requirements are the additional
work scoping requirements that are essential to meet health and safety standards in any
building in which the work area exceeds a certain size. Each supplemental requirement is
designated with its own threshold values dependent upon the existing building under
rehabilitation. These requirements are developed as an alternative to the 50% and above

characteristics of the percentage value approach to building rehabilitation.

106

Automatic Fire Suppression System: Installation of an automatic fire suppression
system throughout the building for the work area exceeding the threshold work

area limit (gross enclosed floor area) is required.

Automatic Alarm Systems: When the work area exceeds a certain percentage of
the gross enclosed floor area of the building, installation of an automatic fire
alarm system that complies with NFPA 72 is required in the area under

rehabilitation. The percentages are calculated for each occupancy.

Manual Alarm Systems: Based on the number of stories, work area percentage
and occupant load, manual alarm systems are made essential as per the

requirements imposed for each occupancy group.

Vertical Opening Protection: When the work area exceeds 50 percent of the
gross enclosed floor area of the building, vertical opening protection requirements

are enforced and are assigned based on occupancy group.

Requirements for High-Rise Buildings: Any building or structure having one or
more floors used for human occupancy located either more than six stories or
more than 75 feet above the lowest level accessible to a fire department vehicle is
designated as a high rise building. If rehabilitation works in existing high rise
buildings are m ore than a specified p ercentage ofthe total w ork area, then the

supplemental requirements such as approved smoke control or smoke removal

107

systems, emergency control devices in elevators and others are necessitated as per

the condition of the existing hi gh-rise structure.

The fourteen basic requirements and five supplemental requirements detailed above are
formulated in the new rehabilitation code based on the lessons learned by the expert
committee studying various constraints that exist in the work related to the existing
buildings. Each of these basic and supplemental requirements is explained in detail for all
the ten groups of buildings (as shown in Table 7) classified based on the occupancy type
and use. One of the occupancy groups is chosen for discussion of all the above-

mentioned requirements with suitable examples for better understanding.

3.3.5 CATEGORIES OF WORK DEFINED BASED ON SCOPE OF
REHABILITATION

Before the rehabilitation subcode’s formation, all rehabilitation projects fell into three
categories: minor alterations, major additions and change of occupancy. The scope of
each category of work was defined by the 25/50 rule. The rehabilitation subcode
committee’s first successful effort was to define the scope of rehabilitation work in
existing buildings more clearly and categorize the work into smaller, more detailed units
that are easier to understand and use. The six major categories of rehabilitation work as

categorized by the New Jersey Rehabilitation Subcode are:

108

 

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110

0 Repair

0 Renovation

 

REHABILITATION

 

 

 

o Alteration
0 Reconstruction
0 Change of use

0 Additions

In general, the six categories of work can be grouped into three divisions: rehabilitation,
change of use and additions. The first task in any rehabilitation project is to define the
work as one or more of the above categories and then follow the basic and supplemental
compliance requirements for each category as defined in the rehabilitation subcode. For
better understanding of the categories of work, the following definitions are adopted from
the New Jersey Rehabilitation Subcode:

Rehabilitation as defined by the subcode is the process that comprises repairs,
renovations, alterations and reconstruction depending upon the condition of the existing

building under consideration. These four categories of rehabilitation are defined in the

rehabilitation subcode [NJ CODE] as follows:

REPAIRS: Repair is the restoration to a good or sound condition of
materials, systems and/or components that are worn,
deteriorated or broken, using materials or components identical

to or closely similar to the existing.

111

RENO VA T ION:

AL TERA TION:

RECONSTRUCTION:

3.3.5.1

REPAIRS

Renovation is the removal and replacement or covering of
existing interior or exterior finish, trim, doors, windows, or
other materials with new materials that serve the same purpose
and do not change the configuration of space. Renovation shall

include the replacement of equipment or fixtures.

Alteration is the rearrangement of any space by the
construction of walls or partitions or by a change in ceiling
height, the addition or elimination of any door or window, the
extension or rearrangement of any system, the installation of
any additional equipment or fixtures and any work which
reduces the load bearing capacity of or which imposes

additional loads on a primary structural component.

Reconstruction is any project for which the extent and nature of
the work is such that the work area cannot be occupied while
the work is in progress and for which a new certificate of
occupancy is required before the work area can be reoccupied.
Reconstruction may include repair, renovation, alteration or
any combination thereof. Reconstruction shall not include
projects comprised only of floor finish replacement, painting or
wallpapering, or the replacement of equipment or furnishings.
Asbestos hazard abatement and lead hazard abatement projects
shall not be classified as reconstruction solely because

occupancy of the work area is not permitted.

Repairs of existing buildings should not cause any diminution of existing structural

strength, system capacity, and existing mechanical ventilation. For the works in this

112

category, new introduced fixed loads should not exceed the load criteria as defined by the
standard building code. For better understanding, some of the works that are considered
renovation, alteration, and or reconstruction and do not fall into the category of repairs

are given below [NJ CODE]:

The cutting away of any wall, partition, or portion thereof;

The permanent, partial or complete removal of any primary structural component;

The removal or rearrangement of any part of a required means of egress;

Addition to, alteration or relocation of:
(1) Any fire protection system piping;
(2) Water supply, sewer, drainage, gas, oil, waste, vent, or similar piping;
(3) Electrical wiring, other than wiring for a low voltage communication
system in a one or two family dwelling;
(4) Mechanical system components such as ductwork; or

(5) Elevator devices.

The products and practices that are not allowed as per the rehabilitation code are
detailed in a manner so as to avoid confusion of the materials and methods to be used.
For example, in repair works of potable water systems in existing buildings, solder
having more than 0.2% of lead may not be used. Similarly, existing electrical materials
and supplies in a building can be used for repair works provided they are approved by the

standard testing laboratories for safety issues. Existing systems and materials in the

113

building are a ccepted b y the n ew code p rovided they are a ccepted a 3 per the n ational

standards as defined by the rehabilitation subcode.

3.3.5.2 RENOVATIONS
Unlike repairs, renovations facilitate the replacement of materials in the existing building
to a certain level to restore the building for improved use without reconfiguring the
existing space. Renovation works include replacement of interior finish materials and
replacement of worn out doors and windows. For example, in renovation works,
windows may be replaced with windows like those existing without meeting the size
requirements of the building subcode. In an example where the size of window openings
is being changed, as per the rehabilitation code at least one window shall:

0 Be openable;

0 Have a sill height of not more than 44 inches;

0 Have a width of at least 20 inches, 3 height of at least 24 inches with a minimum

total area of 5.7 square feet measured from head to sill.

Exception: New window openings in sleeping rooms shall not be required to meet these
requirements in buildings where the sleeping room is provided with a door to a
corridor having access to two remote exits or in buildings equipped throughout with an

automatic fire suppression system.

3.3.5.3 ALTERATIONS
While w orking o n a rehabilitation p roject, i ft here is a n eed to reconfigure the

existing space in any part ofthe building to suit changed needs or to improve the existing

114

configuration, then the work is categorized as alteration. The requirements (both basic
and supplemental) for works related to alterations are higher than those for repair and
renovation.

Similar to repair and renovation, alteration work should not cause any diminution
of existing structural strength, system capacity or mechanical ventilation. The
replacement or addition of fixtures, equipment or appliances should not increase loads on
the existing systems unless the system is upgraded in accordance with the applicable
Uniform Construction Code (UCC) subcode to accommodate the increased load. During
alteration works, the existing fire alarm, fire suppression and standpipe systems should
not be removed without replacement and these systems should be maintained as per the
requirements specified in the rehabilitation code. Some of the factors in an existing
building that are affected by alterations should comply to the requirements put forth in
the rehabilitation code.

For example, n an existing building where the existing space is altered, an
accessible path of travel to the altered space should be provided up to the point at which
the cost of providing accessibility is disproportionate to the cost of the overall alteration
(a cost is considered disproportionate if it exceeds 20% of the cost of the alteration work).
The accessible path of travel should include an accessible parking space, an accessible
exterior route, an accessible building entrance, an accessible interior route to the altered
area, accessible restrooms, accessible drinking fountains, and accessible telephones
serving the altered primary function space. Under primary circumstances, priority should

be given to providing an accessible entrance or accessible restrooms where possible.

115

3.3.5.4 RECONSTRUCTION

In a rehabilitation project, if the work performed or to be performed in phases is
so extensive that the project would require a new certificate of occupancy, and if the
work were performed at one time, then as per the rehabilitation subcode, the construction
official has the right to designate the project a reconstruction project. The structure
should comply with the requirements (basic and supplemental) of the reconstruction
section of the rehabilitation code for the respective occupancy classification.

Generally, a reconstruction-type rehabilitation project involves extensive work on
facets of the interior of a building such as doors, windows, electrical receptacles, floor
coverings, plumbing materials, water closets, bathrooms or toilet rooms, room fixtures,
entrance steps into the building, vertical access (elevators or platform lifts), existing
appliances and their circuits, handrails and guardrails at the means of egress and vertical
openings, mechanical and electrical systems, and changes in the permissible dimensions
of building elements such as corridor width, egress width, the longest path of travel to

egress and others.

The primary responsibility of code officials or building owners is to clearly define
a rehabilitation project into one of the above-explained four categories. Once the right
category of work has been chosen, the requirements for code compliance are detailed as
per the respective section of the rehabilitation subcode for the structure’s corresponding
occupancy group. If the owner decides either to change from the existing use or to add
more structure to the existing building, the compliance requirements specified by

remaining the two categories, change in use and additions, are followed.

116

3.3.5.5 CHANGE OF USE

Change of use in an existing building usually is based on two parameters: if the
occupancy group of the building is changed from one group to the other, or if there is a
change in the nature or intensity of the same use group. For example, if a building that
was used for an institutional purpose (Group I) such as an hospital or a child care facility
is planned to have a change in use to a educational facility (Group E), then the project is
designated to have a change in use. Traditionally, all the projects that have a change of
use should comply to the code requirements similar to that of a new building irrespective
of the type of change made and the magnitude of hazard involved.

This attempt to address the change of use is considered one of the best in the
entire rehabilitation subcode’s efforts. The rehabilitation code categorizes the occupancy
groups into certain hazard levels by assigning numerical values to each group. The
relative use group hazard ranges from 1 to 5, where l designates the highest hazard level
and 5 the lowest h azard level. Also, the rehabilitation c ode c ategorizes the o ccupancy
groups with some specific subsections to address the specific requirements raised by that
subsection. The subsections for which basic requirements of compliance have been
established are: means of egress, enclosure of vertical openings, height and area
limitations, exterior wall fire resistance, fire suppression systems, fire alarm systems, fire
detection systems, accessibility, structural soundness, and plumbing, electrical, and
mechanical systems. Table 8 illustrates the relative use group hazard for the ten

occupancy groups.

117

Table 8: Hazard Category for Occupancy Classification Groups [NJ CODE]

 

RELATIVE USE GROUP HAZARD

 

 

 

 

 

 

Relative Hazard Occupancy Group
I Hi hest
( g ) H-1, H-2, H-3

2
A-l, A-2, H-4,F-1, 1-3, M, S-1

3
A-3, A-S, B, F-2, 1-2, R-l, S-2

4 A-4, E, H , R-2 more than two stories in height
or more than four dwelling units

5 (Lowest) R-Z two stories or fewer in height and four

dwelling units or fewer, R-3, R-4, U

 

 

 

 

In general, all the work related to rehabilitation will be based on the relative use group
hazard rating of each hazard level. If when the change of use is executed the building
remains in the same hazard level or moves to a lower hazard level, then the rehabilitation
code specifies the compliance requirements for the change, which are very flexible.
When the use of a building is changed to a higher relative use group hazard as shown in
Table 8, then the basic requirements of Uniform Construction Code should be applied
throughout the building for the new use group, unless otherwise provided. This relative

use group hazard is used for determining all compliance requirements, but certain

118

important subsections, as mentioned previously, are further researched and the specific
relative hazard values pertaining to that particular subsection (element) were tabulated in
the rehabilitation code. For all work related to means of egress in a change of use
rehabilitation project, the relative hazard value for the corresponding occupancy group is
specified by the specific relative hazard table, Table 9, and all the work executed related
to means of egress must comply to the code specifications for a respective change in the

hazard category.

Table 9: Hazard Category for Subsection MEANS OF EGRESS [NJ CODE]

 

 

 

 

 

 

 

MEANS OF EGRESS
HAZARD CATEGORIES AND CLASSIFICATIONS

Relative Hazard Occupancy Group

1 (Highest) H-1, H-2, H-3

2 1—2, 1-3

3 A, E, I-1,M, R-1,R-2

4 B, F-1,R-3, R-4, S-l, 1+4

5 (Lowest) - F-2, 5.2, u

 

 

 

 

For e xample, w hen a change 0 fu se to a higher h azard c ategory is m ade 3 s s hown in

Table 9, vertical opening protection should be provided for all stairs that are part of a

119

required means of egress serving the proposed floor of work all the levels of exit
discharge. Some of the elements of the buildings are made essential as a part of means of
egress when the change in use to higher hazard is made. For example, when a change of
use is made to any residential use group (R-l, R-2, R-3 or R-4) or to use group I-l, every
sleeping room below the fourth story should have at least one openable window or
exterior door that can serve as an means of egress in case of emergency. Table 10
illustrates the relative hazard category developed based on the height and area limitations

in a rehabilitation project involving change of use.

Table 10: Hazard Category for Subsection HEIGHT AND AREA [NJ CODE]

 

 

 

 

 

 

HEIGHT AND AREA LIMITATIONS
HAZARD CATEGORIES AND CLASSIFICATIONS
Relative Hazard Occupancy Group
1 (Highest) A-2,H-1,H-2, 1—2, 1-3
2 A-1,A-3, E, F-l,H-3, H-4, M, I-1,S-1
3 A-4, B, R-l, R-2
4 (Lowest) F-2, R-3, R-4, 3.2, U

 

 

 

 

3.3.5.6 ADDITION
Any additional structure built to the existing structure changing the overall

building area and dimensions (height, width, frontage etc.) must comply with the

120

requirements imposed by this section of the rehabilitation subcode as similar to new
buildings, while changes caused in the existing structure because of this addition are
addressed by the aforementioned rehabilitation code work categories (such as repair,
renovation, alteration, and reconstruction). Based on the magnitude of the addition being
constructed, it is essential to identify the work category under which the existing structure
is rehabilitated to suit the new addition. The compliance requirements for the identifified
work category are then followed for rehabilitation.

Some of the primary criteria set forth by the rehabilitation code address
change in overall height and area of the existing structure due to the addition. No addition
shall increase the height of an existing building beyond that permitted under the
applicable provisions of the building subcode for a new building of the same use group.
Also, no addition shall increase the area of an existing building beyond that permitted
under the applicable provisions of the building subcode unless a fire wall is provided in
accordance with fire protection requirements of the building subcode. The new
rehabilitation subcode offers some interesting exceptions to these requirements in certain
groups of occupancy.

For example, existing one and two story buildings may be expanded beyond
what is permitted by the local building code / regulations by up to 25% of the existing
floor area without providing fire separation. This exception may be applied only once in

the life of the building or may be used in increments that total not more than 25% over

the life of the building.

121

3.3.6 ACTUAL PROCESS OF USING THE REHABILITATION SUBCODE

In any rehabilitation project using the new rehabilitation code, the primary task is
to designate the building under consideration within one of the six categories of
rehabilitation (repair, renovation, alteration, reconstruction, change of use and
addition). Once the category of work is identified, the compliance requirements, both
basic and supplemental, are detailed for the intended scope. Based on these
requirements, the detailed scope (specifications) for rehabilitation are prepared. This
process reduces factors of uncertainty by clearly defining the scope of work in the
intended work area.

To facilitate better understanding of the rehabilitation code provisions, the author
explains the basic requirements for a particular occupancy group and for a defined work
category. As an example, let us assume we are rehabilitating a old office building which
was traditionally used for professional services. This building is classified under the
occupancy group B. Based on the existing conditions, it is assumed that building
rehabilitation work is categorized as alteration. For this defined scope, a complete set of
basic requirements as per the rehabilitation code compliance requirements is detailed in
tabular format in the next section. For each of the basic requirements, the corresponding

exceptions and suitable examples are provided for better understanding.

122

 

BASIC REQUIREMENTS
(For Occupancy Group “B”)

Exceptions Allowed
(With examples)

 

(a) Exits:

 

Two exits shall be required for

less than 500

stories with
occupants.

Three exits shall be required for
stories with 501 to 1,000
occupants.

Four exits shall be required for
stories with more than 1,000
occupants.

Two means of egress are also
required from all mezzanines
with an occupant load greater
than 50 and with exit travel

distance greater than 75 feet.

 

Exceptions Permitted:

1. When more than one exit is required,
existing fire escapes shall be accepted as
Providing one of the required means of
egress unless judged to be dangerous for
use under emergency exiting conditions.
For use of fire escapes, access shall be
through a door except when serving an
occupant load of 10 or fewer. All
occupants shall have unobstructed access
to fire escapes without having to pass

through a room subject to locking.

i. When more than one exit is required
and there is not sufficient space for

an exterior stair within the lot line, a new
fire escape shall be accepted as providing

one of the required means of egress.

2. A single exit is permitted in the story at
the level of exit discharge when the
occupant load of the story does not
exceed 50 and the exit access travel

distance does not exceed 75 feet.

3. A single exit shall be permitted in
buildings of not more than two stories in

height, with not more than 3,000 square

 

123

 

 

feet per floor when the exit access travel
distance does not exceed 75 feet and a
minimum fire resistance rating of one
hour is provided for the exit enclosure and

the opening protection.

 

(b)

Egress Doorways:

A minimum of two egress
doorways shall be required for all
rooms and spaces with an occupant
load greater than 50 or in which the
travel distance exceeds 75 feet.

All egress doors serving an
occupant load greater than 50 shall

swing in the direction of exit travel.

Example:

The existing one egress doorway is
accepted if the automatic sprinkler system
is installed in the building. This system
helps to retards the rate or slower the rate
of spread of fire and under this provision
one egress doorway is permitted for
occupant load greater than 50 or in which

the travel distance exceeds 75 feet.

Exception:
Storage rooms with a maximum
occupant load of 10 shall not be

required to have two egress doorways.

 

 

(c) Capacity of Means of Egress:

The capacity of the means of
egress in each work area shall be
determined in accordance with
Table 1 in Section 6.11(b) of the
New Jersey rehab Code (Page 40).

 

Example:

In a class B building, the egress capacity
is validated based on the number of
occupants it is serving. This varies with
building with and without fire suppression
system. In case of egress stairways for
every 60 occupants, a unit of egress width
(22 inches) should be provided. If there is
a fire suppression system, then the for

same width 90 occupants can be served.

 

124

 

 

((1) Dead End Corridors:
Existing dead end corridors

shall not exceed 35 feet in length.

Exceptions are allowed as follows:

1. Dead end corridors may be up to 50
feet in length in a building with an
automatic alarm system installed in
conformance with the building code in

effect at the time of its installation.

2. Dead end corridors may be up to 70
feet in length in a building with a
suppression system installed in
conformance with the building code in

effect at the time of its installation.

Example: Assume in a building that was
built before 50 years, the dead end
corridors were built with a length of 45
feet. However, as per the regular code this
need to be demolished and rebuild costing
huge amounts. Whereas the new code
permits this to be set at 50 feet if a
automatic alarm system is installed. This

is a major benefit in the rehab code.

 

 

(e) Means of Egress Lighting:

0 Artificial lighting with an intensity

of not less than one foot candle at

floor level shall be required during

all times that the conditions of

occupancy of the building require

 

Example:

Most of the existing buildings does not
meet the lighting standards required in the
means egress such as the stairways,
corridors, closed passages serving as

means of egress. The requirement for

 

125

 

 

that the exits be available.

0 In all buildings, rooms or spaces

required to have more than one exit

or exit access, means of egress
lighting shall be connected to an

emergency electrical system

conforming to NFPA 70 (NEC) to

assure continued illumination for

not less than one hour in the case of

primary power loss.

providing proper lighting for the means of
egress is necessitated in this subsection of
the rehabilitation code.

Number and location of lighting are
determined based on the dimensions of
the egress (width, length) and also the

serving occupant load.

 

 

(f) Illuminated Exit Signs:
Illuminated exit signs shall be provided
for all required means of egress in all
buildings, rooms or spaces required to

have more than one exit or exit access.

Exit signs shall be visible from the exit
access and supplemented by directional

signs when necessary.

 

Exception:
Approved main exterior doors that are
clearly identified as exits are not required

to have exit signs.

Exit signs shall meet the following

criteria:

1. Red or green letters at least six inches
high; minimum width of each stroke 3/4
Inch on a white background or in other
approved distinguishable colors. Arrows,
if provided, shall be such that the
direction cannot readily be changed. The
word “Exit" shall be clearly discemible

when the sign is not energized.

2. Exit signs shall be illuminated at all

times when the building is occupied by a

 

126

 

 

source providing at least five foot candles
at the illuminated surface or shall be
approved self luminous signs which
provide evenly illuminated letters with a

minimum luminance of 0.06 foot

 

(g) Handrails:

Every required exit stairway having three
or more risers and not provided with
handrails or in which the existing
handrails are in danger of collapsing when
used under emergency exiting conditions,
shall be provided with handrails for the
full length of the run of steps on at least

one side.

All exit stairways more than 66 inches
wide shall have handrails on both sides
unless the full width of the stairway is not
needed to accommodate the design

occupancy.

Example:

In old group B buildings handrail
provisions are not standard and in few
cases the geometric design doesn’t permit
Safer handrails. These complications must
be resolved with the provisions of this
section based on the stairway dimensions

and occupant load served by the stairway

 

 

(h) Guards:
Every open portion of a stair, landing
or balcony which is more than 30
inches above the floor or grade below
and is not provided with guards or
those in which the existing guards are

in danger of collapsing when used

A

 

Example:

In earlier rehabilitation cases, based on
the regular building code, if the guards are
not of the safety standards as per the code
then the entire stairway rehabilitation is
affected. In some cases, it is up to the

magnitude of removing and replacing the

 

127

 

 

under emergency exiting conditions

shall be provided with guards.

9

existing egress with new one. With the
provisions in rehab code, the guards can
be replaced with similar materials
complying with the safety standards of the

regular building code.

 

 

(i) Vertical Opening Protection:
Vertical opening protection for interior
stairways and other vertical openings
should be provided in the existing

structure.

