Technical assessment of construction products in South Africa
T P Knoetze, J van Wamelen and E A Kraayenbrink, Agrément South Africa
Introduction
This paper will describe how the technical assessment and certification
process for construction products works in South Africa. Many exporters see
opportunities for the export of building systems to South Africa. The paper will
also attempt to give a brief overview of housing and the process of building
approval in South Africa.
Housing in South Africa
South Africa is a country with a huge shortage of housing. The current
backlog in urban areas is about 1,5 million units. Government does not provide
housing - its role is to promote, facilitate and manage housing delivery for the
poorer communities using housing subsidies (grants) allocated for this purpose
from the fiscus. The value of the subsidy is based on a scale, using total
household incomes as the determinant. The amount available for the
superstructure varies from US$1100 to US$1500 for a unit of approximately 30m2.
It may be possible for some people in the subsidy bracket to raise additional
money, but this would be the exception. The current delivery rate of housing
only addresses new demand.
Housing aimed at the poor must be appropriate. What is appropriate is not
necessarily the same for different projects. As a general rule, though, the
construction method or housing system must
-
be affordable;
-
be acceptable to the client or the end user;
-
answer to the needs of the community;
-
make best use of local resources (this could include labour);
-
be economically advantageous to the community; and
-
be of such a nature that the community`s resources are sufficient to operate
and maintain the buildings.
From the above it should be clear that consultation with the people that will
live in the house is essential.
Top of page
It is important that the exporting company understands the technical
requirements of construction in the target country. Many building systems are
designed to withstand snow loadings - something that is totally irrelevant in
sub-Saharan Africa. It is also not necessary to design a structure to withstand
cyclones or earth tremors for use in South Africa. South Africa also does not
have an extreme cold climate and insulation is not a priority. On the other
hand, ultraviolet radiation and termites are often a problem. This must be taken
into account in the building system.
The cultural preferences of the population must also be taken into account.
As an example, timber-framed housing would be unacceptable to many people in
southern Africa, even though it may be technically sound. In some cultures, a
toilet should not be inside the house. The shape of the house or the roof may
also have a special significance in some cultures. Even though certain factors
make no sense to an outsider, they may be of critical importance to the success
of a building method. Whether a building system will be a commercial success in
South Africa is not determined only by technical approval of the method of
construction. In the end the market will decide.
Building approval in South Africa
In South Africa local authorities (municipalities) administer building
approval. Since the introduction of the National Building Regulations (NBRs) in
1985, all local authorities in South Africa have applied these functional
requirements when checking building plans that have been submitted for approval.
The preface to the South African Bureau of Standards Code of Practice on the
application of the National Building Regulations states:
The National Building Regulations have been written in their present form in
order to encourage the use of innovative design, new materials and new
construction methods where these can be shown to be suitable. However.... any
building designed in accordance with accepted methods and constructed of
conventional materials in accordance with the principles of good building
practice should, in general, comply with the regulations.
Conventional construction for houses in the South African context is regarded
as comprising concrete or clay brick or block masonry walls, with timber roof
construction and metal or fibre-cement roof sheeting, or concrete or pressed
metal roof tiles. For multi-storey commercial, business or residential
construction, reinforced concrete framing with masonry external wall infill and
either masonry or drywall internal partitioning is the norm, with structural
steel faming used to a lesser extent for high-rise or factory buildings. Such
conventional construction is largely covered by the deemed-to-satisfy rules
accompanying the building regulations.
As the NBRs are functional, performance-oriented and not prescriptive, a
local authority may approve any other form of construction simply on the basis
that, from its own knowledge and experience, buildings similar to that proposed
and which are sited in similar conditions have performed satisfactorily in the
past.
Top of page
On the other hand, when an innovative product being proposed falls outside
the experience of the local authority`s building control officer, he or she will
require assurance of the fitness for purpose of the product.
In terms of the NBRs this assurance can be given in a variety of ways,
namely:
-
by submission of an applicable report issued by the CSIR, which is a
statutory organisation for technology transfer, or by the South African Bureau
of Standards (SABS);
-
by submission of a current certificate issued by Agrément South Africa; or
-
by an acceptable rational design prepared by a professional engineer or
other approved competent person.
All houses that are built in South Africa will soon by law have to be
enrolled by the National Home Builders` Registration Council (NHBRC). The NHBRC
will normally insist on Agrément certification for all houses that are
constructed using non-standard or unconventional methods of construction. They
will sometimes also insist on Agrément certification for non-standard
construction products.
Technical approval organisations
There are two independent organisations in South Africa that are concerned
with technical approval - the South African Bureau of Standards (SABS) and
Agrément South Africa. While the former operates in a wide range of areas, the
latter confines its activities to the construction industry. As this paper will
show, the organisations` activities are largely complementary: the SABS deals
with standards and codes of practice that relate to conventional products and
cooperates with international organisations for standardisation, while Agrément
South Africa assesses innovative, non-standardised construction materials,
products and systems and maintains links with the World Federation of Technical
Assessment Organisations and other Agrément organisations.
Which of the two organisations becomes involved with construction products is
dictated by the development phase of the product in its life cycle.
The life cycle of products
Most new products go through similar development phases that can be
categorised as:
-
Conceptualisation and technology development
-
Product development
-
Introduction into the market
-
Market acceptance and growth
-
Ongoing marketing as conventional product.
Research organisations like the CSIR can assist during the conceptualisation
and technology development phase.
Top of page
In South Africa, Agrément South Africa and the SABS have complementary but
discrete roles during the product life cycle. These are illustrated in figure 1.
Agrément South Africa. Agrément evaluation and certification becomes relevant
during the product development phase when, through technical assessment of
prototypes, it can indicate to the entrepreneur whether his product will be fit
for purpose.
