Characterizing the Market for Building Commissioning in New York State: A Baseline Study

Jennifer Thorne, Eric Baxter, and Linda Irvine

January 2002

Executive Summary

As part of the New York State Energy Research and Development Authority's Building Commissioning Market Transformation project, a market characterization study of commissioning practices in New York State was carried out during the final months of 2000. The goals of the study were to evaluate the knowledge and awareness of building commissioning among (1) professional building services providers and (2) commercial and institutional building owners and operators and to gather opinions on methods for increasing the market for building commissioning in New York State. Separate survey instruments were developed for building services providers ("providers") and building owners and operators ("owners"); survey interviews were conducted via telephone. A total of 16 providers and 14 owners participated in the study. While survey respondents were based in different locations around New York State, most of the providers and owners represented organizations operating throughout the state. As a result, it was difficult to differentiate between commissioning practices undertaken upstate and downstate.

This market characterization study was not a random sample of providers and owners in New York State, but rather a survey of a limited sample of the market with a reported awareness of commissioning. Although the findings may not provide an accurate representation of the level of commissioning awareness and experience in the state, the study does offer insights into common impressions and understanding of the commissioning process and its benefits, typical experiences with commissioning, and views about the barriers prohibiting providers and owners from implementing commissioning on a broader scale in New York.

Findings
Overall, the building services providers interviewed feel very familiar with the term commissioning. The majority recognize the benefits of commissioning and identify greater energy efficiency, fewer occupant complaints, and fewer post-acceptance operational deficiencies as the most important benefits. Promotion of commissioning activity through utility and state government programs has played a role in increasing their commissioning activity, particularly in new buildings. Existing building commissioning has received much less attention from the providers surveyed. According to providers, the most significant barriers to commissioning in their business are that clients do not request the service and current fees do not cover the costs. The providers believe that clients do not request commissioning because they think it is already part of the construction process or are not aware of it at all.

Most building owners and operators interviewed feel very or somewhat comfortable with commissioning. In general, their definitions of commissioning focus on the testing and verification aspects of commissioning performed during construction, equipment installation, and building acceptance. The majority identify the key benefits of commissioning as fewer post-acceptance operational deficiencies, reduced operations and maintenance (O&M) expenses, and ensuring that the building meets the intended design and operational specifications. Although most of the participants had some experience with commissioning in one or more new construction projects, few had any experience with existing building commissioning. The main barriers to commissioning in the owners' organizations include the perceived added cost of commissioning, other business priorities that take precedence, and a lack of awareness of commissioning or recognition of its value among decision makers in the organization.

In general, building services providers believe that the market for building commissioning is growing. A number of building owners agree that the market for commissioning in their organizations is growing, while others report that demand is stable. Both groups recommend the use of financial incentives, such as tax credits or utility financing, as the most effective way to increase the demand for commissioning. In addition, case studies, education and training, and informational tools (such as sample commissioning documents and test specifications) were suggested as useful methods for building the market for commissioning. Providers and owners alike expressed an interest in further education and training on the commissioning process and its benefits as well as commissioning procedures and techniques.

Discussion
Although building services providers and building owners and operators feel familiar with the term commissioning, our findings highlight the limitations in their knowledge of the full building commissioning process. Their reported understanding and experience with commissioning emphasize testing and verification and focus on the later stages of the construction process. The survey also reveals the limited extent of retrocommissioning activity in New York State. Enhanced educational efforts covering the entire commissioning process, the role of each of the actors involved, and the importance of commissioning from the design stage through building operation would play an important part in increasing the demand for commissioning and ensuring proper and persistent building systems performance. Similar outreach and education can increase interest in commissioning for existing facilities.

In addition to general education about the commissioning process and its benefits, a variety of other resources can be used to build awareness of commissioning and to promote its further implementation in new and existing buildings. The building industry has suggested a number of useful tools. First, hands-on training and technical assistance—including review of commissioning plans and development of sample reports, contracts, and other forms—would improve building services providers' comfort with the commissioning process and lead to further implementation. Case studies of successful commissioning projects would demonstrate the real benefits of commissioning to building owners and help providers sell commissioning services. Financial incentives would encourage owners and providers alike to learn more about commissioning and take the steps to incorporate commissioning in their construction projects. Finally, additional policy mechanisms to promote commissioning should be explored to ensure that its many public benefits are captured.