 

Compliance Requirements:

1. For vertical openings connecting more
than six floor levels, approved assemblies
having a fire resistance rating of not less
than two hours with approved opening

protectives shall be required.

2. For vertical openings connecting four
to six floor levels, approved assemblies
having a fire resistance rating of not less
than one hour with approved opening

protectives shall be required.

3. For vertical openings not exceeding
three stories, a minimum 30 minute fire
barrier shall be required, with the
following exception:

i. No vertical opening protection
shall be required for vertical openings of
up to three stories in buildings not
exceeding 3,000 square feet per floor or in

buildings with suppression throughout.

 

128

 

 

(j) Structural Elements:

Structural elements which are uncovered
during the course of the rehabilitation and
which are found to be unsound or
otherwise structurally deficient, shall be
reinforced, supported or replaced in
accordance with the applicable structural

design criteria of the building subcode.

Exception:

Where structural elements are sound,
there is no excessive deflection {defined
as deflection in excess of the standards set
forth in section 6.7(c).}, and fixed loads
are not changing in a way that will
increase the stresses on existing structures
beyond that which is permitted by 6.7(c),
existing structural elements shall be

permitted to remain.

 

(k) Plumbing Fixtures:

Plumbing fixtures shall be
provided as per the plumbing code, where
the plumbing subcode allows for the
substitution or omission of fixtures. Such
substitutions or omissions shall also be
permitted under this section in compliance

with the Plumbing Code.

Example:

In a class B building plumbing fixtures
will be provided based on Total
Occupancy. For determining the
plumbing fixture requirements, total
occupancy calculated for the building
under normal use conditions and based on
this calculation, fixtures such as water
closets (Unisex, male and female),
lavatories, drinking water facilities, and

service sinks, are determined.

 

 

(1) Mechanical Requirements:
All spaces intended for
occupancy shall be provided with either

natural or mechanical ventilation.

 

Example:
For Natural ventilation:
0 Spaces intended to be naturally
ventilated shall be provided with

openable doors, windows, louvers,

 

129

 

 

 

 

or other openings to the outdoors.

The minimum openable area to the
outdoors shall be 4 percent of the

floor area being ventilated.

The rooms without openings to the
outdoors are ventilated through an
adjoining room, the unobstructed
opening to the adjoining room
shall be at least 8 percent of the
floor area of the interior room or
space, but not less than 25 square

feet.

The ventilation openings to the
outdoors shall be based on the

total floor area being ventilated.

For Mechanical ventilation:

Newly installed HVAC systems
shall comply with the
requirements of ASHRAE 62-89.
Existing systems that are altered
or extended shall not reduce the
amount of outside air below the
existing rate per person or the rate
included in ASHRAE 62-89,
whichever is lower.

As a minimum, mechanically

ventilated spaces shall be provided

 

130

 

 

with 5 CFM per person of outdoor
air and 15 CFM of mechanical

ventilation air per person

 

(m) Interior finishes
Interior finishes shall comply
with flame spread ratings determined by

ASTM E84 into three classes such as:

0 Class I Flame Spread — 0 to 25
0 Class II Flame Spread — 26 to 75
0 Class II Flame Spread — 76 to 200

In all of the above three classes, the
Smoke developed rating determined by
ASTM E84 should not exceed 450. The
specifications of the materials used in the

interior finishes contain these test values.

Example:

The interior finish materials used in old
buildings in the work area defined for
rehabilitation shall comply to the flame
spread ratings and for new finishes that
are added in the work area, the flame
spread ratings are usually kept in the class
I and 11 unless the existing condition

forces to use a Class III material.

 

 

(n) Specific Occupancy Areas:

Specific occupancy areas within the work
area, as listed in Section 6.30(h) {paint
shops, soiled linen collection rooms,
incinerator rooms, maintenance shops),
shall comply with the requirements
established this section of specific

occupancy areas.

 

Example:

If there is an incinerator room present in
the building, then a two-hour fire
separation assembly should separate it
from other portions of the building and
also it should be provided with an
automatic sprinkler and/ or fire

suppression system.

 

131

 

3.4 PROVISIONS OF INTERNATIONAL BUILDING CODE — CHAPTER 34

The ICC developed the IBC, used by many different states and local governments
for any new construction. Based on the need felt and identified in many states and cities
for work related in existing buildings, rehabilitation, a separate chapter was introduced in
the IBC 2000 named “Chapter 34 — Existing Structures.” The provisions of this chapter
were intended to address the four major work categories in the rehabilitation process:
alteration, repair, addition and change of occupancy.

This rehabilitation work was made to comply with the provisions for alterations,
repairs, additions and changes of occupancy in the lntemational Fire Code, International
Fuel Gas Code, lntemational Plumbing Code, lntemational Property Maintenance Code,
lntemational Private Sewage Disposal Code, International Mechanical Code,
lntemational Residential Code and ICC Electrical Code leaving very little room for
flexibility. This forced rehabilitation of existing structures to comply with code
requirements similar to those for new construction. Chapter 34 of the IBC addressed
existing structure issues similar to those addressed by the New Jersey Rehabilitation
Code: additions, alterations or repairs, fire escapes, glass replacement, change of
occupancy, historic buildings, moved structures, and accessibility. As the provisions
detailed in Chapter 34 of the IBC were very similar to the provisions for new buildings,
the ICC formed a Rehabilitation Subcode Committee, which lead to the development of
the lntemational Existing Building Code final draft in 2001 and its complete adoption in

2003.

132

3.5 INTERNATIONAL EXISTING BUILDING CODE (IEBC)

The ICC developed the IEBC with the knowledge gained from the New Jersey
Rehabilitation Subcode and the Nationally Applicable Recommended Rehabilitation
Provisions (NARRP). The concepts adopted in the lntemational Existing Building Code
are quite similar to that of the New Jersey Rehabilitation Subcode, except the
organization, the categorization of the work scope and the definitions given to the
rehabilitation work categories. The categories of rehabilitation formulated by the New
Jersey Rehabilitation Subcode were repair, renovation, alteration, reconstruction, change
of use and addition. The work categories defined by the lntemational Existing Building

Code (IEBC) are as follows:

0 Repair

 

o Alteration - Level 1
REHABILITATION

 

 

 

o Alteration —- Level 2
o Alteration - Level 3
0 Change of occupancy

0 Addition

Even though the terms coined by the IEBC for the rehabilitation categories sound
different, the scope of work defined by them is very similar to that of the New Jersey
Rehabilitation Subcode. Instead of renovation and reconstruction, the IEBC expanded
alteration into three levels based on the intent of work to be performed and the level of

applicability of code regulations:

133

Alteration Level 1: Level 1 alterations include the removal and replacement or the

covering of existing materials, elements, equipment or fixtures using new materials,

elements, equipment or fixtures that serve the same purpose.

Alteration Level 2: Level 2 alterations include the reconfiguration of space, the addition

or elimination of any door or window, the reconfiguration or extension of any system, or

the installation of any additional equipment.

Alteration Level 3: Level 3 alterations apply where the work area exceeds 50% of the

aggregate area of the building

3.5.1 ORGANIZATION OF WORK CATEGORIES IN THE IEBC

The IEBC committee developed fourteen chapters addressing the general issues and

classification of rehabilitation work based on the scope as categorized below:

Chapters 1 and 2:

Chapter 3:
Chapter 4:
Chapter 5:
Chapter 6:
Chapter 7:
Chapter 8:
Chapter 9:
Chapter 10:

Chapter 1 l :

Administration and Definitions

Classification of Work

Repairs W

Alterations — Level 1

Alterations — Level 2

 

 

 

 

Alterations — Level 3 Chapter 4 ’0 11

> CLASSIFICATION OF
Change of Occupancy REHAB WORK
Additions
Historic Buildings

 

Relocated Buildings J

134

0 Chapter 12: Compliance Alternatives
0 Chapter 13: Construction Safeguards

0 Chapter 14: Referenced Standards

Similar to the New Jersey rehabilitation code, first a project is to be identified and
designated as one of the rehabilitation work categories based on the existing condition
and the future scope of the building. Once the work category is identified, the compliance
requirements of the project are then defined pertaining to that particular work category
(chapter), which is used to detail the scope of rehabilitation based on the intent and extent
of work involved rather than the traditional cost based percentage value or benchmarking
approach. Each work category, herein also referred to as a “chapter,” is then divided into
various subsections addressing various critical rehabilitation factors such as heights and
areas, special use and occupancy, building elements and materials, fire protection,
means of egress, accessibility, structural, electrical, mechanical, plumbing, energy
conservation, and other requirements. Depending upon the work category, each of the
above factors is further detailed for compliance requirements. These requirements are
developed specifically to address the rehabilitation needs of the existing structure, which
differentiate them from the requirements for a new building.

Table 11 shows the list of critical issues addressed in each work category.
Subsections in each work category vary dependent on the scope of work to be executed
once the existing building is identified as a specific category. The subsections are similar
to the issues addressed under the basic and supplemental requirements in the New Jersey

Rehabilitation Subcode.

135

Table 11: CLASSIFICATION OF REHABILITATION WORK AND ISSUES
ADDRESSED IN EXISTING STRUCTURES [IEBC 2001]

 

 

Work Category Subsections - Issues Addressed
Special Use & Occupancy, Building Elements & Materials,
Fire Protection, Means of Egress, Accessibility, Structural,
Repairs

Electrical, Mechanical, and Plumbing

 

Alteration — Level 1

Special Use & Occupancy, Building Elements & Materials,

Fire Protection, Means of Egress, Accessibility, & Structural

 

Alteration — Level 2

Special Use and Occupancy, Building Elements and
Materials, Fire Protection, Means of Egress, Accessibility,

Structural, Electrical, Mechanical, and Plumbing

 

Alteration — Level 3

Special Use and Occupancy, Building Elements & Materials,

Fire Protection, Means of Egress, Accessibility, & Structural.

 

Special Use and Occupancy, Building Elements and

Materials, Fire Protection, Means of Egress, Accessibility,

 

Change of

Structural, Electrical, Mechanical, Plumbing, Change of
Occupancy . .

Occupancy ClaSSIficatron.

Heights and Areas, Structural, Smoke Alarms, Accessibility,
Additions

and Energy Conservation

 

Historic Buildings

Repairs, Fire Safety, Change of Occupancy, Alterations,

Structural

 

 

Relocated Buildings

General Requirements

 

 

136

 

3.5.2 COMPLIANCE REQUIREMENTS FOR SUBSECTIONS

The subsections detailed under each work category have specific compliance
requirements based on the existing building’s characteristics. These requirements vary
from building to building depending on the building’s condition, existing materials, its
systems’ mechanisms and its architectural significance. For better understanding, this

section explains these subsections for a general work category.

Heights and Areas: The heights and areas of existing buildings and structures shall
comply with the requirements of the rehabilitation code based on the hazard categories
defined in the rehabilitation code. For example, if a building is undergoing a change of
use to higher hazard category as defined in the rehabilitation code, then height and area
requirements need to comply with the regular lntemational Building Code. If the change
is made to an equal or a lesser hazard category, then the allowable heights and areas of

the rehabilitation is detailed in the rehabilitation code.

Special Use and Occupancy: Any special use and occupancy building other than the
standard classification should comply to the requirements specified in the lntemational
Building Code. The degree of compliance is dependent on the category of rehabilitation.
In other words, compliance requirements are more severe for higher categories of work
such as Alteration Level 3 (additions) when compared to the lowercategories such as

repair or Alteration Level 1.

137

Building Elements and Materials: Materials in the existing building that are permitted
during rehabilitation are specified in this subsection. For example, hazardous materials
such as asbestos and lead-based paints are no longer permitted in the rehabilitation
process, while existing old glass block walls, louvered (an opening provided with one or
more slanted fixed or movable fins to allow flow of air but to exclude rain or sun or to
provide privacy) windows and jalousies (adjustable glass louvers) can be repaired with

similar materials even though they are not permitted as per the regular building code.

Fire Protection: Compliance requirements for the fire protection systems that exist in
the building such as automatic sprinkler systems, fire suppression systems, fire alarm
systems, smoke detection systems, fire escapes, standpipes, and the Fire Resistance
Rating (PR) of various building elements such as partition walls, vertical shafts, egress

walls, etc. are detailed in this subsection for different work categories.

Means of Egress: Existing buildings’ means of egress requirements, such as number of
exits, number of fire escapes, egress requirements at mezzanines, egress doorways
(location, travel distance, door swing, door closing, panic hardware), openings in corridor
walls (corridor doors, transoms [horizontal crossbar in a window, over a door, or between
a door and a window], wall widths), dead end corridors, means of egress lighting, and
exit signs, are defined for each category of rehabilitation work.

For example, as per the building code, dead end corridors in any work area shall

not exceed 345 feet in length. The new requirements for existing buildings permit dead

138

end corridors to be 50 feet and 70 feet for specific occupancy groups. Greater lengths are

accepted with the provision of automatic fire alarm systems in the existing structure.

Accessibility: Accessibility requirements such as elevators, platform (wheelchair) lifts,
stairs, escalators, ramps, dining areas, performance areas, assembly areas, toilet rooms,
sales and service counters, and the maximum height of thresholds at the doorways are
addressed in this subsection based on the work category identified. As most of the
existing buildings are 50 years old or more, the accessibility compliance requirements are

relatively more stringent than other subsections in this rehabilitation code.

Structural: Rehabilitation work should be performed on a structure without decreasing
the structural strength or the stability of the building. If the existing structural elements
are subjected to additional loads, the compliance requirements are set based on the
category of work. Important load factors addressed by this subsection include gravity

loads, lateral loads, and snow drift loads.

Electrical: In a given work area, the regular b uilding c ode would require the existing
electrical equipments and wiring to be changed, while this requirement is relaxed
somewhat in the new rehabilitation code. Correction of existing unsafe electrical
connections, required service upgrades of existing systems, and the number of electrical
outlets permissible are covered in this subsection. The work categories for which the

electrical subsection is defined can be seen in the previous table.

139

Mechanical: Mechanical requirements such as ventilation systems (both manual and
automatic) and local exhaust units and openings (windows, doors, wall openings) must be

met to avoid any adverse effect on occupants, including impaired health and discomfort.

Plumbing: This subsection details the minimum number of fixtures that are required in a
structure based on the service needed for the defined occupant load. If in a building, the
rehabilitation work results in increased or different plumbing fixtures or increased water
supply and sewage needs, then the compliance requirements are generally based on the

lntemational Plumbing Code and not the rehabilitation code.

Energy Conservation: In rehabilitation projects, if there is any addition to the existing
structure then the rehabilitation code requires that the new addition comply with the
requirements of the lntemational Energy Conservation Code, as this code is developed
only for new construction. Some provisions exist to facilitate existing buildings’

compliance with the lntemational Energy Code, but they are not mandatory.

Other Requirements: Some of the requirements addressed by the relocation subcategory
include the location of the existing building on the lot in accordance with the code

requirements, wind loads, structures in flood hazard areas and inspection requirements.

One of the major differences between the IEBC and the New Jersey

Rehabilitation Code is in the change in occupancy section. The New Jersey rehabilitation

code categorized the relative hazard levels both for general hazard and for different

140

subsections such as means of egress, height and area limitation, exposure of exterior
walls, fire suppression, structural load categories, and ventilation rates. On the other
hand, the IEBC has only one three hazard categorization subsections: life and safety
exits, heights and areas, and exposure of exterior walls. This reduces the scope of
rehabilitation in crucial elements such as fire suppression, structural load categories, and

ventilation rates.

Table 12: Hazard Category for Subsection HEIGHT AND AREA [IEBC]

 

 

 

 

 

 

 

 

 

HAZARD CATEGORIES AND CLASSIFICATIONS:
LIFE SAFETY AND EXITS

Relative Hazard Occupancy Group
1 (Highest) H-1, H-2, H-3, H-4, H—5
2 1-2, l—3, 1-4
3 A, E, H, M, R-l, R-2, R-4
4 B, F-l, R-3,S-1
5 (Lowest) 112, 5-2, U

 

 

Based on the author’s observations, it is found that the relative hazard levels assigned by
the IEBC and the New Jersey Rehabilitation Code for the change in occupancy work
category are very different. For example, in the hazard category classification for heights
and areas in the New Jersey Rehabilitation Code, the occupancy groups business B and
residential R-2 are in the same relative hazard level and hence this change in occupancy

need not comply to the regular building code, whereas, in the IEBC, the occupancy

141

groups business B and residential R-2 are in two different relative hazard levels. The
most critical factor is that the relative hazard level of group B is 4 (lowest hazard) and the
relative hazard level of group R-2 is 2 (second highest hazard). In this case, if an existing
building of group B is changed for use in group R-2, then the entire change must comply
with new construction requirements as per the regular building code for occupancy group-
R—2. This difference between the New Jersey rehabilitation code and the lntemational
Existing Building Code makes the relative hazard classification inconsistent.

Since Michigan is adopting the lntemational Existing Building Code with minor
amendments as the Michigan Existing Building Code, all future code analysis is

performed with the provisions detailed in the lntemational Existing Building Code.

3.6 MICHIGAN REHABILITATION CODE

Efforts have been under way in Michigan to develop a separate rehabilitation code
for work related to existing buildings. The Michigan Department of Consumer and
Industry Services (CIS), Division of Codes and Standards formed a Rehabilitation Code
Committee chaired by Tom Martin, Director of CIS, Office of Policy and Legislative
Affairs, to d evelop a rehabilitation c ode. T he c ommittee w as c omposed o f i ndividuals
and experts knowledgeable about rehabilitation issues both nationally and statewide. The
committee began its work by looking at the three nationally accepted options for

rehabilitation of existing buildings:

142

0 The New Jersey Rehabilitation Subcode
0 HUD’s Nationally Applicable Recommended Rehabilitation Provisions
(NARRP)

0 Chapter 34 of the lntemational Building Code (IBC)

Michigan adopted a single statewide code, based on State Public Act 245 of 1999 and
known as the Michigan Building Code. This code is a version of the IBC with
amendments made to suit Michigan’s needs. This expert committee developed a detailed
Rehabilitation Code Matrix, which addressed issues pertaining to rehabilitation work in
existing buildings using the Michigan Building Code. During the same period, the
lntemational Code Council (ICC) was developing the lntemational Existing Building
Code (IEBC) which was very similar to but more comprehensive than the rehabilitation
code m atrix that C IS d eveloped and o ffered for p ublic h earings. Once the IEBC final
draft was published by the ICC, Michigan decided to adopt this code as the Michigan

Rehabilitation Code for Existing Buildings, effective on October 31, 2002 [CIS 2002].

The changes that were made to the IEBC to suit the specific needs of Michigan include:

0 Section 104.8 : Liability of code officials

- Sections 108.2 through 108.6 : Schedule of permit fees, building
permit valuations, commencement of
work before permit issuance, and

related fees

143

0 Section 112.2 : Limitations on authority

0 Section 112.3 : Qualification of members
0 Section 114.3 : Unlawful continuance
0 Sections 506.1 through 506.2 : Accessibility and alterations

affecting an area containing a
primary function

0 Sections 1005.1.1 through 1005.1.5 : Accessibility requirements related to
site arrival points, multilevel
buildings and facilities, entrances,
toilet and bathing facilities and

ramps.

A detailed version of the changes and amendments made to IEBC for adoption as

the Michigan Existing Building Code can be found in the Appendix section of this report.

3.7 SUMMARY

In this chapter, the author has made an effort to present major changes in the
process of rehabilitation over time and the efforts taken to address the growing demand
for rehabilitation in United States by development of a separate building code for existing
structures. The traditional approaches, such as the Percentage Value method (PV) and the
benchmarking methods that were used previously to rehabilitate buildings have also been

discussed. Two major rehabilitation codes, the New Jersey Building Rehabilitation

144

Subcode and the lntemational Existing Building Code, were discussed with explanations
and suitable examples from the rehabilitation process. Finally, the Michigan
Rehabilitation Code for Existing Buildings has been discussed. This code will be used
further for the case study analysis in the next chapter detailing the various rehabilitation

benefits offered by the new Michigan rehabilitation code.

145

BUILDING REHABILITATION: A PROMISING TOOL FOR
URBAN REVITALIZATION IN DETROIT, MICHIGAN

Volume II

By

Logan Anjaneyulu

A THESIS

Submitted to

Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER OF SCIENCE

Construction Management Program

2003

CHAPTER FOUR

REHABILITATION CASE STUDY IN
URBAN MICHIGAN - DETROIT

146

4.1 INTRODUCTION

In Chapter 3, traditional rehabilitation practices and the new rehabilitation
provisions adopted for works related to existing buildings were discussed. In addition, the
New Jersey Rehabilitation Subcode and the lntemational Code Council’s (ICC),
lntemational Existing Building Code (IEBC) were detailed with specific examples. The
Michigan Existing Building Code (MEBC), the provisions of which were explained in
the previous chapter, will be used for the rehabilitation case study in this chapter.

This chapter attempts to document the downtown Detroit area’s stock of existing
buildings that are potential candidates for rehabilitation and reuse, and, further, to
perform a comprehensive rehabilitation analysis. The rehabilitation analysis discussed in
this chapter includes: definition of rehabilitation scope in the selected case study
building; formulation of the rehabilitation specifications based on the rehabilitation code
analysis; comparison of rehabilitation cost based on a cost analysis using both the
Michigan Building Code (MBC) and the MEBC; and finally, tabulation of cost savings
for the case study project’s rehabilitation process.

As discussed in the research methodology and in the previous chapters, a
typical old, vacant and underutilized structure in the downtown Detroit area was selected
as a case study building, encompassing all of the earlier discussed social, political,
cultural, economical and cost related issues. Of these, the cost factor related to
rehabilitation is explored further. The new Michigan Existing Building Code (MEBC),
based on the lntemational Code Council’s lntemational Existing Building Code (IEBC),
is used for this research study. The rehabilitation cost analysis and the results of using

the MBC and the MEBC for the case study project are summarized in the forthcoming

147

 

sections of this chapter. To offer better understanding, an overview of Detroit’s urban

growth and existing building stock is described below.

