Quality Control for Residential Sprinkler
Programs

INTRODUCTION

Quick-response residential sprinklers have proven to be extremely effective in protecting lives and property. More cities are adopting residential sprinkler ordinances as a cost-effective way to manage their residential fire risk. As consumers become aware of residential sprinklers, more are asking for them when building new homes.

But if a quality control program is not in place, the ordinances and voluntary installations may not guarantee that the systems are reliable and effective. Jurisdictions need to ensure that the sprinkler systems are installed correctly, are operational and maintained so that they will be effective in the event of a fire. This pamphlet covers the elements of a quality control program that will ensure residential sprinkler reliability and effectiveness.

This document is divided into six sections:

Plan preparation.
Plan review.
Installation.
Inspection, testing and approval.
Maintenance.
Accountability/liability.

Taken together, these elements are essential for a local sprinkler program. Some of these functions may be combined, some may operate informally, but all successful programs address these six elements.

The material in each section will give general guidance and suggest alternatives that a local government might wish to adopt. But local factors will dictate what works best. By adapting the material to match their organizational structure, local governments can establish a strong program to manage the growth of residential programs in the community.

Section One: Plan Preparation

The sprinkler contractor should be required to submit a set of complete, detailed plans what will allow plan reviewers to determine that the design, layout and components comply with the applicable requirements. Contractors can prepare the plans in-house using qualified employees, or they can contract the work out to an independent design firm.

The National Fire Protection Association (NFPA) publishes sprinkler installation standards that are recognized nationally as the basis for proper system installation. Building codes, fire codes and local ordinances routinely reference those standards, and the local regulations may add additional requirements.

NFPA Standard 13D is titled "Sprinkler Systems for One and Two Family Dwellings and Manufactured Homes."Parts of the standard also apply to dwelling units in buildings that use NFPA 13, "Installation of Sprinkler Systems." For low-rise apartment buildings, hotels and condominiums, the NFPA publishes Standard 13R, "Sprinkler Systems for Residential Occupancies Up to Four Stories in Height." Residential buildings higher than four stories use NFPA 13, but refer to NFPA 13D for the dwelling units.

The key to reliability and effectiveness of a sprinkler system is ensuring that the plan preparation, installation and maintenance be performed by competent individuals. Residential sprinklers were developed for their life safety capability, and successful sprinkler system performance is, therefore, of utmost importance.

State Laws and Ordinances

Some states have enacted contractor licensing laws that cover the competency requirements for people who prepare sprinkler plans. They typically require evidence of competence in understanding and using the appropriate standards, but the scope of the requirements vary. Some states require formal certification based on examinations, while others will accept job experience as an alternate.

For determining the competency of those who do sprinkler plans, a number of states recognize the certification provided by the National Institute for Certification in Engineering Technologies (NICET). This organization is affiliated with the National Society of Professional Engineers. Since 1980, NICET has been testing the qualifications of engineering technicians who do fire sprinkler system layout and detailing.

Various levels of certification have been developed to designate degrees of competency. Individuals achieving Level III certification are recognized as Certified Engineering Technicians. They are able to act independently in applying the provisions of the standards, such as NFPA 13, in the preparation of sprinkler system working drawings. Beginning in 1988, NICET established Level II certification as an appropriate level of qualifications for the preparation of plans for NFPA 13D residential sprinkler systems.

In some states, licensed professional engineers are legally responsible for the preparation of all drawings related to building design, and this includes sprinkler system design. Typically, the professional engineer will make the basic design decisions and then supervise the plan preparation that is performed by technicians. The engineer then reviews the work and stamps the plans.

A determination should be made as to whether a statewide program is already in existence. If not, it should be decided whether a specialized examination will be developed or whether reference will be made to one of the established methods of determining credentials for plan preparers, such as the NICET system.

Policies and Procedures

It is intended that the Authority Having Jurisdiction will develop policies and procedures addressing the format for plan preparation. In general, this format will include, as a minimum, the information required for working plans by the applicable installation standards. The choice of the specific installation standard should be determined according to the occupancy type, as explained within the scope of each standard. The policies and procedures might also include information such as the number of copies of plans to be submitted, local requirements which modify or supplement the national installation standards, specific statements of credentials of the plan preparers, and permit and fee information. This information should be made available to all individuals or firms which express an interest in preparing residential fire sprinkler plans.