Agrément South Africa`s role is strongest during the introduction into the
market phase when its certificate provides the entrepreneur with the instruments
he needs to demonstrate his product`s suitability for specified uses, while
providing the user with the necessary independent, objective information and
advice on the product`s characteristics, benefits and limitations.
An integral part of Agrément South Africa`s assessment and certification is
the evaluation of the manufacturer`s quality system: this is assessed in
collaboration with the SABS. The application of the quality system is monitored
regularly after an Agrément certificate has been granted, either by Agrément
South Africa personnel or by the SABS, acting as Agrément South Africa`s agent.
As the product enters the market acceptance and growth phase, Agrément South
Africa`s role may diminish and be taken over by the SABS. Typically, once there
are several manufacturers producing a similar product, there is a growing need
to develop a standard for the product that covers its manufacture, materials
used in production and quality procedures. The usual process followed by the
SABS is to establish a committee comprising interested parties to draft such a
standard. The experience and knowledge gained by the CSIR and Agrément South
Africa during the earlier development phases may now be used as technical input
in formulating the standard.
SABS. As described above, the SABS`s role generally starts at the market
acceptance and growth phase and becomes the dominant role in the ongoing
marketing as conventional product phase, when the SABS listing and mark schemes
provide the entrepreneur with the quality image he needs, and the user with the
reliable, credible source of quality assurance he is looking for. During this
phase Agrément certification would normally fall away or be confined to erection
or installation. Manufacturing would in such a case be in terms of SABS listing.
Figure 1: The roles of the CSIR, Agrément South Africa and the SABS in the
product development cycle
Top of page
The performance concept
When an entrepreneur requests a technical assessment by Agrément South
Africa, it is because there are as yet no national standards for the product.
Given the absence of standards, Agrément South Africa bases its assessments on
the performance concept, whereby the required performance-in-use of a product is
specified in qualitative and quantitative performance terms without any
specification as to how such performance is to be attained: assessment of
fitness-for-purpose can then be based on criteria which are independent of the
materials used or the method of production or manufacture.
The elements of the performance concept are:
-
establishment of performance criteria appropriate to the use of the product;
-
development or identification of suitable test methods or methods of
assessment which may be applied in the measurement of performance;
-
measurement of the actual performance of the product according to the
established methods; and
-
judgement of acceptability in the light of the measured or assessed
performance of the product against the appropriate performance
criteria.
As far as building systems are concerned, the following aspects are assessed:
-
structural strength and stability
-
safety in case of fire
-
water penetration
-
thermal and energy performance of the building
-
natural lighting
-
ventilation
-
durability and the maintenance required
-
the likelihood of condensation forming on the inside of the building
-
acoustic performance
-
the applicant`s quality system.
The certification process in South Africa
The evaluation and certification process is divided into three phases:
-
The first step is to initiate the process. Formal application for
certification needs to be made together with detailed supporting documentation.
An application-registration and programme-preparation fee is required with
application. This fee is currently approximately US$2600.
-
The second phase of the approval process involves the preparation of an
appropriate evaluation programme in the form of an offer for consideration by
the applicant. The offer will set out the nature and scope of the technical
evaluation, give details of any testing that may be necessary, specify any test
specimens and additional information that may be required. The proposal will
include a quotation for carrying out the work and give a time estimate for its
completion. The prices of evaluations vary considerably, depending on the type
of certification, extent of the work, nature of tests required, supporting
documentation provided and test reports submitted. An evaluation by another
member of the World Federation of Technical Assessment Organisations (WFTAO)
will also be considered. Typically the cost will be between US$11500 and
US$17500. The evaluation and certification system normally takes from 8 to 12
months.
-
On acceptance of the offer and payment of the evaluation fee, the process
enters the third phase - that is, the execution of the evaluation programme with
a view to the granting of a certificate. The feedback from all the specialists
concerned is summarised in technical reports. Provided the results of the tests
and assessments are satisfactory, an Agrément certificate is drafted, submitted
to the applicant for comment and then to the Board of Agrément South Africa for
approval. New certificates are gazetted in the Government Gazette.
A certificate remains valid subject to there being no changes to the product
and an annual site and/or factory inspection. Any changes to the product must be
approved by Agrément South Africa prior to implementation.
Top of page
Advantages of certification
A South African Agrément certificate is not compulsory for access to the
South African market. However, many importers are opting for certification
because the credibility lent to their products boosts their sales, covering the
cost of the certification procedure within months.
In the housing field, in order to qualify for mortgage finance, new houses
must be enrolled and contractors registered with the National Home Builders
Registration Council (NHBRC), which operates a five-year building warranty
scheme. The NHBRC will normally accept houses built by unconventional means if
the building system has an Agrément certificate.
In the broader African context, several Agrément South Africa certificate
holders have reported that possession of an Agrément certificate has facilitated
acceptance of their products - usually building systems - in other African
countries. Particularly in Botswana, Lesotho and Namibia, Agrément certificates
are readily accepted and sometimes required before building approval is granted.
In Francophone African countries, consultants and building authorities often are
already familiar with the French Agrément approval system. Several certificate
holders of Agrément South Africa are active in West Africa.
Conclusion
The success of a construction product in South Africa is determined not only
by the approval it has. The preferences of the market will determine the
success. It is virtually impossible to assess the market in South Africa by
e-mail from an office in Europe or North America. A visit to the country is
essential in order to gain familiarity with local conditions. It is extremely
important that the legislative framework in the target country be understood.
Agrément South Africa would urge exporters who are targeting the South
African and also the broader African market to give serious consideration to
applying for a South African Agrément certificate for their innovative or
non-standardised construction products or systems before venturing onto African
soil.
|