4.2 OVERVIEW OF DETROIT AND ITS EXISTING BUILDING STOCK

Detroit is well known as the “Automobile Capital of the World, " which grew very

fast during the early 19005 due to the high rate of industrialization. Detroit’s development

can be categorized into seven eras (the first five are excerpts from Fischhoff, 1983):

0 Birth Era : The Village is Born (1701 — 1815)

0 Early Era : The City Emerges (1816 — 1865)

0 Modern Era : Modern Detroit Emerges (1866 — 1900)
0 Automotive Era : The Automotive City (1901 — 1945)

o Metropolitan Era : The Metropolitan Area (1946 — 1965)

0 Out Migration Era : Wake of the 1967 Riots (1967-1994)

- Redevelopment Era : Urban Redevelopment (1994 — Present)

The period of the city’s development lifecycle between 1901 and 1945 was named
the Automotive Era as Henry Ford's Model T automobile rolled off the first moving
assembly line in 1915, catapulting Detroit, Michigan, to the international spotlight and
declaring Detroit the city of modem industrial production and innovation. The assembly

line that revolutionized manufacturing was an outstanding innovation by Ford. When

148

 

Ford announced that workers would make $5 for an 8-hour shift-in contrast with the
standard w age 0 f5 2.75 for a 1 0-hour s hift, c rowds o fe ager w orkers b esieged factory
doors. Job seekers came not only from neighboring states but also from as far away as
Ireland and Eastern Europe. Large numbers of both whites and blacks came from the

deep South in search of jobs and opportunities [Woodford 1979].

Paradoxically, the automobile, the best means of mobility, innovated and
established in great numbers by the “Automobile Capital of the World,” also served as
the primary cause and heart of a new urban transition after the 1970’s: suburban flight, or
the well-known urban sprawl. As people moved out of the city in search of better living
standards and safer lifestyles, the central city of Detroit (downtown) constantly struggled
to revitalize itself. This condition blemished Detroit’s central city with abandoned
buildings, spray-painted graffiti (researcher witnessed various inscriptions and drawings
on many public surfaces and buildings), and other signs of the hopelessness and
frustration of poverty [WRI 2000]. As people abandoned cities and moved to nearby
suburbs, the city had more vacant lots and buildings than occupied ones, and these vacant
structures pose a threat throughout the year as a haven for drug users and as targets for
arsonists.

A major portion of Detroit’s building stock was built during the automotive era,
prior to World War II. The majority of these buildings are older and in a state of decay
and abandonment. The amount of new construction has declined rapidly, in particular
after the wake of the 1967 riots, as people who could afford housing elsewhere left the

central city. Despite the fact that this rate of new construction did not decline as rapidly

149

as the city's population (as stated earlier, Detroit has become the first major city in US
history to have fallen below a population of one million). Many historically well-built
structures stood as symbols of despair as people abandoned these structures and fled to
the safer suburban life styles. Between 1970 and 1990, some 119,000 Detroit houses were
torn down, leaving 410,000 units in 1990. The city of Detroit issued 20,676 building
permits for new residential building construction over a thirty-year period from 1970 to
2002, whereas 165,012 permits were issued for the demolition of residential buildings
during the same period [SEMCOG 2002]. The state of commercial buildings is no
different from that of the residential structures, as the same effect was felt in the
commercial building market, as more businesses started moving outside the city to the

suburbs.

4.2.1 EXISTING BUILDING STOCK IN DETROIT — DATA COLLECTION

The Central Business District (CBD) of the city served as an epicenter of all
business activities in the southeastern part of the state. However, as people slowly started
moving out of the city area, so did the businesses, leaving a lot of commercial structures
either vacant or underutilized. Table 13 below shows the commercial office market area

as of 2002 existing in the City of Detroit and its suburban neighborhoods.

150

Table 13: City of Detroit and Southeastern Michigan Office Market
as of December 2002 [GDP 2003]

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Southeastern Michigan Office Market Area (Total Square Feet)
Office Submarket Total Sq Ft.

Troy 19,672,660

Detroit 19,025,152

(Detroit CBD) 12,952,913 (70% of City)

Southfield 18,020,730

I-275 Corridor 8,051,792

Birmingham/Bloomfield 7,723,574

Farmington/Farmington Hills 6,113,894

Ann Arbor 5,482,907

Dearbom / Romulus 4,348,538

Southern Macomb 3,609,989

Flint 669,500

Total and Southeastern Michigan 92,718,736

 

 

 

 

From the table above, it is evident that more business moved to the suburbs,
leaving behind less interest among investors in the CBD area. This also had a great
impact on the existing buildings that were previously used for office and commercial
purposes. These buildings started aging, faster than expected due to lack of maintenance
and occupation. For example, the century-old Madison-Lenox hotel shown in figure 12a
was built in l901[Freep 2002]. The old hotel, with its broken out windows and boarded

up doorways has the architectural value typical of such buildings. All its inhabitants were

151

evicted 10 years ago so the building could be transformed into a luxury hotel, but the

transformation never happened. This building was abandoned from 1987 and has been

lying vacant for the past fifteen years.

 

mm...
"‘I'HI::::

nun ,

II
.M

A III!!!

 

 

 

Figure 12a: The old Madison Building
opened in 1901 at Harmonie Park. It is

 

open to vagrants and totally abandoned.

 

 

Figure 12b: The vacant 1917 Fort Shelby
Hotel. Built in 1917, it closed in 1998 and

finally became completely vacant.

 

 

Figure 12: Historic Buildings that are Vacant and Abandoned in Detroit [Preservation 2003]

Many efforts to rehabilitate this building in the past have failed for various

reasons, one of which was the cost factor. Similarly, the historical famous Fort Shelby

152

hotel shown in Figure 12b was built in 1917 by the then-famous design firm of Richard
E. Schmidt, Garden, & Martin at a cost of $890,000 [Kohrrnan 2003]. This hotel was
used until 1973 after which it was closed and abandoned. This was right around the time
of onset of the 1967 riots in Detroit. For many years, the only tenant of the building was a
bar named Shelby's. It occupied part of the lobby space. This building was totally closed
in 1998 and the Fort Shelby Hotel finally became completely vacant and turned into a
place of public threat in terms of safety and surrounding livability.

There are numerous buildings in Detroit’s CBD of similar abandoned conditions
which are lying vacant. As per Table 13, almost 70% of the total office market area in the
City of Detroit is in the Central Business District, which is full of abandoned buildings
thereby opening up asylums for drug users and creating social insecurity for the public
living in the CBD areas.

Of the many factors (social, cultural, political, economical, etc.) the researcher
studied in investigating the reasons for this mass abandonment, it is evident that the cost
of bringing these deteriorating buildings back to use was a critical factor. One of the cost-
related issues widely felt is the cost of rehabilitation in order to make the building comply
with the current code standards. The existing buildings that were built almost 100 years
ago many times do not comply with the standards and requirements of the new building
codes, as these structures were not built to a specific building code. This results in high
rehabilitation expenditures in order to make the building comply with the current code,
leading to a higher factor of uncertainty among the building owners whether it is more
economical to invest in rehabilitating the building or just to abandon it without spending

excessive amounts on rehabilitation. This section shows a compilation of such existing

153

vacant structures in downtown Detroit that have potential for rehabilitation and reuse but
have not been rehabilitated.

The distinctive pattern of streets and the alignment and function of buildings and
public spaces in relation to one another make Detroit’s urban design a unique one. Judge
Augustus B. Woodward envisioned this characteristic honeycomb pattern as early as
1807 and this pattern still forms the base pattern for all urban developments in Detroit
even today [GDP 1997]. Woodward’s honeycombed urban development pattern resulted
in the formation of several well-defined business districts in the city, one of which is the
Central Business District of Detroit. Each of the developed districts was focused to serve
a particular market niche, gradually growing from the edge of the Detroit River. Based on
these developments, many avenues were formed, of which the main one is named as
Woodward Avenue. 0 n the east p art 0 f W oodward Avenue w as the E ast District that
housed the industrial sectors, marketplaces, and housing for the immigrants to the
automotive city. Government facilities, utility providers, financing organizations and
upper-end housing dominated the west district [GDP 1997]. This fast paced development
along Woodward Avenue brought in numerous buildings and much infrastructure for the
various public and private sector operations. Most of these buildings were built in the
early 1900’s when the automotive-based growth in the city was alarming.

Let us consider the CBD section of Detroit for this research study, identifying
those among the existing building stock that are either vacant or on the drawing boards
waiting for investments for rehabilitation and reuse. Figure 13 shows a detailed

representation of the condition of the existing building stock in downtown Detroit along

154

 

 
 
  
    

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Figure 13: Pictorial Representation of Downtown Detroit’s Existing Building Stock
[GDP — 1 2003]

155

 

east and west corridors of Woodward Avenue. The figure indicates existing vacant lots

and buildings in downtown Detroit, divided into four different categories [GDP-1 2003]:

Category 1:

Category 2:

Category 3:

Category 4:

Existing vacant buildings that are either planned and financed
for rehabilitation, or under construction by bringing down the
existing building on the same site

Existing vacant and long standing abandoned city-owned
buildings

Existing vacant and deteriorated buildings that have potential
for rehabilitation into lofts and market rate residential units
based on their location and existing conditions.

Existing vacant and abandoned privately owned buildings
waiting for 50/50 matching funds from public and private
funding agencies for rehabilitation or redevelopment on the

existing building lot.

Even though new developments are coming up in the downtown Detroit area, more than

50% of the existing buildings are vacant without any proper use. This is evident from the

figure detailing the existing vacant building stock along the eastern and western districts

of Woodward Avenue. Most of these buildings are being planned for reuse as a part of

the city’s movement for revitalization of the downtown area but remain without

rehabilitation due to various parameters discussed in the earlier chapters related to

building rehabilitation.

156

Table 14 gives a comprehensive list of existing buildings in the City of Detroit
that are declared to be in the vacant / not in use category under the register of Wayne
County, Michigan by the National Register of Historic Places [NRHP 2003]. The
buildings that are listed in the table are of historical importance and were built during the
period of urban growth in the automotive capital of the world. These structures were
mostly used for commercial purposes and the details of their respective historical use and
current function / status are given in the listing. Most of the buildings categorized are
high-rise structures that form the skyline along the elegant avenues of the city.

Most of these existing buildings are privately owned and in some cases jointly
owned by the local government and the private sector. The periods of significance for
these structures mentioned in the table are the periods when they experienced the
complete use of the building for the specified historical use. After these periods of
significance, the buildings were either underutilized or completely abandoned for various
reasons discussed in the earlier chapters of this report. Very few of these existing
buildings are currently in use, and even if in use, they are highly underutilized as small
retail shops and businesses occupy hardly 20% of the structure. The buildings tabulated
are in two formats: individual buildings and groups of buildings declared part of a
historic district that are lying vacant and unused (see the “number of buildings” section of

the table). If a part of the building is in use, it is mentioned in the “current use” category.

157

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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160

The total list of 839 vacant and historical buildings in the City of Detroit listed
under the National Historic Register are so identified because most of these structures are
of historical significance and carry a peculiar architectural importance of olden times.
Most of these buildings are high-rise structures and vary from a few hundred square feet
in area to almost as high as a million square feet in a few high-standing structures in the
city’s skyline. A large group of buildings is planned for rehabilitation under various city

development programs with a target of the 2006 Super Bowl in Detroit [GDP 2003].

4.2.2 POTENTIAL REHABITABLE BUILDING STOCK

The existing unutilized or underutilized buildings are growing in number, as more
and more owners are reluctant to invest in existing structures and bring them back to use.
The reasons for this d aunted e nthusiasm v ary from b uilding to b uilding, b ut there are
primary factors in common such as the market demand for commercial buildings in
Detroit, social factors, political factors, and also economic factors such as the cost of
rehabilitation. Major parts of the existing stock of buildings are structurally sound and are
potential candidates for cost-effective rehabilitation. However, the buildings’ style, kind
of architecture and dimensional standards are very different from those found currently
under standard building codes. This often results in higher costs of rehabilitation. In this
chapter, one such building with these complications and with historical significance is
considered as a case study building. A complete rehabilitation code analysis and cost

analysis is performed using the new Michigan Existing Building Code in comparison

161

with the regular Michigan Building Code. The larger group of buildings tabulated above
carry physical and historical characteristics similar to the case study building used for this
research and hence all are potential candidates for rehabilitation and reuse. Rehabilitating
these vacant buildings and bringing them back to use would have a huge positive impact

on urban revitalization in Detroit.

4.3 REHABILITATION CODE AND COST ANALYSIS FOR CASE STUDY
BUILDING

Among the old and vacant existing building stock in Detroit, a case study
building, hereinafter referred to as “the building,” was identified for a code and cost
analysis 0 f u sing the new Michigan E xisting B uilding C ode (MEBC) o ver the regular
Michigan Building Code (MBC) for the process of building rehabilitation. The selected
building holds all the characteristic properties of old, vacant and underutilized buildings
in downtown Detroit, as they were almost all built during the same period of historical
significance. This is evident from Table 14 earlier, which shows a unique period of

historical significance between 1850 and 1950.

4.3.1 CASE STUDY BUILDING DETAILS:

Detroit’s development has been triggered in a positive direction with the fresh
additions to the city such as the new Tiger Stadium and the proposed Campus Martius

Development. The building identified for this case study is located in this strategic

162

development area identified by the city, which is in the Lower Woodward National
Register Historic District. This building is listed on the historic register as it contributes
to the historical value of the district and the city. This building consists of two buildings,
“building A " and “building 8, " tied together to form a single case study building.

Building A is on the northern side while building B occupies the southern lot.

Building A is a six-story structure with a two-story penthouse on top of the sixth
floor. Building B is an eight-story structure having almost equal ceiling heights between
all the floors. On the other hand, building A ’5 original sixth floor has a relatively tall
ceiling height. An over-story was constructed creating a seventh floor within the volume
of the sixth floor. As a result, the seventh floor of building A has two floor levels, 7 and
7A, equivalent to only one seventh floor in building B. The total area of the building is
113, 966 square feet (Building A = 61, 958 sq. ft; B = 52, 008 sq. ft). Table 15 details
the floor area of the buildings A and B. The floor areas in bold print are the planned
rehabilitation floor areas, while the italicized floor areas are not considered under the
defined rehabilitation scope. Based on the scope defined in the next section, the total area
considered for the case study is 90,518 sq. ft. (A = 49,958 sq. ft. and B = 40,560 sq. ft.).
In the case of work related to all vertical shafts (stairs), the entire building, including the

basement, is considered.

163

Table 15: Floor Area Description of the Case Study Building [Schwartz 2002]

 

EXISTING FLOOR AREAS OF THE CASE STUDY BUILDING

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Building A Building B
Floor Level
(Square Feet) (Square Feet)
Basement 6, 000 5, 724
15’ 6, 000 5, 724
Mez (Lobby + Stairs) 1,958 492
2nd 6,000 5,724
3rd 6,000 5,724
4th 6,000 5,724
5th 6,000 5,724
th
6 6,000 5,724
7th 6,000 5,724
7A 6,000 -
8th 6,000 5,724
Subtotal of Area 61, 958 52, 008
(In Bold Print) Subtotal
of Area Affected by this 49, 958 sq. ft. 40, 560 sq. ft.

Rehabilitation (Mez +
2nd to 8‘h floor)

 

(61958 — 1200)

 

(52,008 — 11448)

 

Total Area of Building

113,966 sq. ft.

 

 

Total Area Affected by this Rehab Project:

[49, 958 sq. ft. + 40, 560 sq. ft.]

90, 518 sq. ft.

 

164

 

 

Constructed around 1910, the building has been historically used for commercial /
business purposes and is classified as a Group “B” use structure according to the
classification specified by the building code (see the discussion of building classifications
in Chapter 3). A single business used both buildings A and B with some retail use on the
first floor. About fifteen years ago, the users vacated the building and now it is lying
vacant with very little retail use in the first floor. When the researcher inspected the
building, it was evident that the building was relatively clean and structurally sound. The
building also carries a unique architectural value evident from Figure 14 depicting the

pleasing, carefully designed architectural styles.

 

 

 

 

 

Figure 14: A View of the Architectural details of the Case Study Building

165

Buildings A and B are tied together into a single building sharing a common set
of three elevators opening into building A at each floor level with doorway access from
building A to B at the side walls next to the elevator. Except for the seventh floor, A and
B’s adjacent floor levels are relatively even, making for an easy transition from one
building to the other. The difference in floor heights is approximately 4 '8" between floor
7 of building A and floor 8 of building B, requiring a half flight of stairs to connect these
two floor levels in the structure. This can be witnessed from Figure 15, an elevation
drawing of the buildings. In building A, all floor levels up to the fifth floor are of similar
heights, around 13 feet, while the ceiling heights of floors 6, 7 and 7A are different, as

detailed in the elevation drawing.

A photographic view of the case study building (including both A and B) is
shown in Figure 16. Building A and B are separated completely for the first two floors
with separate egress access and entrances. After the second floor, access to each of the
buildings is provided through a doorway across the dividing wall. The existing windows
(seen in both photographs) in elevation above the second floor at the front facade and at
all floors at the rear facade and penthouse are original windows of historical value with
single pane glass. The ninth floor in building A is the mechanical room and has the
highest roof level in this building. The total building height above the ground level is 135
feet and overall height of the structure including the basement is 149 feet. See Figure 15

for details.

166

FRONT ELEVATION OF THE CASE STUDY BUILDING

Two Buildings "A" and ”B" Tied Together into One Case Study Building

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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167

 

 

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Case Study Building (A& B) in Downtown Detroit, Pictured in August 2002

Figure 16

168

The type of construction found in the building, based on the classification defined
in Section 602.3 of Chapter 6 (types of construction) of the Michigan Building Code
(MBC), is type I-B. According to the code, type I-B construction is that type of
construction in which the building elements listed in Table 601 of the MBC are of
noncombustible materials and are permitted according Section 603.1 of MBC.

There are two means of egress stairways in the entire building, one in building A
and the other in building B. Figure 17 shows the existing third floor plan of the building.
The openness of the existing structure makes it a potential candidate for rehabilitating it
to any suitable use. The three elevator shafts run across all the floor levels from basement
to the top floors. The building also has a fire escape stairway at the rear side providing an
emergency escape facility for both the buildings, A and B. The structural elements are of
reinforced concrete, and the exterior and load bearing walls are built of brick masonry as
is typical of the buildings built during this historically significant period. The floor area at
each floor level of building A is 6,000 square feet, and 5,724 square feet in building B.
The existing windows and window trim in the building hold good architectural value and
can be retained in the rehabilitated structure, based on their condition and value. The
stairs at the rear of building B are made of cast iron with decorative cast iron risers and
architecturally significant guards/railings. The stairs at the rear of building A have
minimal wood railings and are of marginal architectural significance [Knibbe 2002].
Most of the existing walls and ceilings in both the buildings are of a plaster finish and, on
observation, it is evident that this plaster is non-decorative in most places and completely
damaged on a few floors. The existing floor coverings on the sixth and seventh floor

levels are damaged severely as the plumbing systems underneath the floors broke due to

169

 

 

 

 

 

 

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170

THIRD FLOOR PLAN OF EXISTING BUILDING

FIGURE 17

 

4.3.2 SCOPE OF THE REHABILITATION PROJECT

The scope of rehabilitation of the case study building is defined in this research
based on the owner’s needs, available market potential in downtown Detroit, and the
architect’s input and suggestions. With these parameters in mind, the existing business
use (group B) of the vacant building is planned to be changed to a new use group and
occupancy, group R-2 (multilevel residential dwelling units), at the existing second floor
level and above. Definitions of and details about various use groups, as described by the
Michigan Building Code, were discussed in chapter three. The existing retail use of the
first floor is retained as the same mercantile use group (M) without any change. The areas
affected by the proposed rehabilitation are marked in bold in Table 15, shown in a
previous section of this chapter. This change of occupancy from use group B to group R-
2 results in conversion of the vacant building into efficient market rate apartment units,
averaging about ten units per floor.

The proposed floor plan of the new residential use is shown in figure 19, detailing
the third floor plan after rehabilitation. Based on the existing code complications in the
building, some of the existing building components such as the stairs, mechanical rooms,
and bathrooms with raised floors are removed and redesigned in new locations to meet
the code standards. For example, in the new proposed design, when compared to the
existing floor plan shown in figure 17, the existing stairs have been completely removed
from its 0 urrent location and h as b een m oved along the sidewalls (party w alls) o f t he
structure. This new location of stairs shown in figure 19 is designed to offer more

efficient dwelling units, in terms of both number of units and their design, without

171

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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172

leaving units too large or too small. The photographic view of the existing floor in the
building, shown in figure 20, demonstrates the openness of the existing floors and the

ease of defining a new use for the building.

 

 

 

 

 

Figure 20: Sixth Floor Level of the Case Study Building, Showing the Existing
Openness of Past Use Group B, Pictured in September 2002.

The floor plan shown in figure 19 details the location of the units and other building
components. When observed in detail between figure 17 and figure 19 it can be noted that
of the three elevators that are in the existing building, the center elevator is removed in
the new use, as two elevators are sufficient to serve the occupant load of 2-4 occupants

per dwelling unit. This creates the increased corridor space in the new R-2 use.

173

The change of occupancy of the building from group B to R-2 requires approval and a
change of occupancy certificate from the Buildings and Safety Department. Since the
existing structure is mostly Open, all the new building components that are added for the
new R-2 use will comply with the regular building code. The existing components are
checked for compliance with the code, which is the one of the important areas of
concentration of this research work, and approved based on their physical and

dimensional conformity to standards.

Other than the major change of occupancy rehabilitation, existing exterior and
interior components will be rehabilitated to conform to the health and safety standards in
the local building code. The existing masonry work must meet rehabilitation standards
requiring the use of gentle cleaning techniques, custom mortar, and matching masonry.
Since the building is listed in the National Historic Register and located in one of the City
of Detroit’s local historic districts, the rehabilitation scope will meet and incorporate the
requirements of the historic preservation standards to gain the benefits offered by the
respective historical preservation programs. All the code-related issues in the existing
building are explored in detail and for the defined scope of change of occupancy,
rehabilitation specifications are developed complying with the requirements of the
regular Michigan Building Code and the new Michigan Existing Building Code. The
code and cost analysis results are summarized in the later sections of this chapter. Since
this building is registered under the national and local historic registers, the scope of
rehabilitation will conform to these standards to be eligible for Federal Investment Tax
Credits and also to qualify for the Michigan Historic Preservation Tax Credits [Knibbe

20021

174

4.3.3 REHABILITATION WORK SCOPE ANALYSIS

Rehabilitation projects are of two major types, rehabilitation for the same existing
use and rehabilitation for a new use, involving a change of occupancy. Generally, the first
type of rehabilitation involves minor repairs, renovations, restorations and in some cases
additions to the components of the existing structure. The second type of rehabilitation
demands substantial change to the existing components of the building, in some cases
even resulting in higher dollar values for rehabilitation than for new construction. When
rehabilitation work is performed within the same use, the compliance requirements are
not as severe as for a change of use. The use categories are defined based on the type of
use and its relative hazard to life and safety. The compliance requirements for a change of
use from a lower to a higher use hazard category are entirely different from those for a
change from a higher to a lower use hazard category. The respective building code

adopted in that region states these requirements.