Acceptable for Review?

The decision as to whether a set of plans is acceptable for review is based on conformance with established criteria. Rejection of the submittal at this stage simply means that the criteria have not been met. (top)

Section Two: Plan Review

The plan review process is an important segment of the overall fire sprinkler installation program. Unfortunately, many authorities do not recognize the variety of the problems that plan review can create. Several of the difficult questions that the local authority must answer are:

1. Do we presently have a person or persons on staff who are trained and experienced in plan review for fire sprinklers?
2. If not, is training available to prepare persons to review plans?
3. Are there other agencies or persons available to review sprinkler drawings?
4. What are the critical areas that must be reviewed on sprinkler drawings?
5. Is there a specific process or procedure for performing plan reviews?
6. Are there State requirements of competency or licensure for plan reviewers?
7. How much will it cost? How can I budget for this service?
Fortunately many cities, counties and jurisdictions have had to answer these difficult questions along with many other questions related to the implementation of a plan review program. Established plan review programs are available for communities requiring assistance.

When sprinkler plans are submitted, it is necessary to review them to ensure that the installation will conform to the applicable standard and will be effective in controlling a fire.

These plans will need to be reviewed by a qualified person who is familiar with the applicable standards. This person will examine the plans and assist the plans preparer to establish a complete set of plans, which may then be used by an installer.

Qualified plan reviewers must review and approve plans before a permit can be issued. Several avenues are open to the local authority to acquire plan reviewers. One may hire a competent plans reviewer. One may train and upgrade a current employee to perform this function. In some jurisdictions, a state agency may perform plan review, model code groups may be called upon to perform this function. Another option is contract for this function with a fire protection engineer.

When the plans are submitted for review, the reviewer will first screen them for completeness conformity to the proper format. Any deficiencies that are noted at this time can be corrected by the submitter prior to the formal acceptance of the plans.

When plans are formally accepted the actual design review process can begin. During this process the reviewer will verify that the plans are in agreement with the applicable standards and ordinances. (top)

Section Three: Installation

Competency Determined by State Laws or Local Ordinances

Several states license fire sprinkler contractors to assure competent sprinkler system installation. In most of these states, and even in states that do not have specific fire sprinkler contractor licensing laws, other requirements are placed upon contractors in areas such as financial stability, bonding, and insurance in order to protect the consumer.

Make a determination as to whether a statewide licensing law is in existence, and whether it applies to some or all residential occupancies. If no such law is in effect, consider developing a statewide or local program to maintain levels of competence. The administrative workload makes licensing at the state level more practical than at the local level.

If it is necessary to develop a system to ensure competency of installation, the following items should be considered. The steps in developing a licensing or certification program are:

Identify the scope of the proposed program.
Decide upon a specific course of action.
Design and implement the program.
Develop a system for continual evaluation of the success of the program.

Implementation of a program for determining contractor competency does not relieve the fire officials of the responsibility for periodic inspections of the installation to determine satisfactory performance.

Systems should be installed in complete accordance with the requirements of the applicable installation standards and the submitted working plans. Variations from approved working plans require the approval of the Authority Having Jurisdiction.

Determination of the correctness of system installation can only be performed prior to the application of sheetrock or other wall and ceiling covering. It is essential that pressure testing be conducted prior to the covering of system piping joints. Details of sprinkler spacing should be checked against needed clearances from fireplaces, stoves, ceiling fans, and other sources of heat or obstruction. Reference should be made to sprinkler manufacturers product installation instructions where guidance is needed relative to special situations, such as sloped ceilings. Is It Complete? A final visual inspection of each sprinkler, each gauge and the inspectors test station must also be performed. (top)

Section Four: Inspection, Testing and Approval

A quality residential fire sprinkler program will emphasize the critical importance of competent designs by qualified personnel that are prepared in accordance with nationally recognized standards. Equally important are the qualifications and competencies of the persons who review the plans. Following on that, the installers must be qualified to install the items per the plans.

The final inspection will verify that the system has been installed in compliance with the applicable requirements and will operate if called on. For that reason, the inspector must be competent and qualified. Some states require that inspectors be certified to inspect fire sprinkler systems. The local authority needs to determine the minimum requirements for sprinkler inspectors and take steps to get them trained.