In this case study building, a change of occupancy is proposed from use group B
to group R-2. This change of occupancy places the building in a higher hazard category
as per the building code. All the code analysis performed in this chapter focusing on
making the building comply with the code requirements is based on this proposed
occupancy change. The suitable sections relevant to this change from group B to group
R-2 are studied in detail. As per the proposed goal and related objectives of this research,
the code analysis for the defined rehabilitation scope is performed under two categories

using:

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0 Michigan Building Code (MBC) - Regular Construction Code

0 Michigan Existing Building Code (MEBC) — Rehabilitation Code

A comprehensive code analysis using both the MBC and the MEBC was performed and
the results have been summarized in this subsection, detailing the code related issues in
the proposed rehabilitation along with some critical findings. The more detailed version

of the code analysis is presented as an appendix (Appendix A).

4.3.3.1 MICHIGAN BUILDING CODE (MBC) BASED ANALYSIS

By passing State Public Act 245 of 1999, the State of Michigan adopted as
its single statewide building code the Michigan Building Code (MBC), which is adapted
from the lntemational Building Code (IBC) developed by the lntemational Code Council.
In the MBC, a separate chapter (Chapter 34) is dedicated to work in existing structures,
but this chapter is not very comprehensive in addressing the issues that prevail in existing
structures built during historical periods. The provisions of this chapter control the
alteration, repair, addition and change in occupancy o f existing structures to a smaller
magnitude. As per the MBC, the portions of the structure that undergo additions,
alterations or repairs need to conform to the requirements of the code for new
construction. Additions or alterations that will cause an existing structure to be in
violation of any provisions of the MBC should not be made. Chapter 34 permits portions
of the structure that are not altered and not affected by the alteration to avoid complying

with the code requirements for new construction of a similar kind.

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According to Section 3405 in Chapter 34 of the MBC, no change will be
permitted in the use and occupancy of the building that would place the building in a
different division of the same occupancy group (for example, changing from group R-l to
R-2 or R-3) or in a different occupancy group (for example, changing from group B to
group R) unless such building is made to comply with the requirements of the MBC for
such division or occupancy group. However, if the new or proposed occupancy use is less
hazardous (refer to hazard categories for different use groups discussed in chapter 3) than
the existing use (based on the life and fire risk), the building official has the authority to
permit the change in use without conforming to all the requirements imposed by the
MBC for that respective use group. If this benefit of approval is offered by the building
official, a certificate of occupancy should be obtained, where it has been determined that
the requirements for the new occupancy classification have been met as per the

requirements put forth to address the health and safety issues.

If a change of use made to an existing structure raises the building to a
higher hazard category, then the entire building must comply with all the requirements of
the MBC that are similar to new construction for the proposed use group. In the case
study building, the proposed use group results in change of the existing group B lower
hazard use to group R-2, a new, higher hazard use. This change makes it compulsory for
the entire building to comply with the MBC and meet all requirements similar to a new
group R-2 type construction.

In the case study building, all the existing components and elements were

analyzed for their condition and conformity with the standards defined by the MBC for

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group R-2 construction. Since the existing structure is fairly open with only the exterior
enclosures enclosing the structural elements, all the new components that will be added
for the new R-2 use will comply with the MBC standards in any case. All existing
elements are considered for this code analysis. Some of the existing building elements

identified for further analysis are (see figure 17 for plan):

0 Existing exterior enclosure masonry walls (party walls at North and South ends)
0 Continuous wall separating building A and building B (see plan)
0 Existing windows, window frames and window glass panes
- Existing floors and ceilings along all the floor levels in both buildings A and B
0 Existing means of egress stairs — this includes:
> Continuous stairs in Building A (see plan)
)‘v‘ Continuous stairs in Building B (see plan)
‘P Mezzanine stairs in Building A
> Fire escape stairs in the rear side common to buildings A and B
0 Existing structural elements (columns, beams, joists and slabs)
0 Existing three elevators opening into building A
0 Existing mechanical, electrical and plumbing fixtures
0 Existing floor and ceiling finishes and other building materials
0 Existing vertical enclosures running along the height of the building
(All the above elements also been studied for dimensional conformity with code.)
Based on the code analysis performed in the case study building using the MBC, four

major categories (in terms of cost impact) of non-compliance have been identified:

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0 FIRE PROTECTION: F IRE-RESISTANCE-RATED CONSTRUCTION

> SECTION 703: Fire-Resistance Ratings
‘9 SECTION 704: Exterior Walls
3* SECTION 707: Shaft and Vertical Exit Enclosures

0 MEANS OF EGRESS
r SECTION 1003.2 System Design Requirements
93° 1003.3.3 Stairways

‘i 100333.] Stairway Width.

‘i 1003.332 Stairway Headroom

1003.333 Stair Treads and Risers.

> 10033331 Dimensional Uniformity
1003.334 Stairway Landings
1003.336 Vertical Rise

v

o INTERIOR ENVIRONMENT
‘2 SECTION 1207: Interior Space Dimensions

°2° 1207.2 Minimum Ceiling Heights.

0 INTERIOR FINISHES

3* SECTION 803: Wall and Ceiling Finishes

These four major categories identified from the code analysis performed on the existing
building were critical in terms of cost involved for making these non-complying building

elements comply with the MBC. This limited list of items is a summary based on the cost

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impact analysis performed by the researcher in the later part of the research. Based on the
existing conditions of the case study building, all the remaining components for the new
R-2 use will be new anyway and will comply with the MBC. A detailed description of
these four identified components and their non-compliance is furnished in this section of
the report. Each main section is detailed with the subsections mentioned above, and each
sub-section is explained in three categories:

0 Compliance requirements as per the MBC (CR-MBC)

0 Existing condition of the building component (EC -BC)

0 Rehabilitation work scope to make the component comply with the MBC (RCC)

4.3.3.1.1 FIRE PROTECTION: FRR CONSTRUCTION

In any building construction, fire-resistant materials and assemblies should be
used for resisting the spread of fire and smoke within a building and the spread of fire to
or from other buildings. Fire-resistance-rated construction is adopted to create the
required separation of adjacent spaces and critical building components such as structural
members and load carrying members from continuing fire spread and to safeguard against
collapse and disaster. This section illustrates the fire protection and the fire resistance of

the existing building components in the case study building.

F ire-Resistance Ratings (MBC Section 703)
Fire Resistance Rating (FRR) is the period of time a building element, component
or assembly maintains the ability to confine a fire, continues to perform a given structural

function, or both, as determined by the tests or the methods based on tests, prescribed in

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Section 703 of the MBC. FRR is calibrated as the number of hours of resistance that a
particular component or assembly offers during fire. The fire-resistance rating of building
elements shall be determined in accordance with the test procedures set forth in ASTM E
119. As per the MBC, engineering analysis perfomred on similar building element
designs having fire-resistance ratings as determined by the test procedure set forth in
ASTM E 119 can be used to determine the FR of the existing old assemblies that does
not have FRR records.

Based on the researcher’s discussion with practicing architects in the Detroit area,
it is assumed that all the buildings of a similar type built in the city during the same
period as the case study building have a FRR of one hour. Assuming this fact is
applicable for the case study building, the primary components of rehabilitation (by cost
impact) such as exterior walls, shaft and vertical enclosures and fire partitions, are

analyzed based on the MBC.

Exterior Walls (MBC Section 704)

The existing exterior walls in the building are open to the main street and common alley
on the east and west sides of the building. The north and south walls are party walls,
joined with adjacent buildings. According to the assumption above, all the exterior walls

in the building have a one-hour FRR. Following is the analysis using the MBC:

0 Compliance requirements as per the MB C .'

 

According to Section 704.5 of the MBC, all exterior walls should be fire-resistant
rated in accordance with Tables 601 and 602 of the MBC. Based on Table 601 and 602,

as detailed in section 4.3.2 of this chapter, the case study building is classified under

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“Type I-B” construction. According to Section 704.5 and Table 601 and 602 of the
MBC, the exterior walls and their components that are load bearing need to have a
minimum two hour FRR. The fire-resistance rating of exterior walls with a fire
separation distance of greater than 5 feet (1524 mm) should be rated for exposure to fire
from the inside. Any wall located on a property line between adjacent buildings which
is used or adapted for joint service between the two buildings (party wall), shall be
constructed as a fire wall without openings in accordance with Section 705 and shall
create separate buildings. This section requires the party walls have a minimum two

hour FR.

0 Existing condition of the building component:
All the exterior walls of the case study building are rated with just a one—hour
FRR, including the party walls on the north and south sides of the building. Since it is
assumed that all the buildings of a similar type built in the city during the same period as
that of the case study building have F RRs of one hour, the building is not conforming to
the requirements of the MBC as specified in Sections 704 and 705 and this fire-resistance

rating must be increased to the current minimum of two hours.

0 Rehabilitation work scope to make the component comply with the MBC:
The existing exterior walls of the case study building do not comply with the
requirements set forth by the MBC; their fire-resistance rating must be increased from
one hour to two hours. Various methods can be adopted to increase the existing FRR of

the walls by a minimum of one hour. For example, to achieve a one-hour fire-resistant

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rating for the existing brick masonry walls, a minimum of 5/8” thick gypsum wall board
can be fixed on the existing walls by furring and lathing with minimum 7/8” channels,
galvanized and placed at 12” DC. This will provide the existing wall with an additional
layer of protectiveness, adding an additional one hour to the FRR, making it a two-hour
fire-rated wall. Details on the particular building materials used for this process can be
obtained from section 4.3.5.5. In some cases, any protective coating such as cement
mortar, pure plaster, vermiculite plaster or cement can be used to increase fire resistance.
Also, fire resistance can be increased in the existing walls by grouting with certain fire-
resistant chemicals. For the purposes of cost analysis, this research work assumes the

gypsum board with furring on the existing masonry wall is used.

Shaft and Vertical Exit Enclosures (MBC Section 707)

The existing vertical enclosures in the case study building such as the stairwell
enclosures, elevator room enclosures and utility shafts are of one-hour fire resistance

rated materials. Similar to the exterior walls, the vertical shafts also need to comply with

the MBC.

0 Compliance requirements as per the MBC:
Section 705 of the MBC is applicable to all vertical shafts in a building where
such shafts are required to protect openings and penetrations through floor/ceiling and

roof/ceiling assemblies. According to Section 707.4 of the MBC, shaft enclosures

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including exit enclosures shall have a fire-resistance rating of not less than 2 hours
where connecting four stories or more, and 1 hour where connecting less than four
stories. Shaft enclosures shall have a fire-resistance rating not less than the floor
assembly penetrated, but need not exceed 2 hours.

The continuity of the vertical shafts and enclosures is an important compliance
requirement as per the MBC. According to Section 707.5 of the MBC, shaft enclosure
walls should extend from the top of the floor/ceiling assembly below to the underside
of the floor or roof slab or deck above and should be securely attached thereto. These
walls should be continuous through concealed spaces such as the space above a
suspended ceiling. The supporting construction should be protected to afford the
required fire-resistance rating of the element supported. Hollow vertical spaces within

the shaft enclosure construction wall should be fire stopped at every floor level.

0 Existing condition of the building component:

 

All the existing vertical shafts and enclosures in the case study building are rated
with an FRR of just one hour, including the existing stairwell enclosures in buildings A
and B, because of the assumption that all the buildings of a similar type built in the city
during the same period have the same FRR. This one hour FRR must be increased to the
current minimum of two hours in order to meet MBC Section 705 requirements.

In building A the stair shaft is discontinuous for one floor level at the second floor
level, where the mezzanine stairs and second floor stairs of building B provide access to

further floors of building A. This also is not compliant with the MBC requirements.

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0 Rehabilitation work scope to make the component comply 1-1«'ith the MBC:

 

The existing vertical shafts and enclosures of the case study building do not
comply with the requirements set forth by the MBC; it is essential to increase the fire
resistance rating of vertical shafts and enclosures from one hour to two hours. Methods
described in the earlier section can be adopted to increase the FR of the vertical shafts
and enclosures by a minimum of one hour. For example, to achieve a one-hour fire-
resistant rating for the existing vertical shafts and enclosures, a minimum of 5/8” thick
gypsum wall board can be fixed on the existing vertical shafts and enclosures with furring
and lathing on the inner sides of the shafts with minimum 7/8” channels, galvanized and
placed at 12” 0C. This will add an hour to the FR, making it a two-hour fire-rated
enclosure. Details of the particular building materials used for this process can be
obtained from section 4.3.5.7.

To address the issue of continuity of the stairs (vertical shaft) new stairs may be
constructed in the place of discontinuity or the whole stairway may be demolished and

rebuilt. This issue is addressed in the cost analysis part of this chapter.

4.3.3.1.2 MEANS OF EGRESS

Means of egress is a continuous and unobstructed path of vertical and
horizontal egress travel from any point in a building or structure to a public way. A
means of egress consists of three separate and distinct parts: the exit access, the exit and
the exit discharge. The means of egress is designed based on the number of persons

(occupant load) the building is designed to support. Chapter 10 of the MBC specifies the

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general requirements for means of egress applicable to all elements of the means of
egress system, in addition to those specific requirements for the exit access, the exit and

the exit discharge detailed in other sections of the building code.

System Design Requirements (MBC Section 1003.2)

The means of egress system design requirements include various design factors
such as multiple occupancies in the building, design occupant load, egress width, ceiling
height, floor surface of egress path, elevation change, egress continuity, exit signs, egress
illumination, accessible means of egress, elevators, escalators, and moving walks. One of
the primary sources of egress is the building’s stairs. The case study building has two
continuous stairways, one in building A and one in building B. Both of these stairways
have a code complication that makes them not compliant with the MBC. Some of the
major design requirements related to stairs in this section of the building code include
stairway width, headroom, stair treads and risers, stairway landings, stairway construction
(including walking surface of the stairs), vertical rise of the stairways (also defining the
slope of the stairs), handrails (height, continuity, clearance), design requirements related
to roof access of stairs, dimensional uniformity and profile of treads and risers.

Out of the various design components of the existing means of egress in the case
study building, code issues related to the existing stairways were felt by the researcher to
be prominent; those components that have a critical cost-based impact on the process of

rehabilitation are discussed in detail in the following subsections.

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Stairways (MBC Section 1003.3.3)

In the MBC, Section 1003.3.3 details the requirements for stairways that include
the design of various stairway components, the materials to be used in construction and
the positioning requirements. Existing stairways A and B in buildings A and B are
studied for all these code requirements and the key issues are discussed. Both the
stairways in the case study building must comply with Sections 1003.331 through

100333.121 ofthe MBC.

Stairway width (MBC Section 1003.331)

0 Compliance requirements as p_er the MBC:

The allowable width of stairways in a building is determined as specified in
Section 1003.2.3 of the MBC. According to this section, the total width of means of
egress in inches (mm) shall not be less than the total occupant load served by the means
of egress multiplied by the factors in Table 1003.2.3 and not less than specified elsewhere

in the building code.

Follow the calculations as per this section: According to Table 1003.2.3 of the
MBC, the minimum stairway width in inches per occupant for a building with a sprinkler
system is 0.2. Based on a building capacity assumption of a total of 500 occupants for

both the buildings A and B, each stairway has an occupant load of 250 each.

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Occupant load per stairway = 250
Width per occupant = 0.2

Total width of stairs = 250 * 0.2 = 50 inches = 4’ 2” minimum

These calculations are based on the occupant load for the new use in the case
study building after rehabilitation, occupancy group R-2, with an assumption of three
occupants per dwelling unit at a rate of 11 dwelling units per floor. In addition, according
to Section 1003.33] of the MBC, no stairway may be less than 44 inches (1118 mm)
wide as a base minimum. Considering these two design values, it is recommended that
the stairs be no less than 50 inches wide, but it is required for the stairs to be a minimum

of 44 inches wide. For this research purpose, 44 inches is used as the minimum width.

0 Existing condition oLthe building component:

 

The existing stair width in the case study building is not in conformance with the
new standards. The existing stair width is 40 inches in both buildings A and B, which is
not compliant with the minimum requirement of 44 inches in the Michigan Building

Code.

0 Rehabilitation work scope to make the component comply with the MBC:
The stair width must be increased from 40 inches to 44 inches. The existing
stairwell does not support this change, as the existing dimensions of the stairwell cannot
accommodate the increased width. This necessitates the removal of the existing stairs,

including the stairwell enclosures, and the introduction of new, compliant stairways. This

188

defines the scope of the rehabilitation work to make the building comply with the

Michigan Building Code.

Stairway Headroom (MBC Section 1003.332)

0 C ornpliance requirements as per the MBC:

 

According to Section 1003.332 of the MBC, stairways shall have a minimum
headroom clearance of 80 inches (2032 mm) measured vertically from a line connecting
the edge of the nosing. Such headroom should be continuous above the stairway to the
point where the line intersects the landing below, one tread depth beyond the bottom
riser. The minimum clearance should be maintained along the full width of the stairway
and landing. If in a building there are spiral stairways complying with Section 1003.339,

a headroom clearance minimum of 78inches (1981 mm) is allowed by the MBC.

0 Existing condition of the building component:

 

In the case study building, headroom clearance is less than the minimum
requirement of 80 inches. In building A the headroom clearance varies because the
building’s floor heights vary on higher floors (see the elevation drawing of the building

detailed in the previous section).

0 Rehabilitation work scop_e to make the component comply with the MBC:
To make the existing stairs compliant with the MBC’s headroom clearance

requirements, they must be removed, including the stairwell enclosures, and rebuilt.

189

Stair Treads and Risers (MBC Section 1003.333)

0 Compliance requirements as per the MBC:

According to Section 1003.333 of the MBC, stair riser heights shall be 7 inches
(178 mm) m aximum and 4 inches ( 102 mm) minimum. Stair tread d epths shall b e 1 1
inches (279 m m) minimum. T he riser h eight 5 hall b e m easured v ertically b etween the
leading edges of adjacent treads. The tread depth shall be measured horizontally between
the vertical planes of the foremost projection of adjacent treads and at right angle to the

tread’s leading edge.

0 Existing condition of the building component:

This is a very critical problem found in most vacant buildings that were built before
modem-day building codes were established and used. Designers at that time usually
designed the risers more than 8 inches high and the treads less than 11 inches wide. This
resulted a smaller number of risers between different floor levels. But as new codes came
to use, the riser and tread requirements were changed to reduce climbing strain. In the
case study building neither the riser heights nor the tread depths meet the MBC standards,
as the risers are 8 inches high and the treads are 10 inches wide in most places in building
A and building B. Some parts of the stairs in Building B, metal stairs carrying rich

architectural value, comply with the MBC standards.

0 Rehabilitation work scope to make the component comply wit/1 the MBC:

 

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To make the existing stairs compliant, riser heights and tread dimensions must be
altered, which means that the existing stairs and stairwell enclosures must be removed

and rebuilt.

Dimensional Uniformity (.MBC Section 10033331)

0 Compliance requirements as per the MBC:

According to Section 10033331 of the MBC, stair treads and risers shall be
of a uniform size and shape. The tolerance between the largest and smallest riser or
between the largest and smallest tread shall not exceed 0.375 inch (9.5 mm) in any flight
of stairs. In addition, Section 10033332 details the profile requirements. The radius of
curvature at the leading edge of the tread shall be not greater than 0.5 inch (12.7 mm) and
beveling of nosings shall not exceed 0.5 inch (12.7 mm).

Risers in the stairs should be solid and vertical or sloped from the underside of the
leading edge of the tread above at an angle not more than 30 degrees from the vertical.
The leading edge (nosings) of treads shall project not more than 1.25 inches (32 mm)
beyond the tread below, and all projections of the leading edges shall be of uniform size,

including the leading edge of the floor at the top of a flight.

0 Existing condition of the building component:

A certain level of dimensional non-uniformity was noted in the case study

building’s stairs. This must be modified to meet the code standards.

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0 Rehabilitation work scope to make the component comply with the MBC:
Parts of existing stairs that do not meet MBC standards must be removed and

rebuilt to make the building compliant.

Stairway Landings (MBC Section 1003.334)

0 Compliance requirements as per the MBC:

 

According to Section 1003.334 of the MBC, there should be a floor or landing at
the top and bottom of each stairway. The width of landings should not be less than the
width of stairways they serve. Every landing should have a minimum dimension
measured in the direction of travel equal to the width of the stairway. Such dimension
need not exceed 48 inches (1219 mm) where the stairway has a straight run. According to
the minimum stair width requirements of 44 inches set by the MBC, the stairway landing

also takes the same minimum requirement of 44 inches.

0 Existing condition of the building component:

The existing stairway width in buildings A and B, including landings, is 40 inches,
as mentioned in the previous section detailing stairway width. Since the stairway width
does not comply with the MBC requirements, the existing landing too does not comply

with the MBC’s minimum width requirement of 44 inches.

0 Rehabilitation work scope to make the component comply with the MBC:

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Existing stairway landings must be demolished and reconfigured according to the
MBC’s dimensional requirements of a minimum of 44 inches. As the previous code
parameters necessitated the removal of existing stairs, this becomes a part of the same

scope of rehabilitation work.

Vertical Rise (MBC Section 1003.336)

0 Compliance requirements as per the MBC:

 

According to Section 1003.3.6 of the MBC, no flight of stairs should have a

vertical rise greater than 12 feet (3658 mm) between floor levels or landings.

0 Existing condition gf the building component:

 

On most floors, the stairs meet the vertical rise requirement of the MBC. But
on three stories of building A (floor levels 6, 7 and 7 A), the stairs have non-confirming

vertical rises due to story heights different from the other floors of buildings A and B.

0 Rehabilitation work scope to make the component comply with the MBC:

 

In the case study building, many code complications are observed in the upper
floors of building A, including the stairway and its components. The existing stairway at
the sixth and seventh floor levels of building A must be demolished and reconfigured
according to the MBC’s dimensional requirements as detailed above. As the previous
code parameters necessitated the removal of the existing stairs on these floor levels of

building A, this becomes a part of the same scope of rehabilitation work.

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4.3.3.1.3 INTERIOR ENVIRONMENT

In any building it is highly essential to comply with the building code provisions
that govern requirements related to the interior spaces of buildings, including ventilation,
temperature control, lighting, yards and courts, sound transmission, room dimensions,
surrounding materials and rodent proofing. According to the natural ventilation
requirements, any occupied space should be provided with ventilation through windows,
doors, louvers or other openings to the outdoors. The operating mechanism for the
ventilation systems and other openings should be easily accessible so that the openings
are readily controllable by the building occupants as required. In the case study building,
the existing huge, decorative windows meet all the requirements for lighting (the
minimum net glazed area shall not be less than 8 percent of the floor area of the room
served) and ventilation. Since the walls, partitions and door assemblies separating
dwelling units in the new rehabilitated residential use will be new, sound transmission
from dwelling units or from public or service areas shall meet sound transmission class
requirements as defined by the MBC. The primary component detailed under this section
of the code that has compliance complications is related to minimum ceiling height. This

has a considerable cost impact on the rehabilitation project.

Interior Space Dimensions (Section 1207)

Primary parameters addressed by this section of the MBC include minimum room
widths, minimum ceiling heights, room areas, and the efficiency of dwelling units. Of
these parameters, the most critical one related to the case study building is the ceiling

height.

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Minimum Ceiling Heights (MBC Section 1207.2)
0 Compliance requirements as per the MBC:
According to Section 1207.2 of the MBC, any occupiable spaces, habitable spaces
and c orridors shall have a c eiling h eight 0 f not less than 7 feet 6 inches (2286 mm).
Bathrooms, toilet rooms, kitchens, storage rooms and laundry rooms shall be permitted to
have a ceiling height of not less than 7 feet (2134 mm). The 7 feet 6 inches is the net

ceiling height available for living.

0 Existipg condition of the building component:

Complications related to the minimum ceiling height requirements are very severe in
Building A. Table 16 shows the ceiling heights of the upper floors of building A. In the
floor details, A — F 6 means the sixth floor of Building A. Figure 21 shows the real
picture of the seventh floor level of the case study building, the ceiling of which is around
7 feet high, less than the code requirement. Thus, two floors in building A have ceiling
heights less than the minimum requirements and must be reconfigured to comply with
code.

T able 16: Details of Ceiling Heights in Building “A” in Case Study Building

 

 

 

 

 

Floor Level of Building A Height of Ceiling in Feet
Floor A — F 6 7 Feet
Floor A - F 7 8 Feet
Floor A - F 7A 7 Feet
FIoorA-F8 11 Feet

 

 

 

 

I95

 

 

 

 

 

 

Figure 21: Seventh Floor Level of Building A with Low Ceiling Height of Just around
7 Feet, Making it Not Compliant with the MBC Minimum of 7’6”

0 Rehabilitation work scope to make the component comply with the MBC:

The researcher identified two options for working with the existing floors of building A
to make them comply with the MBC. Option 1 is to demolish and reconfigure the existing
floors 7, 7A and 8 of building A and space the three floors with a equal floor-to-floor
height of 10 feet each. This option will result in four floors of 10 feet floor-to-floor
height, for which the minimum ceiling height of 7’6” can be obtained after deducting 2’

6” for the ducting and flooring. See figure 22.

196

OPTION 1 EXISTING OPTION 2

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Newly Reconfigured Existing Floor Newly Built Floors 6.
Floor Levels 6, 7, 7A, Levels 6, 7, 7A, 8 7, 8 by Removing the
of Building A of Building A Entire Floor 7A
"7 “r- “P
A — F 8
10’ j 13* A—F8 13’ A~F8
10’ __ ATP” 8’ A—F7A
‘” l3 A — F 7
10’ 4 A—F7 10’ A—F7 __
. T 13’ A — F 6
10’ A — F 6 9’ A - F 6
13’ A—F5 13’ A-FS 13’ A—FS
5L. __ __

 

 

 

 

 

 

 

 

 

Figure 22: Two Options Devised by the Researcher to Reconfigure the Existing
F loor-to-Floor Height to Make the Ceiling Height Compliant

 

 

 

Option 2 is to demolish the complete floor level 7A and reduce the number of
floors to three with equal floor-to-roor heights of 13 feet each. This will change floors 6.
7, 7A and 8 to floor 6, 7 and 8, resulting in the loss of six dwelling units in building A.

For this research purpose, option 1 is selected for further analysis. Based on the
option selected, the scope of rehabilitation work involves demolition of existing three
floors and rebuilding the same with new floor-to-floor heights as shown in figure 22. This
will involve the removal of existing floor slabs, floor finishes, ceiling finishes and related

duct works.

197

4.3.3.1.4 INTERIOR FINISHES

Interior finishes form a primary part of the completed, usable building. This
division of the building code governs the use of materials as interior finishes, trim and
decorative materials. These provisions limit the allowable flame spread and smoke
development based on location and occupancy classification. As per Section 805.1.2, the
permissible amount of flame-resistant decorative materials shall not exceed 10 percent of
the aggregate area of walls and ceilings. Material used as interior trim shall have a
minimum Class C flame spread index and smoke-developed index. Combustible trim,
excluding handrails and guardrails, shall not exceed 10 percent of the aggregate wall or
ceiling area in which it is located.

According to the Michigan Building Code, interior wall and ceiling finishes are
grouped in the following classes in accordance with their flame spread and smoke-

developed indexes.

0 Class A: flame spread 0-25; smoke developed 0-450.
0 Class B: flame spread 26-75; smoke developed 0-450.

0 Class C: flame spread 76-200; smoke developed 0-450.

As per Table 803.4 of the MBC, detailing interior wall and ceiling finish requirements by
occupancy, in a group R-2 use building with a sprinkler system, interior finishes of Class
C material or higher must be used for all rooms and enclosed spaces, vertical exits and
exit passageways, exit access corridors and other exit ways. In the case study building.

most of the floors need new floor finishes, as the existing floor finishes are damaged and

198

need to be changed for the new R-2 use. Existing wall and ceiling finishes in the building

are usable, but they need to be checked for code compliance.

Wall And Ceiling Finishes (Section 803)

0 Compliance requirements as per the MBC:

 

As per section 803 of the MBC, interior finish materials should be applied
(materials like paints for example) or otherwise fastened (for example if a vinyl or
gypsum board is fastened to furring on the wall) in such a manner that these materials
will not be detached or destroyed when subjected to room temperatures of 200°F (93°C)
and above for more than 30 minutes. According this section of the building code, it is
essential for the walls and ceilings to be fire-resistance-rated and made of
noncombustible construction materials. The interior finish material should be applied
directly against existing superstructure materials or to furring strips not exceeding 1.75
inches (44 mm) in width applied directly against such surfaces. The intervening spaces
between the furring strips used to fix the interior finish materials can be filled with
inorganic or Class A material. It can also be fire blocked at a maximum of 8 feet (2438
mm) in any direction in accordance with Section 716. An interior wall or ceiling finish
that is not more than 0.25 inch (6.4 mm) thick can be applied directly against a
noncombustible backing. For the new group R-2 occupancy use, it is essential that all the
interior finish materials are non-combustible and Class C or higher, based on their flame

spread and smoke-developed indexes.

199

 

 

0 Existing condition ot the building component:

The wall and ceiling finishes that were initially installed in the building need to be
tested for flame spread and smoke developed indexes, as historical data for these tests are
not available for the case study building. However, irrespective of the class of materials
existing, the conditions of the finishes needs to be altered significantly. Figure 23 shows

the existing condition of the ceiling and wall finishes in the case study building.

 

 

 

 

 

Figure 23: Existing Wall and Ceiling Finishes in the Case Study Building as Used
During the Earlier Occupancy Group B, Pictured in September 2002.

200

 

 

67111

of.

on

(It!

01

0 Rehabilitation work scope to make. the component comply with the MBC:

 

On most floors of the building, the existing wall and ceiling finishes are damaged
extensively, as seen in the previous figure. The main reason for this deterioration is lack
of maintenance, as the building has been lying vacant for more than fifteen years. In
order to make this building suitable for habitation by use group R-2, all the existing
damaged wall and ceiling finishes must be ripped off and reapplied in accordance with
the current flame spread and smoke-developed index standards. According to Table 803.4
of the MBC, for a use group R-2 use building with a sprinkler system, Class C material or
higher (based on flame spread and smoke-developed index) must be used for all rooms,
enclosed spaces, vertical exits, exit passageways, exit access con‘idors and other exit

ways.

4.3.4.1.5 RECAP OF CODE ANALYSIS USING THE MBC
This code analysis, performed using the Michigan Building Code,
discussed components that were critical in terms of adding cost to the rehabilitation
budget. In the case study building, existing components that have code compliance issues
were detailed in three categories:
'1' Compliance requirements as per the MBC
’3' Existing condition of the building component

'3' Rehabilitation work needed to make the component comply with the MBC

The third category details the scope of work or the specifications for rehabilitation

that must be performed to make the building comply with the MBC’s requirements. A

201

cost analysis for the related scope is given in later sections of this chapter. Also, a
detailed code analysis has been performed for the case study building and attached in the
appendix of this research report. Though the code analysis provided in the appendix is
based on the new Michigan Existing Building Code (MEBC), for each code issue
discussed, its suitable comparison with the regular Michigan Building Code has been
developed and detailed in the Allowable / Required Limits section of the code analysis
table. Refer to appendix for details on this code analysis. Since the Michigan Building
Code is a replica of the lntemational Building Code (IBC), the sections identified in the
appendix analysis report will mention MBC sections as sections from the IBC. In
addition, sections that are marked with “88$” in the code analysis report have a related
cost impact. Detailed notes corresponding to each cost impact are furnished in the code

analysis worksheets provided in the appendix.

4.3.3.2 MICHIGAN EXISTING BUILDING CODE-BASED ANALYSIS

A comprehensive discussion of the new Michigan Existing Building Code’s
(MEBC) history, reasons needed, development and implementation has been fumished in
chapters two and three of this research report. The ICC developed an exclusive code for
addressing the issues related to rehabilitation in existing buildings, called the
lntemational Existing Building Code (IEBC) which was very similar to but more
comprehensive than the rehabilitation code matrix that was developed and opened up for
public hearings by the Michigan Department of Consumer and Industry Services (CIS),

Division of Codes and Standards. The State of Michigan adopted this code as “Michigan

202

Existing Buildings Code” (MEBC) effective October 31, 2002 [CIS 2002]. Since the
IEBC has been almost completely adopted as the MEBC, with very few changes as
detailed in section 3.5 of this research report, all the rehabilitation code analysis
performed in this chapter is based on the final draft of the IEBC.

A detailed rehabilitation code analysis has been performed and tabulated as
a primary outcome of this research. The rehabilitation code analysis is attached in the
appendix of this research report. It is essential to follow the code analysis worksheet in
detail for this part of the MEBC-based code analysis. Important cost-based code impacts
of the MEBC in comparison to the regular MBC are discussed in the following section.
The researcher recommends following the code analysis worksheet for better

understanding.

4.3.3.2.] DESCRIPTION OF MEBC ANALYSIS IN CASE STUDY BUILDING

The MEBC is categorized into thirteen different chapters, discussing
rehabilitation procedures based on the identified scope. The first, most important
consideration using the MEBC is to define the scope of rehabilitation. Once the scope is
defined, then the relevant chapters of the MEBC are followed to check the compliance

requirements of the existing building as per the code standards.

In the case study building, based on the scope of rehabilitation detailed in section
4.3.3 of this chapter, all the compliance requirements need to be met as per Chapter 8 of

the MEBC, (“Change of Occupancy”). The case study building has been completely

203

analyzed for compliance requirements as per the MEBC and the same has been detailed
in the code analysis worksheet provided in the appendix of this research report. Since
there is a change of occupancy from group B to group R-2 in the proposed scope of
rehabilitation of the case study building, all the sections of Chapter 8 and other related
sections required by Chapter 8 are summarized in the notes and remarks column of the

code analysis table in the appendix.

CHANGE OF OCCUPANCY AND RELATIVE HAZARD AS PER THE MEBC

When there is a change of occupancy in a rehabilitation project, the change must
comply with the standards set forth by Section 812.2 of the MBC, detailing “hazard
category classifications.” The relative degree of hazard of different occupancy groups
shall be as set forth in the hazard category classifications, shown in Table 17, 18 and 19.

The change of hazard groups can be of two types :

0 Change of occupancy classification to an equal or lesser hazard (Section 812.2.1

ofthe MEBC)

0 Change of occupancy classification to a higher hazard (Section 812.2.2 ofthe

MEBC)

An existing building shall comply with all the applicable requirements of Chapter 8 ofthe
MEBC based on the respective hazard groups into which the change intended falls. The

three major hazard category classifications detailed in the MEBC are:

204

Means of egress: Hazard categories in regard to life safety (refer to Table 17)
Heights and areas: Hazard categories in regard to heights and area (refer to
Table 18)

Exterior wall fire resistance ratings: Hazard categories in regard to fire

resistance ratings of exterior walls (refer to Table 19)

Table 17: Hazard Category for Subsection Life Safety and Exits [MEBC
2002]

 

HAZARD CATEGORIES AND CLASSIFICATIONS:

 

 

 

 

 

 

 

Life Safety and Exits
Relative Hazard Occupancy Group
1 (Highest) H-1, H-2, H-3, H-4, H—5
2 I-2, 1-3, 1-4
3 A, E, H, M, R-l, R-2, R-4
4 B, F-1,R-3, S-1
5 (Lowest) F-2, S-2, U

 

 

205

 

Table 18: Hazard Category for Subsection Height and Area [MEBC 2002]

 

 

 

 

 

 

 

 

HAZARD CATEGORIES AND CLASSIFICATIONS:
Height and Area
Relative Hazard Occupancy Group
1 (Highest) H-l , H-2, H-3, H-4, H-5
2 A-l, A-2, A-3, A-4, I, R-l, R-2, R-3 R-4
3 E, F-l, S-l, M
4 (Lowest) B, F -2, A-S, R-3, S-2, U

 

 

 

Table 19: Hazard Category for Subsection Exposure of Exterior Walls

 

 

 

 

 

 

[MEBC 2002]
HAZARD CATEGORIES AND CLASSIFICATIONS:
Exposure of Exterior Walls
Relative Hazard Occupancy Group
1 (Highest) H-1, H-2, H-3, H—4, H-5
2 F -1, M, S-1
3 A, B, E, I, R
4 (Lowest) F -2, S-2, U

 

 

 

In the case study building, based on the scope of the project, the change in occupancy is
from group “B” to group “R-2”. For this change, the first two categories of relative

hazard related to means of egress and heights and areas are raised from a lower hazard

206

 

category to a higher hazard category, whereas the third relative hazard category, related
to exterior wall fire resistance ratings, remains at the same level. All the provisions
related to the above detailed relative hazard classifications must comply with the MEBC
provisions. For detailed comments on these sections of analysis, refer to the code analysis

worksheet.

4.3.3.3 CRITICAL FINDINGS OF CODE ANALYSIS

Some of the critical findings of the code analysis of the case study building
using both the Michigan Building Code (MBC) and the Michigan Existing Building Code
(MEBC) define the clear difference in the scope of rehabilitation between using the
MEBC and using the MBC. In this section, the major findings are summarized under four
different categories that have a significant cost impact on the overall process of

rehabilitation work:

0 FIRE PROTECTION: FIRE-RESISTANCE-RATED CONSTRUCTION

o MEANS OF EGRESS

o INTERIOR ENVIRONMENT

o INTERIOR FINISHES

207

To facilitate better understanding, these critical findings are summarized under

two major subsections: requirements of the MBC and requirements of the MEBC.

0 FIRE PROTECTION: F IRE-RESISTANCE-RATED CONSTRUCTION

Requirements of MBC: Refer to section 4.3.4.1.1 of this chapter for MBC

requirements related to Fire Protection and FR construction.

Requirements of MEBC : Refer to section 804 of Rehabilitation Code Analysis, attached

in the appendix of this research report, for the MEBC’s

requirements related to fire protection and FRR construction in

the case study building.

0 MEANS OF EGRESS

Requirements of MBC : Refer to section 4.3.4.1.2 of this chapter for the MBC

requirements related to means of egress.
Requirements of MEBC : Refer to section 805 of Rehabilitation Code Analysis, attached

in the appendix of this research report, for the requirements of

the MEBC related to means of egress.

208

Table 20: Summary of Critical Differences in the Provisions of the MBC and the

MEBC Related to Stairways, a Means of Egress Component (Cost Impact)

 

Differences in the Provisions of MBC and MEBC

Related to Means of Egress

 

Stairway Components

As Per the MBC

As Per the MEBC

 

Means of Egress Width

Min 50" for 500 occupants, but

not less than 44”

At least 22” (559 mm)

 

Stair Riser Heights

Not more than 7” and not less

than 4”

Not more than 8” (203

mm)

 

Stair Tread Depths

Not less than 1 1”

Not less than 8” (203

mm)

 

Stairway Landings

Not less than 44” wide by 44”

long.

Not less than 40” wide
by 36” long

 

 

Stair Slope

 

Maximum of 1:1.5

 

Maximum of 1:1

 

o INTERIOR ENVIRONMENT

Requirements of MBC: Refer to section 4.3.4.1.3 of this chapter for MBC

209

requirements related to the interior environment.

 

Requirements of MEBC: Refer to section 601.3.4 of Rehabilitation Code Analysis,
attached in the appendix of this research report, for the
requirements of the MEBC related to the interior environment

requirements (particularly ceiling height).

0 INTERIOR FINISHES

Requirements of MBC : Refer to section 4.3.4.1.4 of this chapter for requirements of

the MBC related to interior finishes.

Requirements ofMBC: Refer to section 803 of Rehabilitation Code Analysis, attached
in the appendix of this research report, for the MEBC
requirements related to building elements and materials

(interior finishes).

The code analysis critical findings furnished in the above section are related to the
change in occupancy made in the case study building. Since, in two out of the three
hazard classifications (as per the MEBC) the proposed scope of rehabilitation raises the
building to a higher hazard category, the above summarized findings were only identified
as cost critical in the entire process of proposed rehabilitation. In any general

rehabilitation that does not involve a change of occupancy, or if there is a change of

210

occupancy and the change of occupancy is made to an equal or lesser hazard category (as
per section 812.2.1 of the MEBC), then many more benefits can be achieved in the the
rehabilitation process using MEBC over the regular MBC. In the rehabilitation code
analysis attached in the appendix of this research report, few such cost critical benefits of
the MEBC for rehabilitations without a change of occupancy are mentioned. If there is
no change of occupancy in a rehabilitation project, then based on the scope of the project,
any one of the four categories of work (repairs, levels 1 to 3 of alterations, renovations,
and reconstructions) would have increased benefits from these cost—effective
rehabilitation provisions that help to save costs significantly in rehabilitation of old and

vacant structures.

4.3.4 COMPREHENSIVE COST ANALYSIS OF REHABILITATION

Based on the code analysis performed, key cost elements have been identified.
Using the RS. Means Square Foot Costs Construction Data — 2000 [Means 2000] and
RS. Means Repair and Remodeling Cost Data — 2002 [Means 2002], rehabilitation costs
of the case study building have been calculated and tabulated in Table 21. This table
summarizes the total costs of rehabilitation of the case study building using the MBC and
the MEBC in comparison with the cost of constructing a new building similar to the
existing case study building. The general costs of construction and related elements for an

apartment building similar to the rehabilitated case study building are shown in Table 21,

211

and this data is used for the overall cost analysis summarized in Table 22 and Table 23.

This cost analysis section is divided into four major sections:

0 Cost for construction of a new structure similar to the case study building
0 Cost of rehabilitating the case study building using the MBC
0 Cost of rehabilitating the case study building using the MEBC

0 Cost comparisons and summary of rehabilitation cost analysis

The different cost parameters adopted for each respective code analysis (MBC and
MEBC) are discussed it nder e ach related 5 ection. The c osts o f rehabilitation items are
taken from the Means construction cost data book, and the related explanation is offered
in this section of the research report. As per the design proposed for conversion of current
use group B to new use group R-2, building A and B together result in 10 to 11 dwelling
units per floor, totaling around 70 dwelling units in the entire building after the proposed
rehabilitation and conversion. Based on the geometry of the existing building, dwelling
unit floor plans have been designed by the architect (see Figure 19 for an example). The
floor area of each dwelling unit averages around 1000 square feet, thereby creating a
total of around 80, 000 square feet of dwellable area in a building that is currently old,
vacant, and abandoned without any use or value. In the cost analysis performed for the
scope of this research, the researcher used the unit square feet costs of entire residential

units and the unit line item costs for the rehabilitable building components from the

212

Means books. Based on the detailed estimates prepared, the costs obtained are

summarized in the cost analysis tables, Table 21, Table 22 and Table 23.

4.3.4.1 COST FOR NEW CONSTRUCTION OF SIMILAR BUILDING

In order to better understand the costs involved with the rehabilitation and
reuse of existing buildings, the costs for constructing a new building similar to the case
study building in terms of type, size, area and location (Detroit) for the proposed use
(group R-2) are calculated and summarized in Table 21. For this exercise, model costs are
calculated for an apartment building (Group R-2) that is 15 stories high with a 10’6”
story height and 162,000 square feet of floor area using R. S. Means Square Foot Costs
building cost data. The unit square foot cost of a building similar to that of the case study
building is identified and with this unit square foot cost, the cost of a new building for an
area of 108,000 sq. ft. (the area of case study building) was calculated to be
$9,238,320.00 (approximately 9.3 million dollars). For details, refer to section C of the
summary cost comparison shown in Table 22.

Table 21 details the cost of new construction under twelve subsections. Based
on the unit costs table, new construction will cost $80.70 per square foot, excluding the
contractor’s and architect’s fees. The price of construction before these additional fees is
considered for the cost analysis in this research. Since the case study building is located
in Detroit, the City Cost Index of 106.5 is added to the base national cost. With this, the

new construction will cost $85.54 per square foot, excluding the contractor and

213

architect’s fees. The unit square foot cost is used for further cost analysis in the research
work.

The various sections under which the new construction costs categorized include:
site work, foundations, substructure, superstructure, exterior enclosures, roofing, interior
construction, conveying systems, mechanical systems, electrical systems, and related
special construction. The related percentages of costs involved with each section is
tabulated and these percentages are used to define the rehabilitation cost percentages in
comparison with new construction in the later sections of this cost analysis. In addition,
the existing b uilding m ust b e d emolished to u se the site 0 fthe c ase study b uilding to
construct a new structure. Hence the costs of demolishing the existing structure, with a
gross a rea o f 1 08,000 sq uare feet, and clearing the d ebris are included along with the
construction cost of the new building in the cost comparison (Table 22, under Section E).
The demolition costs are taken from the RS. Means Repair and Remodeling Cost Data
2002 [Means 2002].

The total cost of constructing a new structure similar to the case study building in
the same location is obtained by adding the new structure construction cost ($9,238,320)
and the existing structure demolition cost ($945,000), resulting in about $10,183,320 or
approximately 10.2 million dollars. This construction value is used in the cost

comparison and cost savings Table 22 and 23 for further cost analysis.

214

Table 21: SQUARE FOOT COSTS OF APARTMENT (8-24 STORY) [MEANS 2000]
Model Costs Calculated for a 15 Story building with 10'-6" story height and 162, 000 SF 7' of floor area

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 
  
 
   

 

 

 

 

 

 

 

 

 

 

 

    

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Unit Unit Cost % of Sub-
Coet Per SF total
ITEO Foundations
0.1 Footings 8. Found. Poured concrete; strip and Spread footing and 4‘ wall S.F.Ground 11.55 0.77
0.4 Piles 8. Caissons N/A - - - 1.00%
0.9 Excavat. & Backfill Site preparation for slab 8 trench for found. wall 8. footing S.F.Ground 0.96 0.06
"Substructure
0.1 Slab on Grade 4" reinforced concrete with vapour barrier S.F. Slab 3.27 0.22
' 0.30%
.2 Specral Substructures N/A - - -
3.0 'Sgperstructure
01 Columns and Beams Gypsum board fireprooting on columns S.F. Floor 2.68 2.68
0.4 Structural Walls N/A - - -
0.5 Elevated floors Open web steel joists. slab form, concrete. steel columns S.F. Root 9.66 9.02 16.10%
0.7 Roof Open web steel jolstswith rib metal deck. steel columns S.F. Floor 3.77 0.25
0.9 Stairs Concrete tilled metal pan Flight 3900 1.04
IO "Eisner Closure
0.1 Walls Ribbed precast concrete panel 87% of wall S.F. Wall 16.21 6.58
0.5 Exterior wall finish N/A - - - 11 00%
0.6 Doors Aluminium and glass Each 1527 1.16 '
0.7 Windows and glz wall Aluminium horizontal sliding 13% o! well Each 293 1.15
"L -
0.1 Roof coverings Built-up tar and gravel flashing S.F. Roof 2.55 0.17
0.7 Insulation Periite I EPS composite S.F. Roof 1.29 0.09 0.30%
0.8 Openings 8. Specials N/A - - ~
.0 Interior Construction
0.1 Partitions Gypsum board on concrete block and metal studs S.F.Partition 8.24 8.24
0.4 Interior Doors 15% solid core wood. 85% hollow core wood Each 456 5.7
0.5 Wall finishes 70% paint. 25% vinyl wall covering. 5% ceramic tile S.F.Surface 1.09 2.17 29 90%
0.6 Floor finishes 60% carpet. 30% vinyl composition tile. 10% ceramic tile S.F. Floor 4.22 4.22 '
0.7 Ceiling Finishes Painted gypsum board on resilient channels S.F.Ceiiing 2.74 2.74
0.9 Interior/Exterior surf. Painted gypsum board on furfing 80% of wall S.F. Wall 3.01 1.07
i. . ConveyInL
0.1 Elevators Four geared passenger elevators Each 228.420 5.64 7 00%
0.2 Special conveyors N/A - - - '
[5.0 ischanlcel - , . ‘ v -
0.1 Plumbing Kitchen. bathroom fixtures. supply and drainage Each 1692 8.06
0.2 Fire Protection Standpipe and wet pipe sprinkler system S.F. Floor 2.01 2.01
0.3 Heating oil fired hot water. baseboard radiation S.F. Floor 3.84 3.84 23.80%
0.4 Cooling Chilled water. air cooled condenser system S.F. Floor 5.28 5.28
0.5 Special Systems N/A - - -
' "Electrical ‘
Service 8. Distribution 1200 ampere service. panel board and feeders SF. Floor 0.46 0.46
Lighting 8 Power Incandescent fixtures. receptacles. switches. and AC. SF. Floor 4.73 4.73 8.20%
Special Electrical Alarm systems. emergency lighting. antena and secrity S.F. Floor 1.43 1.43
,. Sficthonm on ' v -. .. '
0.1 Specialities [Kitchen cabinets I S.F. Floor I 1.92 ] 1.92 [ 2.40%
. ‘ te ork
0.1 Earthwork N/A - - -
0.3 Utilities N/A - - -
0.5 Roads and parking N/A - - - 0.00%
0.7 Site Improvements N/A - - -
303- TOTAL 80.70. 100%
Contractor Fees (General Reg: 10%. Overhead: 5%, Profit: 10%) 25% 20.18
Architect Fees 6% 6.07
TOTAL BUILDING COST 106.95

 

 

 

 

L

215

___II

4.3.5.2 COST OF REHABILITATING CASE STUDY BUILDING USING MBC

The discussion in this section is based on Table 22, the cost comparison table
developed for the case study building. Follow the “Rehabilitation using MBC” section of
Table 22 for related cost analysis of using the MBC for rehabilitation projects. As shown
in section A of Table 22, the total percentage of new construction in the case study
building for new use group R—2 is around 71.60%; this is obtained by excluding all
existing c omponents o f the b uilding that c an b e u sed for the n ew residential u se. The
components of the existing building that constitute the remaining 28.40% include site
work, foundations, substructure, superstructure and the exterior enclosures. All the
remaining components such as roofing, interior construction, conveyiqg, mechanical,
electrical and special construction for the R-2 use need to be built new, as the existing
building is mostly open without any interior partition walls or other related systems. This
is irrespective of rehabilitation using the MBC or the MEBC.

In order to make the case study building comply completely with the standards of
the MBC, some of the existing building components in the 28.40% category need to be
worked on. These components were discussed in detail in earlier section 4.3.4.1,
“Michigan Building Code (MBC) Based Analysis, ” detailing the requirements of rework
to make the structure comply with the MBC. The major components that have a
substantial cost impact in terms of rehabilitation are estimated to determine the
rehabilitation costs using the MBC. For preparing rehabilitation estimates, RS. Means
Repair and Remodeling Cost Data 2002 [Means 2002] and RS. Means Square Feet Cost

Data 2 000 [Means 2 000] w ere u sed. T he four major c ost i mpactive p arameters in the

216

rehabilitation process identified in the MBC code analysis include these costs of
rehabilitation and building reconstruction (as required by MBC and detailed in code

analysis):

0 Means of egress (existing stair demolition and stair reconstruction) - $1,106,290

0 Improving FRR of exterior enclosures and existing walls - $ 22 7,590
o Altering ceiling heights for compliance (Section 4.3.4.131. I) - .8 307,5 70
0 Improving FRR of vertical shafts and enclosures - $ 34,440

These costs add up as part of the 71.60% new construction cost in defining the cost of
rehabilitation. In addition to these two costs shown in Section D and F of Table 22, the
costs of improving the appearance of and repairing the existing building components are
compiled in section G of Table 22. The cost of improvement includes cost of
improvement of existing materials (such as windows, doors, and wall finishes) and
cleaning and restoration of the existing masonry walls. Based on the existing condition of
the case study building, this cost was estimated at $930,000.

Accounting for all these cost components, the total rehabilitation cost of the case
study building using the MBC sums up to $9,220,528, approximately 9.2 million dollars.
The major benefit that the process of rehabilitation brings over demolition and new
construction is that the historical value of the building is retained and this in turn helps in
maintaining the rich historical status of the city. These costs are further used in Table 23

to determine the cost savings of rehabilitation using the MBC and the MEBC.

217

 

    

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

  

 

 

 

 

 

 

 

 

 

 

 

 

 

 

  

 

 

 

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218

4.3.5.3 COST OF REHABILITATING CASE STUDY BUILDING USING MEBC

Based on the rehabilitation analysis performed using the MBC and the MEBC, the
existing building components that need to be rehabilitated to make the case study
building comply with the MEBC are identified and explained in section 4.3.4.2. The
benefits offered by the MEBC over the MBC are discussed in the same section, based on
which the scope of rehabilitation and related costs have been identified. The major
existing problems the case study building had with the requirements of the MBC, such as
means of egress (stairs), fire-resistance ratings of building components, interior
dimensions (ceiling height) and the vertical shafts and enclosures, are relaxed under the
provisions of the new Michigan Existing Building Code. As per section F of Table 22,
these costs of rehabilitation are not needed under the MEBC as the existing components
comply with the MEBC’S requirements.

However, since the building was vacant and not used for more than fifteen years,
general improvement of the existing building components to acceptable and livable
standards is highly essential. The cost of improvement of these components was
estimated to be $930,000 (See section G of Table 22 under the MEBC category).
Therefore, adding the costs of new additions and changes suiting the use group R-2
(71.60% as s hown in s ection A o f T able 2 2), a nd the c osts o f i mprovement, the total
rehabilitation expenditures for the case study building using the MEBC for compliance
requirements are estimated at $7,544,638, approximately 7.5 million dollars. The cost of
rehabilitation using the MEBC is 81.82% of the new construction cost, as shown in Table

22.

219

4.3.4.1.1 REHABILITATION COST SAVINGS BY ADOPTING THE MEBC

OVER THE MBC-ANALYSIS BASED ON SUMMARY COST TABLE

The comprehensive rehabilitation cost saving analysis was performed as an
outcome of the code based cost analysis. The rehabilitation cost savings are then
categorized as under the MBC or under the MEBC. These costs are then compared with
the cost of new construction similar to the case study building, and with each other to
determine the cost benefits and savings of using the MEBC over the MBC for the
rehabilitation of existing old, vacant and / or underutilized buildings. The detailed cost
savings are shown in Table 23.

Rehabilitation using the MBC accounted to savings of around $962,792 over
new construction, which is about 9.45% Savings in terms of cost of using the building for
use group R-2. On the other hand, rehabilitation using the MEBC accounted for savings
of around $2,638,682 over new construction, which is about 25.91% savings.

One of the imperative objectives of this research was to identify and tabulate the
rehabilitation cost savings of using the new MEBC over the regular MBC to address the
growing rehabilitation needs in Michigan. In the selected case study building, a total
savings of 18.18% of rehabilitation costs was achieved even with a change of occupancy
from a lower hazard use group to a higher hazard use group. The savings achieved in the
proposed rehabilitation project based on the code and cost analysis performed was to the
tune of about $1.7 million, which can be witnessed from the rehabilitation cost savings
Table 23 developed to meet the defined research objectives.

In the case study building, existing first floor is used for retail purposes and

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221

rental income that is capitalized by leasing to the retailers serves as an input into the cost
savings factor as that can be taken as a source of investment towards the rehabilitation
work. Also, the residential units that are brought in by the process of rehabilitation along
the downtown crossings increases the potential for more and more retail shops that in turn
has a significant impact on the rolling economy for both the city as well as the individual
building owners who decide to rehabilitate. In the case study building there is no change
made to the first floor retail shops as, recently some alterations has been performed only
at this level, and this rental income coupled with the rehabilitation cost savings can create

a significant impact on the cost parameters related to rehabilitation.

4.4 ASSUMPTIONS FOR THE CASE STUDY ANALYSIS

The case study building was built in early 1900’s and hence there were no precise
documentation made for the building element’s properties that were used during
construction. Based on this factor of uncertainty, the author made some assumptions after
discussions with practicing architects and code officials in the City of Detroit to address
the issues of buildings that were built in the same period in the similar surroundings.
Some of the assumptions made include:

o The Fire Resistance Rating (FRR) values of different building elements that exist
in the case study building are not available. But FRR values are essential to
determine the fire resistance capacity of the structure. In consultation with the
practicing architect and code officials, a FRR of one hour is assumed to be

existing in all of the existing building elements in the case study building

222

o The structural strength of the building was assumed to be in permissible limits as
the b uilding is converted from Group B use to Group R-2 u se. There were no
standard structural testing results available to be used during the analysis.

0 Gravity loads, seismic loads, snow loads, and wind load factors are assumed to be
under permissible limits for the new residential use in the code analysis

0 The issues related to the lead based health effects were not considered under the
defined scope of this research work

0 A total occupant load of 500 was assumed for the entire building at a rate of 4
persons per dwelling unit. This assumptions was used for various capacity

calculations in the code analysis (e. g. Means of egress, lighting, ventilation etc.)

4.5 LIFE CYCLE OF THE REHABILITATED BUILDINGS

The life cycle of any building that is constructed either new or rehabilitated
depends upon the quality of operation, maintenance, repair and services rendered at
proper intervals. According to the State 0 f M innesota, sustainable building guidelines,
life cycle of a building in general is calculated for a minimum of 50 years, out of which a
50 year life for major building structural components, exclusive of interior construction,
finishes, and furnishings is established as a basic design criteria in most construction
projects [MSBG 2003]. In most cases, the structural components of a building are more
durable and as such, they sustain for a longer period. However, the interior construction

that includes the mechanical, electrical, plumbing systems and other finishes need

223

constant maintenance for better life. As most of the non-durable elements discussed
above are changed during rehabilitation process, the life cycle ofthe structures must be as

good as new structures with a very minimal factor of failure probability.

4.6 SUMMARY

A c omprehensive c ode and c ost analysis 0 fu sing the Michigan Building C ode
(MBC) versus the new Michigan Existing Building Code (MEBC) for rehabilitating
existing old, vacant and underutilized buildings was documented in this chapter. Based
on the author’s knowledge of building codes and visits to the case study building in
Detroit, detailed rehabilitation specifications related to the code and cost analysis were
developed and documented. Two major building codes, the MBC (Michigan Building
Code 2000) and the MEBC (Michigan Existing Buildings Code 2003), were used to
analyze the identified case study building for code compliance requirements and their
significant impacts on cost of rehabilitation.

In this research, the case study building identified is proposed to be converted
from business use group B into a high-rise residential use group R-2. Since in this
particular rehabilitation scope there is a change in occupancy from a lower hazard use
group to a higher hazard use group, as defined by the new rehabilitation code, only
around an 18 percent cost benefit over new construction was achieved. However, based
on the researcher’s findings, it is evident that if rehabilitation results in either the same
use group or a use group in the same or a lower hazard category, the cost benefits

provided by the new rehabilitation code would be significant.

224

CHAPTER FIVE

IMPACT OF BUILDING REHABILITATION ON
URBAN REVITALIZATION

225

 

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5.1 INTRODUCTION

The previous chapters attempt to explain the different code compliance
requirements for the process of rehabilitating existing old and vacant buildings. The code
compliance requirements as per the Michigan Building Code (MBC) and the Michigan
Existing Building C ode (MEBC) w ere applied to define and explain the rehabilitation
scope in the process of building rehabilitation. In chapter 4, the author identified a case
study building in the City of Detroit that can be characterized as in the old, vacant and
underutilized category of buildings and performed a comprehensive code and cost
analysis by defining the scope of rehabilitation based on the compliance requirements of
the identified building codes.

The author analyzed various subsections of the building codes (MBC and MEBC)
to check the compliance requirements for the defined scope of rehabilitation and
identified critical cost-saving factors in the process of building rehabilitation. The results
were tabulated and the effectiveness of using the new Michigan Existing Building Code
(MEBC) o ver the regular Michigan Building C ode (MBC) for the p rocess o f b uilding
rehabilitation was validated by the cost savings achieved in the code-based cost analysis
furnished in Chapter 4. This chapter delves into the impact of cost-effective rehabilitation
(adopting the M BBC) 0 fold, v acant and underutilized existing b uildings that form an
integral part of the Built Environment on the overall process of urban revitalization.

Various social, economic, political and cultural researchers and urban scientists
have studied the process of revitalization of deprived urban communities carefully. These

studies have been brought together on one common platform to solve the puzzle called

226

“successful urban revitalization,” initiating the development of revitalization models
incorporating various social, economic, political and cultural issues. In this chapter, the
existing urban models are studied and an extended urban revitalization model is

developed encompassing a newly defined element, the Built Environment Factors.

5.2 URBAN REVITALIZATION POTENTIAL BASED ON MARKET STUDY OF

REHABILITABLE BUILDINGS

As d etailed in the literature 3 urvey, the d ecline ofm any old urban c enters is
characterized by overall deterioration of the existing buildings and infrastructure. This
decline needs to be studied and plans should be chalked out for the successful
revitalization of the deteriorating urban centers. One of the important parameters that lead
to urban decline, as identified and investigated by the author, is the aging and
abandonment of buildings and infrastructure that were built during early years of urban
growth. These old and vacant buildings, once used efficiently, are now abandoned and
standing as symbols of despair along the majestic downtown crossings. These structures
were abandoned as people fled to suburban lifestyles, an outcome of urban sprawl, which
is initiated by various social, economic, political and cultural factors. This section delves
into identifying the potential of achieving urban revitalization in Detroit by adaptive re-
use of existing buildings and infrastructure, which will facilitate attraction of new
inhabitants in addition to retention of the current population. This is thought of as need of

the hour by many urban scientists, considering the fact that Detroit has become the first

227

major city in US history to have fallen below a population of 1,000,000 [DEM 2002]. In
addition, the available market for the rehabilitated buildings in the city and the code-
based cost impact of rehabilitation on the revitalization process are discussed in this

section of the report.

5.2.] STUDY OF EXISTING DEMAND FOR BUILDINGS

The developmental activities in the City of Detroit that started in early 1990s
created the first momentum for the city’s rebirth. These activities were initiated and led
by automotive frontrunner General Motors (GM), which stayed committed to Detroit’s
development by setting up its world headquarters, called the “Renaissance Center,” in the
renaissance zone of the city. Along with this development, prestigious projects like the
Detroit Tigers' C omerica Park, the Michigan Opera Theatre, the casinos and the soon-to-
be—new Detroit Lions stadium, as well as the efforts of individual entrepreneurs, spurred
new and active developments in the city that brought a new outlook to the declined urban
area [STEIN 2000]. As new developments and events increasingly emerged in the city
Center, it propelled novel investments, which created an increased economic thrust.

Even though the City of Detroit is famously designated as the “Automobile
Capital of the World,” many kinds of new trades and markets recently started opening up,
6nel‘gized by the new economic outlook and benefits for businesses in the city. For
eXample, Compuware Corporation, a Michigan-based information technology solution
Provider, is setting up its 1.2 million square foot world headquarters in downtown Detroit

as a part ofthe Campus Martius development. According to Patrick O'Keefe, a Michigan

228

real estate consultant [DUBE 1999], Campus Martius has major significance for Detroit’s
revitalization. Compuware Corporation, a large, non-automotive, suburban Detroit
employer, setting up its world headquarters in the downtown Detroit area is a great sign
of diversified business moving back to the city. This is a positive sign of revitalization in
Detroit because, viewed from a national perspective, Detroit has tried to diversify in
various businesses for the last 20 years but was never very successful. These
developments in the city will encourage many new companies to explore Detroit’s
business potential, which, in turn, will continue to create a high demand for buildings and
infrastructure to serve the growing population.

As new developments are increasingly brought into the city’s renaissance zone,
low vacancy rates and climbing rents at Metro Detroit apartment complexes are attracting
the attention of long-time area real estate developers. Based on a recent forecast by
Marcus & Millichap, a real estate investment brokerage firm in Southfield, the apartment
vacancy rate in Metro Detroit was documented at the low rate of 3.2% in 2001, down
significantly from the 5.8% rate recorded in 1995 [KING 2001]. This equation of
revitalization is quite interesting. As the revitalization process creates more economic
momentum, the need for buildings and infrastructure to serve the growing population
becomes vital.

In the wake of increased social, economic and cultural activities and the new
stadia c ulture (the D etroit T igers' C omerica P ark and the n ew D etroit Lions stadium),
more and more people are attracted by the city life, creating an alarming need for both
residential and commercial buildings and the infrastructure to match. When compared to

the commercial building market, the residential. building (housing) market is projected to

229

have high demand, based on the growth pattern observed in the City of Detroit.
According to the Association for Community Researchers, the Detroit region’s cost of
living is estimated as only 10.75% above the national average. Compared to other major
U.S. metropolitan areas, Detroit is declared an affordable place to live. In a report
published by the Detroit Economic Growth Corporation, in 1999 the median home price
in the Detroit area was $134,000, which was highly affordable when compared to that of

Oakland, California at $237,000 and Boston, Massachusetts at $170,000 [DEGC 2003].

Since Detroit has started creating targeted tax and business incentive zones,
thousands of working people who live in the surrounding suburbs will be coming
downtown to take benefit of the growing market and commercial activities. This
movement is expected to favorably impact the housing demand in the city, creating new
markets for residential development. The growing demand for buildings and
infrastructure can be met not only by new construction, but also by rehabilitating the

city’s old, vacant and underutilized existing structures.

5.2.2 MAGNITUDE OF POSSIBLE REHABILITATION

The growing demand for both residential and non-residential buildings, as
discussed in the previous section, clearly illustrates the need for rehabilitation and
adaptive re—use of the abundant numbers of old, vacant and underutilized buildings

standing as deteriorated structures in the City of Detroit. A detailed compilation of the

230

unutilized and underutilized building stock is summarized in section 4.2.1 of Chapter 4.
Table 14 shows the comprehensive list of Detroit’s buildings that are declared part of the
vacant / not-in-use category under the register of Wayne County, Michigan by the
National Register of Historic Places [NRHP 2003]. The 839 buildings tabulated in
Chapter 4 are declared on the national, state and the city historic registers, but, on the
other hand, there are many similar old, vacant and deteriorated buildings in Detroit that
are not declared under the historic registers due to their locations (i.e., not in a historic
district) or historic status.

All these old and vacant buildings together constitute a major source of
rehabilitable building stock in the city, which, when effectively rehabilitated for either the
same historic use or for a new market-defined use, will form an valuable addition to
growing residential and commercial usable building stock. This process of rehabilitation
not only helps in restoring the historic importance of the city, but also prevents the
additional financial requirements for constructing new buildings and infrastructure, in
addition to demolition and debris removal costs related to constructing new buildings by
pulling down existing abandoned vacant buildings currently open to vagrants. The

magnitude available in the Detroit is immense in terms of cost and value.

5.2.3 MARKET CAPTURE RATE FOR REHABILITATED BUILDINGS

Based on the observations made by the researcher in earlier sections and the

discussions held with a diverse group of building owners, city planners, practicing

architects, real estate professionals and downtown development analysts, it is identified

231

that the residential market is more attractive in the current scenario than the commercial
building market. In addition to the business developments, people are also moving to the
city for better social and cultural lifestyles (perhaps because of the new sports and stadia
momentum in Detroit), which makes the residential market more attractive and lucrative
for investments by both public and private developers. Considering this fact, the market
study discussed in this section is based on the available potential for residential units that
are created by rehabilitation and adaptive re-use of existing old, vacant and underutilized
commercial buildings. In addition, the rehabilitation scope of the case study project
chosen for this research, as discussed in chapter 4 (see section 4.3.3), involves conversion
of old and vacant use group B buildings into multi-story residential units with use group
R-2. Based on these circumstances, the market study is targeted at identifying the market
potential for housing units in Downtown Detroit. The market capture rate and vacancy
rate discussions will be based on these rehabilitated housing units, not new construction.

The market capture rate is derived by dividing the annual forecast absorption of
the housing units, in aggregate and by housing type, by the number of households that
have the potential to purchase new housing or rent from the available stock within a
specified area in a given year [ZVA 2002].

The market analysis performed by Zimmerman Volk Associates, Inc. (ZVA 2002)
to determine the potential market for housing in downtown Detroit, Wayne County,
Michigan on behalf of The Greater Downtown Partnership, Detroit is used as the
primary source for the discussion related to rehabilitated residential units’ market capture

rate and potential to bring revitalization to the city.

232

To define any real estate market, the primary factors to be considered are the
available potential and the strategies adopted to attract the target populations. Based on
the analysis performed by ZVA, the market potential study can be divided into five

subsections [ZVA 2002]:

1. Identification of the “draw areas ” for the new market-rate housing units
2. Study of market potential based on housing type

3. Study of market potential based on household type

4. Analysis of annual capture rate depending on housing type

5. Determination of rent, price, and size ranges for rehabilitated units

The potential market available in Detroit for residential units rehabilitated from
existing buildings includes two major groups of people: the households who are already
living in the city (retention of the existing population) and the households who are likely
to move into the city if suitable housing options are available. The latter part includes
households who are attracted to the city based on available opportunities for growth, a
better social, economic and cultural lifestyle, and availability of flexible housing options

(rental and for-sale housing).

5.2.3.1 Identification of the “draw areas” for the new market-rate housing units:
The foremost factor that defines a new market for residential units is the “draw
area " from which the households are attracted to make their living in the city. During the

revitalization process, the primary emphasis should be on retaining the existing

233

population living in the city by providing them with better living conditions and flexible
housing options. Detroit being the city that lost a huge population in a short period of
time makes this retention crucial. In addition to the local population, households who fled
the city as an outcome of urban sprawl are the next major draw candidates. Based on the
characteristics of the population and lifestyle in Detroit, the market-rate housing potential
study performed by Zimmerman Volk Associates [ZVA 2002] identified four major draw

areas for the newly created residential units. They are:

0 Local Draw Area: Households already residing in the City of Detroit and
Detroit-bound Wayne County areas)

0 Regional Draw Area: Households from the regional Detroit Metropolitan
Statistical Area (MSA)

0 Major Metro Draw Area: Traditional c raw from major m etropolitan areas 1 ike
Chicago — households from Chicago Metro draw area

0 National Draw Area: Households moving to the City of Detroit from

different parts of the nation, attracted by revitalization

The potential market available in Detroit based on these four major draw areas is
summarized in Table 24. A major percentage of the available draw for new housing is
from the households who already live in the city and are looking for better housing
options. The second major draw area is from the Detroit Metropolitan Statistical Area
(MSA), which includes Lapeer, Macomb, Monroe, Oakland, St. Clair, and Wayne

Counties. See Appendix B for a detailed map showing the potential MSA draw [FRBC

234

1998]. The projected fifteen percent draw from the balance of the United States, as shown
in the table, is another sign of the city’s revitalization and active, ongoing economic
stimulation in the city’s central business district. The number of households shown in the

table illustrates the need for housing units for the potential draw from the defined regions.

Table 24: Draw Area Distribution of Market Potential in the City of Detroit [ZVA 2002]

 

 

 

 

 

 

 

MARKET POTENTIAL BY DRAW AREA
In the City of Detroit, Wayne County, Michigan
Number of Percentage of
Draw Area Households Draw
City of Detroit / Wayne County
21,410 73 %
(Local draw area)
Detroit Metropolitan Statistical Area
3,170 11 %
(Regional draw area)
From Chicago Metro
320 l %
(Other metropolitan draw area)
Balance of United States
4,280 15 %
(National draw area)

 

 

 

 

 

235

5.2.3.2 Study of market potential based on “housing type”

City populations, in general, are susceptible to frequent in-and-out migration in
search of better Opportunities and lifestyles. Taking into account this basic fact, it is clear
that rental housing has the greatest demand of all types of housing. As shown in Table
25, rental multi-family housing units such as apartments are in higher demand than for-
sale housing units. This constitutes more than fifty percent of the market demand when
compared to single and multi-family for-sale housing units, which holds 22.4% and
18.3% respectively. Conversion of the old and vacant existing buildings into multi-family
rental housing units has a great potential in temts of market value and further reducing

the vacancy rate.

Table 25: Delineation of Annual Market Potential for Downtown Detroit [ZVA 2002]

 

 

 

 

 

 

ANNUAL POTENTIAL FOR MARKET RATE HOUSING UNITS
In the Downtown Detroit, Wayne County, Michigan
Housin T e Number of Percentage
g yp Households of Total
{ental Multi-Family
2,360 59.30%
Apartments, leaseholder)
ior-Sale Multi-Family
890 22.40%
Apartments, condo/co-op ownership)
for-Sale Single-Family Attached
730 18.30%
Row houses, fee-simple ownership)
Total 3,980 100 %

 

 

 

 

 

236

5.2.3.3 Study of market potential based on “household type”

The household types constitute a vital part in identifying the
market potential, as the success of the downtown market-rate housing units are
characterized by the households relocating to them, or the “takers.” Table 26 details the
market potential available in the City of Detroit based on the household type. The three
major household types that define the success of the new housing market are the younger
singles and couples, the empty-nesters and retirees, and finally the traditional and non-
traditional families. The younger singles and couples constitute more than half of the
market potential, as these households generally prefer communities with a diverse mix of

people and flexible housing options [ZVA 2002]

Table 26: Market Potential for New Market-Rate Housing Units in Downtown Detroit
Characterized by General Household Type and Housing Unit Type [ZVA 2002]

 

 

 

 

 

 

 

MARKET POTENTIAL BASED ON HOUSING TYPE
In the Downtown Detroit, Wayne County, Michigan
Household T e Percent of Rental Multi- For Sale For-Sale
yp Total Family Multi-Family Houses
Younger Singles and o
58 A) 61 % 62 % 45 %
Couples
Empty-Nesters and o
. 27 /o 25 % 26 % 34 %
Retlrees
Traditional and Non- 15 O/
0 0 0
Traditional Families 0 14 /° 12 /° 21 /0
Total 100% 100% 100% 100%

 

 

 

 

 

 

237

5.2.3.4 Analysis of “annual capture rate” depending on housing type

For any residential market to be successful, it is essential to determine how well
and how fast the units are rented or sold, thereby reducing the city housing market’s
vacancy rate. The Absorption Rate characterizes the market’s success. Table 27 details
the capture or absorption rate that is available in the downtown Detroit area, based on the
type of housing and the number of households. The capture rate is calculated based on the
migration and mobility analysis performed by Zimmerman Volk Associates [2002] and
the findings demonstrate a higher capture rate available for the multi-family rental
housing units in Detroit than for multi- and single-family for-sale housing units.

Table 27: Annual Capture of the Market Potential for Downtown Detroit
Depending on Housing Type [ZVA 2002]

 

 

 

 

 

 

ANNUAL CAPTURE RATE OF MARKET POTENTIAL
In the Downtown Detroit, Wayne County, Michigan
Housin T e Number of Capture Number of
g yp Households Rate New Units
Rental Multi-Family
2,360 10 % 236
(Apartments, leaseholder)
For-Sale Multi-Family
890 5 % 45
(Apartments, condo/co-op ownership)
For-Sale Single-Family Attached
730 5 % 37
(Row houses, fee-simple ownership)
Total 3,980 - 318

 

 

 

 

 

 

238

5.2.3.5 Determination of “rent, price, and size ranges” for rehabilitated units

Pricing a product right defines its success rate in the market. It is essential to
determine the price and size ranges of the housing units generated by rehabilitation and
adaptive re-use for efficient ROI (Returns On Investments) and also to meet the housing
needs of the targeted households. The rental price and for-sale price ranges are usually
determined by analysis of the tenure preferences of the households moving into the city
from the defined draw areas and also the income and equity levels of these households
based on the national income and equity data of households from the respective draw
areas [ZVA 2002]. This analysis also takes into consideration the availability of new
opportunities fostered by the revitalized urban center. The three major housing types that

are generated by rehabilitating existing old and vacant buildings in the city are:

0 Courtyard Apartment Buildings
0 Loft Apartment Buildings (rehabilitation scope of case study building)

0 Row Houses

Considering the fact that Detroit boasts a huge stock of high-rise commercial buildings
built in the early 1900’s that are currently vacant, loft apartments are often well thought-
out as major contributors to the new housing stock. Table 28 shows the rental price and
size ranges for soft and hard lofts created by rehabilitation and the price and size ranges
of for-sale housing units. The rehabilitated lofls are oflen created from vacant non-

residential buildings that typically have high ceilings and commercial windows. Hard

239

lofts are those that are unfinished or minimally finished and pose the same commercial
look, while soft lofts are fully finished and have modified interior partitions to suit

residential needs and outlooks.

Table 28: Range of Rents, Prices, and Sizes for New Developed Market-Rate Residential
Units in Downtown Detroit [ZVA 2002]

 

 

 

 

 

 

 

 

 

 

 

 

 

RENTAL PRICE AND SIZE OF NEW RESIDENTIAL UNITS
In Downtown Detroit, Wayne County, Michigan
Housing Type Rent / Price Range Size Range Rents/(fig? Per
RENTAL

Unfinished/Minimally $500 - $2,000 450-2,000 sft $1.00 - $1.11

finished lofts Per Month per sq. ft.

Fully finished lofts $600 - $3,500 450-3,000 sft $1.16 - $1.33

with partition walls Per Month per sq. ft.

FOR SALE

Unfinished/Minimally $50,000 - $175,000 450-1,500 sft $111 - $116

finished lofts per sq. ft.

Fully finished lofts $75,000 - $500,000 600-2,500 sft $125 - $200

with partition walls per sq. ft.

Town homes $125,000 - $300,000 900-2,000 sft $138 - $150
per sq. ft.

 

 

 

 

 

240

5.2.4 IMPACT OF CODE-BASED POTENTIAL COST SAVINGS

Cost is an inevitable factor in any developmental activity. When the researcher
explored the reasons for the huge stock of buildings lying vacant along the downtown
crossings, among various reasons such as social, cultural and political factors that
influence market dynamics, the economic factor of the cost to rehabilitate old buildings
stood out as important. Rehabilitation costs as per the current building code requirements
for the same use group or a new use group are very high, often discouraging or penalizing
the building owners who are considering rehabilitating their property and defining new
uses for structures in accordance with market needs.

To address this code-based cost issue in the process of rehabilitation of existing
old and vacant buildings, a comprehensive code and cost analysis were performed to
compare the efficiencies of using the regular Michigan Building Code (MBC) and the
new Michigan Existing Building Code (MEBC). The code and cost analysis are
performed on a typical old, vacant and underutilized building in the City of Detroit.
Considering the cost of rehabilitation, using the MBC as the base, the cost savings that
can be achieved by using the MEBC is tabulated and discussed in detail in section 4.3.5
(Comprehensive cost analysis of rehabilitation using MBC and MEBC) of chapter 4.
Around 18% cost savings over new construction was achieved for the defined scope of
rehabilitation in the case study building. Investigating the overall rehabilitation potential
that exists in the City of Detroit, the eighteen percent cost savings in the rehabilitation
process facilitates a substantial impact on the overall revitalization process of the entire
city involving billions of dollars of investments made towards achieving successful urban

revitalization.

241

5.3 EXPANDED URBAN REVITALIZATION MODEL

Many researchers have investigated the process of urban revitalization and identified
various social, economic, political and cultural factors that affect the process. These
recognized factors were together called an “Urban Revitalization Model,” which has been
used for many studies related to revitalization. As one of the primary objectives of this
research work, the existing urban revitalization models were studied in detail and various
sub-components of the primary factors (social, economic, political and cultural) that
constitute the process of revitalization were identified. After conceptualizing the existing
urban revitalization models, the author explored the possibilities of expanding the
existing urban revitalization models by incorporating a new factor called “The Built
Environment. ” An expanded, comprehensive urban revitalization model detailing the
interaction of the new factor, built environment, on the other existing revitalization
factors (such as social, economic, political and cultural), is developed and the impact of
the new model defined on the overall process of urban revitalization is then summarized,
highlighting the possibilities for achieving successful revitalization.

The author has used two primary and two secondary sources of literature detailing
the research related to the urban revitalization models. The two primary research
materials used are:

0 “Neighborhood Transformation Design: A Case Study of Islandview Village,

Detroit,” a dissertation submitted at the University of Michigan, 1996, by Kadushin,

Abraham [Kadushin 1996].

242

o “Redevelopment Process of North American Downtowns and Consequences in the
Public Realm: A Case Study of Downtown Denver, Colorado,” a dissertation
submitted at University of Colorado, 2002, by Yilmaz-Saygin, Nicel [Yilmaz

2002}

The two secondary sources of research used were:

0 “Local Social Relations and Urban Revitalization: The Case Study of Lewiston,
Maine,” a dissertation submitted at the University of Iowa, 1990 by Kuj awa,
Richard [Kujawa 1990].

0 “Corporate Social Responsibility and Urban Revitalization: The Allegheny
Conference on Community Development, 1943 — 1968 (Pennsylvania),” a
dissertation submitted at Carnegie Mellon University, 2000 by Mershon, Sherie

[Mershon 2000].

The urban models in these works were not presented as real models, but the text based
explanations offered were defined by the author of this study in the form of a model and
further expanded into a comprehensive urban revitalization model. To offer better
understanding, the author’s perception of the term “built environment” and its role in the

process of revitalization is discussed in the following sections.

5.3.1 INTRODUCTION TO THE BUILT ENVIRONMENT FACTOR
The term “Built Environment” has been defined and used accordingly by various

research disciplines such as urban and regional planning, architecture and landscape

243

architecture, housing, and construction to address the wide range of components in our
built environment. Some of these components include buildings, facilities, interior
spaces, infrastructure, n eighborhoods, and land u se. “Built E nvironment” is d efined a s
“the buildings and the related facilities that are built by human beings on a defined space,
and their related interactions with the surrounding natural environment, society and the
community as a whole” [MSU 2003].

There are numerous research-specific definitions for “built environment.” The
author’s conceptualization of the built environment as a component of urban

revitalization is based on the following three primary entities:

0 Existing old, vacant and underutilized buildings and dilapidated infrastructure
0 Design and construction of new buildings and infrastructure

0 Urban [and use management

Of these three subcomponents, the focus of this research is on the existing old, vacant and
underutilized buildings. As the built environment also constitutes parts of other entities
like neighborhoods, society, and communities, as defined by many urban and social
scientists, the primary entity defined by the author, existing buildings, is checked for its
interaction with the subcomponents of social, economic, political and cultural factors of
urban revitalization. Hereinafter, the term “Built Environment” refers to the three primary

entities as defined above by the author, more focusing on the first entity.

244

5.3.2 EXISTING URBAN REVITALIZATION MODELS

Various components that encompass the process of urban revitalization were
discussed in detail in chapter two, the literature review. In the literature, urban
revitalization models were defined with four primary factors (such as Social, Economic,
Political and Cultural) along with their related subcomponents. Initially, a diverse group
of social, economic, political and cultural scientists started defining their individual
components as the primary center of the revitalization model, until the urban scientists
created a common platform called successful urban revitalization. Figure 24 illustrates

the four primary components of urban revitalization.

 

Economic
Factors

 

 

 

URBAN

Social Political
Factors , REVITALIZATION Factors

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Cultural
Factors

 

 

 

Figure 24: Major Components of Existing Urban Revitalization Models

245

Each of these individual components then began to interact with one another, and the
related outcomes were studied with the common platform of urban revitalization in mind.
For example, the interactions of the social component with economic, political and
cultural components were described as Socio-Economic, Socio-Political, Socio-Cultural
subgroups that interact to define a new scope of urban revitalization. Similarly, each
component interaction addresses specific issues of urban revitalization. Figure 25 shows

the four-way interaction between the major components of urban revitalization.

URBAN REVITALIZATION

 

 

 

 

SOCIAL < > ECONOMIC
FACTORS FACTORS

A A

 

 

 

 

 

 

 

 

 

 

 

0

POLITICAL CULTURAL
FACTORS FACTORS

 

 

 

 

 

 

 

 

 

 

Figure 25: Interaction Between Existing Urban Revitalization Components

Based on the interaction between these primary components, revitalization effects in
terms of community rebuilding and stabilization; community-centered activities, facilities
and programs; a self-sufficient and sustainable economic system; and, above all, a safe

and secure urban environment are created as an outcome of urban revitalization

246

[Kadushin 1996]. Figure 26 shows the existing urban revitalization model, embracing all

four primary components as discussed and their effects on urban revitalization.

Process and Stabilization
Community rebuilding
and stabilization of the

existing social and
economic fabric

    
  

Social /
annnmir

 

 

Cultural ISocial

 

 
   

  

Children, Youth and
Families — Human
services & community-
centered activities,
facilities and programs

 
 

Culture and Spirit
Rebuilding communities b)
restoration of an ethical
culture — human values witl
worth, dignity, respect

   
 
       

 

   
   

V

   
   
  

URBAN
REVITALIZATION

Social lPolitical

  
   
 

 

 

  

Sustenance
Regenerate healthy local
economic system - urban
economic self-sufficiency
and sustainability

Shelter and Security
Sound, safe shelter in
secure environment to all
- homeownership to
promote urban stability

    
     
 

Economic Economic
/ anial

 

 

 

Figure 26: Existing Urban Revitalization Model [Modified from Kadushin, 1996]

247

The factors emphasized to achieve revitalization in a sustainable approach as detailed by
Kadushin [1996] include:
o The basic process of stabilizing the community, which in turn stabilizes the
social, economic and cultural fabric of the system
0 Sustenance of the local economic system to generate a higher level of
economic stability and self-sufficiency in the community,
0 Shelter and security for a better kind of life in the urban centers,
0 Last is the factor of culture and spirit that strengthens community rebuilding

by promoting human values with worth, dignity and respect.

While Kadushin’s urban model did not focus on the political component that impacts the
revitalization process, Nicel Yilmaz-Saygin [Yilmaz 2002] deveIOped a conceptual model
for downtown development with a case study of downtown Denver, Colorado. This study
enveloped four main components and defined them as the model for redevelopment, or in

other words, revitalization. They are:

0 Broader effects (national e conomic p olicies and p rograms, global e conomic
structure, and the local economic structure of the urban center under revival)

0 Local political culture and redevelopment process (mayoral leadership,
political power, and so on.)

0 Urban character (land use, economy, and morphology), and

o The public and the private realm

248

Yilmaz [2002] emphasized the political and economic components of the overall model

more, while his focus on social and cultural components was minimal.

In terms of secondary sources of existing urban models, the study performed by
Sherie Mershon [2000] on corporate social responsibility for effective urban
revitalization highlights the need for participation of private, business-sponsored civic
associations in revitalizing deprived cities, and based on the author’s understanding,
Mershon defined the social and economic components related to the process of urban
revitalization with very little emphasis on other primary components. However, in
addition to economic growth and transforming the city’s social image, this study was also
focused on defending local autonomy hindering revitalization. In an other case study by
Richard Kujawa [1990], the local social and political efforts needed for revitalization and
a strong emphasis on economic restructuring were identified as critical components of

urban revitalization.

Even though these urban revitalization models defined by various experts are
elaborate, the author feels that they are not as comprehensive and consistent in addressing
the issues of the revitalization process as they could be. While some models emphasize
social and economic factors more, others focus on political and combined components.
But none of the urban revitalization models detailed in the literature incorporated the
“built environment” factor, w hich also forms a vital c omponent o f the overall 3 ystem
with a level of impact similar to that of the existing components. This leads to a need to

expand existing revitalization models.

249

5.3.3 EXPANDED URBAN REVITALIZATION MODEL

The existing urban revitalization literature overlooked one of the primary
resources for urban growth, development and sustainability, which is the built
environment factor. After looking at the importance of the built environment component
and its contribution to the overall process of urban revitalization, it is highly essential to
check for this component’s potential in relation to the other existing social, economic,

political and cultural components.

An expanded urban revitalization model is developed in two phases:

0 Phase 1: Formulation of the link between the existing components (social,
economic, political and cultural) and the new component, built

environment — see Figure 27 for details.

0 Phase 2: Developing a complete input (components), process (changes) and
output (effects) urban revitalization model with primary focus on the

built environment component — see Figure 28 for details.

Based on the literature studies, it is has been apparent that any component that is defined

as a primary element in a revitalization model interacts with all the other components to

define the scope of revitalization. For example, let us consider the case of the social

250

component in the model. This interacts with the economic component and defines a
revitalization process called “socio-economic” changes that are necessary to achieve
revitalization in 0 urban setup. Similarly, interactions with political and cultural
components are also defined as socio-political and socio-cultural, which creates a multi-
dimensional approach to the overall process of urban revitalization. In the same manner,
the four vital components all interact with one another and the outcome of interaction is
characterized by a combined effect of two or more components at any given stage of

revitalization.

When we define any new component that has a significant impact on the
revitalization process and the existing vital components, the first responsibility lies in
defining the new component in relation with the existing four components. To
accomplish this task, it is essential to formulate a interaction model detailing the interface
of the new component with all the existing components. In this research, the author
identified the built environment as one of the vital components that is equally as
important as any of the existing components that currently define the revitalization
model. Figure 27 illustrates this essential interaction of the built environment factor with
the existing social, economic, political and cultural factors. Of the three sub-components
of the built environment, the “existing old, vacant and underutilized buildings and
dilapidated infrastructure" factor is taken further, and the interaction of this sub-
component with the primary revitalization components is detailed in the model shown in
Figure 2 7. A s the initial step towards d esignating the b uilt e nvironment as o ne 0 fthe

primary components of the model, this stage of defining interaction is highly essential.

251

 

 

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existing components validates the expansion of the existing revitalization model
incorporating the b uilt environment 0 n a so ale similar to that o fthe s ocial, economic,
political and cultural factors. Figure 28 demonstrates a comprehensive, expanded urban

revitalization model integrating the built environment as one of the input factors.

The model shown in Figure 27 is developed in the form of an “Input — Process —
Output” modeling format, in which the input elements are the Built Environment (BE)
and Social (S), Economic (E), Political (P) and Cultural (C) factors. The process is the
actual interaction between the primary components. The model shown in Figure 27
describes only the interaction of the built environment factor with the remaining four
primary factors. As the interactions between the other four components are explored in
detail by various researchers, those interactions are not detailed in the model developed
here. This process of individual interaction between factors results in an overall process
called “urban revitalization,” the outcome of which is defined in the output part of the
model. In addition to the primary inputs to the model, some external factors create a
considerable impact on the revitalization process. The two major such external factors

identified by the author include:

0 Programs that support revitalization (tax credits, incentives, investments, and
providing assistance for building rehabilitation)
0 Funding availability for revitalization (loans, support from public and private

bodies, and funding from banks and mortgage agencies)

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5.3.4 IMPACT OF SUCCESSFUL URBAN REVITALIZATION MODEL

One of the key impacts that the new expanded urban revitalization model creates
is that it opens u p scope for p robing into possibilities o fd efining new c omponents as
primary components of revitalization (similar to what is done here with the built
environment factor) and/or identifying new sub-components within the existing primary
factors, which will advance the knowledge of how successful regeneration of declined
urban centers is achieved. With respect to these research findings, the impact of a
successful urban revitalization model as discussed in this section of the report focuses on
the built environment and, specifically, the rehabilitation of existing old, vacant and
underutilized buildings. Some of the significant impacts fostered by this element of

revitalization model include:

0 Rehabilitation of existing old, vacant and underutilized buildings adds new
resources to the built environment, which promotes the rebirth of the declined inner

city, once considered the eminence of developments

0 Built environment revitalization, in interaction with the social, economic, political
and cultural factors, facilitates a safe and secure living environment in the reborn

inner city as an outcome of revitalization.

o The buildings that are aging due to lack of maintenance and non-utilization, once
rehabilitated, give a new look to the declined urban center, thereby actively inviting

new population

255

Changes in the built environment (rehabilitation of buildings) will enhance the
city’s tax base by bringing new, active additions to the existing tax rolls (building
taxes), and also creating a positive momentum in the local economic structure due

to increased commercial activities in the city

The buildings that are rehabilitated increase the existing building stock in the city,
opening up broad opportunities for home and business ownership in the economic

hubs ofthe city

Incorporating building rehabilitation as a component of overall urban revitalization
efforts achieves significant cost savings in providing new buildings and

infrastructure for growing needs

The e conomic m omentum c reated as a result 0 f revitalization c an b e utilized for
further developments in the city, and this urban strength in turn plays a vital role in
drawing new households to the city by improving facilities and providing flexible
options. One such example is the availability of diverse housing options (the
resulting rehabilitated buildings) to accommodate the populations showing an in-

migration trend to the city.

256

5.4 SUMMARY

This chapter presented an expanded urban revitalization model depicting the
potential impact of building rehabilitation on the revitalization process. The first section
described the market available in the City of Detroit for rehabilitation and adaptive re-use
of existing old and vacant buildings. Different types of market parameters that define the
capture rate of the rehabilitated units were discussed. Finally, a detailed model
representing the urban revitalization process was explained, and discussions detailing its

potential impacts were presented.

257

CHAPTER SIX

SUMMARY AND CONCLUSIONS

258

6.1 OVERALL SUMMARY

The primary goal of this research was to identify and demonstrate the potential of
achieving urban revitalization in the City of Detroit by rehabilitation and adaptive re-use
of vacant and underutilized buildings with a promising building rehabilitation code. This
goal was achieved by defining six major objectives, and the results were summarized
under two principal sections. The first principal section documented the impact of code-
based potential cost savings in building rehabilitation, and the second principal section
was developed and expanded the existing urban revitalization models by incorporating
the new “built environment” component. A case study building with characteristic
properties of the defined research scope was identified in the study area, a complete cost-
based code analysis was performed, and the results were used to expand the existing

urban revitalization models.

The Urban Affairs Programs at Michigan State University funded this research as
part of its Housing and Infrastructure Initiative. The entire research report was organized
into five chapters. Chapter 1 starts with an overview of the prOposed research, detailing
the goals, objectives and methodology to be adopted. The need statement, scope and

uniqueness of the research work were presented in this chapter of the report.

Chapter 2 provided a detailed literature review and an overview of the

terminology used in three key areas: urban revitalization, building rehabilitation

procedures and process, and the building codes that are used for the rehabilitation

259

process. The area of building codes was further subdivided into two major sections: the
regular building codes (in this case, the regular Michigan Building Code or MBC) and
the new rehabilitation code (in this case, the new Michigan Existing Building Code or
MEBC). The key temiinology related to the research discussion was presented in this

chapter.

In Chapter 3, a detailed description of the different rehabilitation practices
adopted traditionally and in the current scenario was presented. This was done mainly to
investigate the historical practices that influence the process of building rehabilitation in
the current scenario in terms of both methods and practices. A few of the popular
traditional rehabilitation practices, such as the percentage value analysis of rehabilitation
work and the system of benchmarking existing structures with new structures, were
discussed to give a better insight into the impact of traditional practices on current-day
systems. The specific developments and innovations achieved by the State of New Jersey
in developing the nation’s first code exclusively for building rehabilitation, were then
discussed, including the categories of work defined by the new rehabilitation code. A
detailed summary of how the New Jersey Rehabilitation Code’s requirements were
formulated and adapted for compliance requirements was presented with suitable
illustrative examples. In addition, the provisions of the lntemational Building Code (IBC)
and the lntemational Existing Building Code (IEBC) for the rehabilitation process were
discussed. Since the State of Michigan adopted the IEBC with a few amendments as the
state’s rehabilitation code, naming it the new Michigan Existing Building Code (MEBC),

the discussion of the MEBC is presented in common under the IEBC section. This

260

rehabilitation code discussion fomis the vital base for chapter four’s case study project, a

rehabilitation code-based cost impact analysis.

Chapter 4 was divided into two major sections. In the first section, a detailed
compilation of Detroit’s vacant, historically registered building stock was made,
including details such as the name of the building, its location in the city, its historic use,
and its current status. The second section holds the most vital role in the research as it
details the complete code analysis performed for the defined scope of rehabilitation in the
selected case study building adopting both the MBC and the MEBC. A comprehensive
code analysis and code-based cost analysis were performed, and the results were
documented with tables summarizing cost savings and analysis. The complete
rehabilitation code analysis for the case study project is presented in the appendix section
of the report. The cost savings impact of the building rehabilitation process adopting the
new MEBC was then taken as the prime source of discussion to identify the impact of

this on the overall process of urban revitalization discussed in chapter 5.

Based on the rehabilitation code-based cost impact on building rehabilitation and
ultimately urban revitalization, a new component called the built environment factor was
defined by the author and incorporated into the existing urban revitalization models. A
comprehensive expanded urban revitalization model was developed and presented in
chapter 5, and discussions related to its impact on the renaissance of the City of Detroit

were summarized.

261

6.2 SUMMARY BY OBJECTIVES

The overall goal of this research was to identify and demonstrate the potential of
promoting urban revitalization through cost effective rehabilitation of old, vacant and
underutilized buildings by adopting the new Michigan Existing Building Code in the City
of Detroit. This section discusses the results achieved for each of the defined objectives

as a summary by objectives.

6.2.] T 0 study the pattern of existing old and vacant building stock in the City of
Detroit and analyze the current market trend in rehabilitated residential units

converted from old existing building stock.

This objective was addressed and achieved in two different sections of the
research. The first part to study the pattern of existing old and vacant building stock in
the City of Detroit was presented in detail in Chapter 4 under the Detroit urban overview
and existing building stock discussion. Also, a detailed compilation of the existing old,
vacant and underutilized building stock data was tabulated projecting the kind and
number of the existing rehabilatable building stock in the City of Detroit. The second part
detailing the market trend in rehabilitated residential units converted from old existing
building stock is discussed in detail in Chapter 5, which illustrates the market capture rate
and potential market available for the rehabilitated residential units in the city. In addition
to market capture rate, discussion related to the potential draw area, house type,

household type and size and prize ranges of the rehabilitated units were tabulated.

262

6.2.2 To study the current code regulations in the urban Michigan for rehabilitation
and reuse of existing old and vacant buildings and investigate the scope and

potential of using the new Michigan Rehabilitation Code.

Based o n the b uilding rehabilitation p ractices and b uilding c odes literature, the
author had detailed the current code regulations adopted in urban Michigan for the
process of rehabilitation and adaptive re-use of existing old and vacant buildings.
Comprehensive code analysis was performed for the process of rehabilitation in the
selected case study building using both the regular Michigan Building Code and the new
Michigan Existing Building Code, and the analysis was documented in the form of a

comparison table and presented in the appendix section of this research report.

6. 2.3 T 0 develop a set of specifications for rehabilitation and conversion of old/vacant

buildings into residential units with the help of a case study in Detroit.

The case study building was identified such that it possessed all possible
characteristic c ode-based c omplications w ith rehabilitation. T he s cope o f r ehabilitation
was then defined based on the available market in Detroit, the building owner’s interests,
and the views of city planners, practicing architects, real estate professionals and
downtown development analysts. This scope was to convert the vacant case study
building, historically used for business (use group B) purpose into multi-story residential

rental units (apartments).

263

The author then performed a comprehensive code analysis using both the MBC
and the MEBC, and based on the code compliance requirements, a detailed set of
specifications was prepared for the case study building. This discussion is presented
under the rehabilitation investigation section of chapter 4 and also in the appendix

detailing the rehabilitation code analysis in comparison with the regular building code.

6.2.4 To calculate and analyze the cost savings for the rehabilitation of the selected
case study building in Detroit based on both the Michigan Building Code and the

Michigan Existing Building Code.

Based on the detailed code analysis performed using both the MBC and the
MEBC, specifications for the rehabilitation work were developed based on the
compliance requirements defined by each building code. For the respective rehabilitation
specifications, the corresponding cost of rehabilitation was calculated and used for the
cost analysis. In order to better understand the importance of retaining the existing
buildings, the cost comparisons were made on the basis of three different parameters: the
cost 0 f n ew c onstruction for a structure similar to the c ase study b uilding, the c ost o f
rehabilitation using the MBC, and the cost of rehabilitation using the MEBC. These three
costs were analyzed and the vitality of rehabilitating the structures is documented.

Later, the cost 0 f rehabilitation o f t he c ase study building u sing the M BC w as

taken as the base value and compared with the cost of rehabilitation using the MEBC.

264

This analysis was then used to derive the actual benefits and cost savings of adopting the
new MEBC over the regular MBC. (Results were tabulated in Chapter 4 under the
comprehensive rehabilitation cost analysis section.) In the case study project, around 18%
cost savings was achieved by using the MEBC over the MBC for the defined scope of
rehabilitation. The code-based cost analysis performed as part of this objective was
focused on major cost savings components in the defined scope of rehabilitation using
both the codes, ignoring minor cost-related factors that do not make a substantial impact

on the cost savings in order to adhere to the broader scope of the research.

6.2.5 T 0 illustrate existing building rehabilitation as a critical factor in overall urban

revitalization by performing a market analysis based on the case study project.

As an outcome of the code-based cost analysis, the building rehabilitation factor
is seen as potentially playing a significant role in the city’s overall renaissance. Based on
the cost analysis results, the author emphasizes with strong validation that the 18%
savings achieved forms a substantial portion of the rehabilitation cost, which is
understood to impact the overall process of building rehabilitation widely, which in turn
affects the process of urban revitalization.

The sheer number of buildings that are characterized as old, vacant and
underutilized buildings in the City of Detroit illustrates the potential that they possess to
create a wide-felt impact through rehabilitation. When more buildings are made available

along with better infrastructure, people start moving into the city, which in turn creates an

265

increased economic momentum and a revived outlook for and on the urban center.
Discussions detailing the impact of building rehabilitation on the revitalization process

are presented in chapter 5 of the research report.

6.2.6 T o modify existing models of urban revitalization by incorporating the built
environment factor based on lessons learned from objectives four and five.

A vital research component that completes this study was to expand the existing urban
revitalization model to encompass various factors that affect revitalization in one single
comprehensive model, helping to achieve successful revitalization through a more
thorough explanation of how revitalization works. Based on the literature study, primary
factors constituting the existing urban revitalization models were studied in detail and the
interactions between these primary factors were understood as an opening stride. A new
factor called the built environment was then defined and checked for its critical
interaction with all the four primary existing revitalization factors (social, economic,
political and cultural). Once the interaction between the existing components and the new
component was illustrated, a detailed input, process, output model was developed as an
expansion of the existing revitalization models. The input elements were the Built
Environment (BE), Social (S), Economic (E), Political (P), and Cultural (C) factors. The
interaction between the new BE component and the existing components were detailed in
the model, and the related process results in successful revitalization, which is shown as
the output component of the model. This is a conceptually expanded model and is

primarily based on the rehabilitation of existing buildings as a subcomponent of the built

266

environment factor. Though the other two subcomponents of the built environment factor
(design and construction of new buildings and infrastructure, urban land use planning and
management) w ere n ot explored in this m odel, it o pens wide areas 0 f potential future
research that may lead to the refinement of this expanded revitalization model with more

validation and substantiation.

6.3 LINGERING EFFECT OF BUILDING REHABILITATION ON URBAN

REVITALIZATION

Building rehabilitation as discussed in detail, creates a vivid impact on the
process of urban revitalization. However, one should also look at various other associated
factors that are initiated by rehabilitating the deteriorated building stock. Some of the
factors are, the existing infrastructure, utility systems, transportation networks, business
activities, recreational and cultural centers and other services that are directly associated
with the population that these resources serve. Detroit had its population peek in 1950
with over 1.85 million people during which all the above said resources were developed
to serve this huge urban population. However, Detroit lost population at an alarming rate
as shown in Table 1 resulting in reduced usage of the available resources, which intum
resulted in higher costs for the current users as well as lesser revenue for the city. The
process of building rehabilitation to achieve revitalization brings in new population,
which sequentially increases the rate of usage of the available resources. This not only
increases the revenue of the city, but also culminates in an overall revitalized successful
urban center. Thus rehabilitating the existing vacant buildings creates a “Snow Ball

Effect” on the overall process of urban revitalization.

267

6.3.1 RECOMMENDATIONS FOR URBAN REVITALIZATION THROUGH

BUILDING REHABILITATION

Based on the in-and-out migration trends experienced by the City of Detroit,

revitalization is the strategy m ost vital to regenerating the lost p ride and v alue o f t his

historically famous automotive city. Amongst various revitalization activities discussed

earlier, building rehabilitation plays a significant role in achieving successful urban

revitalization. Some of the recommendations for urban revitalization through building

rehabilitation are:

Restoration and preservation of the existing built environment by creating
an adaptive new re-use for the deteriorating structures in relation to the

available market potential

Creation of incentives for rehabilitating the existing building stock,
thereby encouraging building owners to define new markets for the
abandoned properties that stand as symbols of hopelessness along in the

majestic downtowns

Development and implementation of innovations related to cost-effective
rehabilitation processes and related technologies. One important
rehabilitation innovation that was rewarded for its success was the

rehabilitation subcode or "rehab code" developed by the State of New

268

Jersey, Department of Community Affairs that earned them the national
“Innovations in American Government” award in 1999 and a $100,000

prize [NY GORR 2003].

Planning and phasing of the building rehabilitation projects based on the
existing demand and the condition of the abandoned structures

(accommodating developer interest)

Active participation by various private, public, and non-profit
organizations at various levels such as planning, development, execution
and maintenance of the rehabilitation of structures that are growing old
and lying vacant without any proper use. In addition, commitment by
these groups to strengthen the local economic system with the impetus
created by the growing building stock in relation to the market dynamics

and demand.

Information dissemination to the target groups holding the control over the
aging building stock, primarily the building owners, encouraging them to
rehabilitate their vacant, abandoned buildings by providing them support

and flexible options.

269

6.4 LIMITATIONS OF THE RESEARCH

One of the major limitations faced in this research was the insufficient
information available about the old buildings’ components and materials. A series of
assumptions was made during the code analysis of the case study building for some of the
important parameters that depend upon the properties of the building materials and
assembly systems that were originally used in the existing buildings, which were usually
built in the late 1 800’s and the early 1 900’s. For example, the Fire-Resistance Rating
(FRR) value of building materials and assembly components varies based on the type and
system of the respective element. When checking the building for fire-resistance
compliance requirements, there was no documentation available to show the fire-
resistance parameters of the existing building components. Hence, the author ended up
using standard fire-resistance rating values as stated for the buildings that were built in
the same region, of the similar kind and during the same period of historical significance.
Based o n this assumption, in the c ase study b uilding analysis, the a uthor a ssumed the
F RR for all the wall components to be one hour. The author, in places where there was no
specific information available for the case study building analysis, used similar
reasonable assumptions that were validated by his discussions with many Detroit-area
professionals.

Secondly, the load carrying strengths of the building were assumed to be
within the permissible limits in the code analysis based on the author’s experience and
not based on any standard structural testing results. Since there were no standard test

results available to be readily used by the researcher, assumptions were made for

270

structural stability as the case study building is converted from higher load requirement
(100 psf for Class B) to lower requirements (50 to 60 psf for Class R).

The third important limitation in the research is related to the urban revitalization
components. The author did not attempt to explore social, economic, political and
cultural parameters from the literature beyond a certain level and as a result, in the urban
revitalization model developed, only the interaction between the new component, built
environment, and the existing components was shown, whereas the interaction between
the existing components was not discussed. In addition, only one major subcomponent of
the built environment, existing vacant buildings, was explored in detail, and this opens up

scope for future research.

6.5 AREAS OF FUTURE RESEARCH

6.5.1 Validation of the expanded urban revitalization model:

One of the most significant areas of future research based on this work is
validation of the expanded urban revitalization model. The built environment factor that
is defined as one of the primary components in this research work needs to be validated
in coherence with the other primary components in the revitalization model. This
validation can be performed as a case study using the input, process and output urban
revitalization model. The qualitative analysis performed in this research to develop a

expanded model can be used as a base for validating the model quantitatively in a real-

271

time situation in the process of revitalizing a city like Detroit. The effects of the model
could be studied and the results that are different from the predicted outcome of

revitalization should be documented.

6. 5.2 Investigation and Expansion of the Built Environment Component:
The built environment component that is defined by the researcher in the
expanded urban revitalization model was investigated to define three primary sub-

COHIpOIICIIISI

0 Existing old, vacant and underutilized buildings and dilapidated infrastructure
0 Design and construction of new buildings and infrastructure

0 Urban land use management

Out of these three subcomponents, the first was investigated in detail by the researcher,
and its interactions with the four identified primary revitalization components were
illustrated. Similarly, future research can investigate the other two components; the
design and construction of new buildings and infrastructure and urban land use planning
and management can be expanded further, and detailed interactions between these
elements can be brought out, which can facilitate a faultless urban revitalization model
incorporating the built environment factor. The following are some of the possible areas

for future research under these two subcomponents:

272

0 Design and Construction of New Buildings and Infrastructure:

)9 Innovative building materials and methods that can save money and
increase structures’ usage capacities

> Adopting improved construction management techniques such as proper
management of projects and having clear control over construction of

buildings and infrastructure.

0 Urban Land Use Planning and Management:

r Land use patterns that will address the social, economic, and cultural
issues on a higher scale of importance than what is currently followed
‘r Environmental impact assessment of the land use pattern on the urban

setting, incorporating the built environment aspect of land use

6.6 CONCLUSIONS

The cycles of peak growth and sudden declines are characterized by the natural law of
stability and sustainability. Urban growth and decline is not unique as part of this natural
phenomenon. Detroit, which had a swift urban growth during the early 1900’s geared by
the automotive development, faced its declining stages between the 1960’s and the

1980’s. The reasons for this decline were numerous and constantly investigated by

273

various groups of urban scientists. This work is an outcome of one such research group
that is clustered under the term the “Built Environment.”

In this research, the author viewed the urban growth and decline factors from a built
environment perspective and investigated if this component called the built environment
would have any significant impact on the process of urban revitalization. One of the
subcomponents of the built environment factor (the existing old, vacant and underutilized
building stock) was explored in depth and the results obtained were used as the primary
stepping stone to define the new built environment component as a the vital entity that
can be defined as at a similar level of importance to the existing components of urban

revitalization (social, economic, political and cultural factors).

The following section presents the major conclusions from this research work:

0 The author strongly believes that the code-based cost savings achieved in the
process of rehabilitation adopting the new rehabilitation code can have a
substantial impact in terms of creating interest and excitement among the building
owners in rehabilitating and revitalizing old and vacant buildings in the urban

centers.

0 The process of rehabilitation not only saves money but also helps to create an
increased economic momentum. The cost saved by rehabilitating existing
buildings and infrastructure could be used more effectively for other

developmental activities. For example, the 18% savings that rehabilitation of the

274

case study building under the rehabilitation code would achieve amounts to
almost $1.7 million. Based on the existing vacant building stock data compiled in
chapter 4, overall rehabilitation savings for the entire city can be over $1.5 Billion

which is very significant in on a large scale for the entire City of Detroit.

0 Declining urban centers in other states will be infomied by and made aware ofthe
success achieved in terms of cost savings and the impact of rehabilitation on
urban growth. The documented cost savings serves as a tool for inspiring thought

about rehabilitation over demolition and reconstruction.

o The expanded urban revitalization model developed in this research work opens
up a n ew platform for research to investigate a nd incorporate new c omponents
into the urban revitalization model, similar to how the built environment was
incorporated. This research can significantly impact the overall success of the

revitalization process.

This research provides insight into and an understanding of a critical component and
the overall urban revitalization model. Urban scientists can use this expanded
revitalization model to identify various parameters that define success of a revitalization

project, which in turn leads to successful urban rebirth.

275

REFERENCE PAGES

276

APPENDIX A

CODE ANALYSIS OF CASE STUDY PROJECT‘

277

The code analysis performed in this research work is based on the

International Existing Building Code 2003 (IEBC)
The analysis report attached in this appendix starts at the eight chapter of the IEBC and

this is based on the procedure of using this code. The related chapters as required by

Chapter 8 of IEBC are continued following Chapter 8 of IEBC analysis

278

 

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341

 

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342

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