Final inspection and testing should be conducted in a structured manner to reduce the chance of overlooking an item. The recommendation is to begin with a visual inspection of the sprinklers themselves, checking for any improperly installed escutcheons, painted sprinklers one ones damaged by other construction mechanics. The riser should be checked for the required components. All discrepancies must be investigated and resolved before approval is given.

A final pressure check should be made to assure that is water tight and leak-free. The last step is a flow test to check the alarm (if one is required) verify that the required minimum flow and pressure are available at the proper location in the system. If a remote alarm is part of the system, it must also be checked. Once the tests are completed, a certificate of occupancy can be issued.

The NFPA includes sample test forms in the sprinkler standards that local jurisdictions can adapt for their use. (top)

Section Five: Maintenance

This section will provide guidelines to assure that residential sprinkler systems which were properly designed, installed and inspected continue to function as intended by the applicable standards.

The local authority's responsibility does not end with the final inspection and the issuance of a certificate of occupancy. The fact is that a long-term commitment must be made to assure proper maintenance of the installed systems if those systems are expected to function as designed.

Required by Model Codes or by Local Ordinances?

The maintenance requirements for residential sprinkler systems must be identified for each community. The requirements should identify what is to be done, when it should be done, who is authorized to do it and how the local authority can be assured that it has been done properly. In the event that the maintenance requirements have not been established for a community, action to establish the maintenance requirement must be taken.

Initially, the local authority should research the state/local building and fire codes to determine if they contain maintenance requirements. A meeting with the city or county attorney or legal staff will be needed to determine enforcement powers and penalties for violations. The state fire marshal's office can be a good resource in researching these issues. Make sure review any applicable state laws or regulations with your city or county attorney for interpretation.

The next step is to check for any local ordinances that mandate inspections of installed fire protection systems. If none are available for application then these must be developed.

The development of a local ordinance requiring periodic inspection of fire sprinkler installations will require the cooperation and coordination with the local legal advisor, building official and fire official. The absence of such cooperation will make implementation difficult.

The language for the local ordinance should be very clear, concise and non-technical. There are several different approaches to establish a good ordinance. You should work with your legal representative to determine which approach is best suited for your situation. Operation Life Safety has ordinances on file that can be used as references.

Every effort should be made prevent conflict with existing federal and state laws and other local ordinances. Any conflict created by the proposed requirements will provide an excellent argument for the opponents. This will, at a minimum, make adoption more difficult.

The authority to enforce is a vital component of the ordinance. This assignment of authority should be in compliance with local charters and should not overlap or conflict with existing vestments of authority.

Most authorities who have been successful at developing local fire sprinkler ordinances of this type have addressed the following items or conditions:

1. Re-inspection of single family homes cannot be required by laws and ordinances.

2. Re-inspection may be accomplished by tax incentives or insurance credits.

3. Re-inspection may well be a voluntary program established through an education program for home owners.

4. Development of local ordinance in compliance with state and local codes, if such exist.

5. Development of the proper educational materials.

6. Development of a procedure for inspections to include properly designed forms, a record system and an inspection schedule.

7. Development of a trained inspection staff.

Assign Responsibility and Schedules for Testing and Maintenance

Local authorities must establish a control system to assure proper scheduling for testing and maintenance. The system should include a schedule, past inspections and problems, company performing the inspections, follow-up by local authority, and an on-site record of the inspection. Part of the inspection should check to assure that the design package for the system and previous inspection approvals are on-site.

Performance of Periodic Tests and Maintenance

The first phase is a visual inspection. If the system fails to pass, it may or may have to be taken out of service.

If the system does not have to be taken out of service, it should be fixed and the local authority should be notified. The problem and the fix should be a part of the inspection report. Following the system fix the visual inspection should be repeated before the flow and alarm tests.

If the system does have to be taken out of service, the local authority must first be notified. After the system is fixed the local authority should again be notified of the fix and the restoration. This information should appear on the inspection report. Again, following the system fix the visual inspection should be repeated before the flow and alarm tests.

The procedure to be followed for the flow and alarm phase, if the system fails for being out of service or other reasons, is similar to the visual phase. When the system passes both visual, flow, alarm and other requirements, local authority will approve a certificate of inspection that was prepared by the company providing the maintenance and inspection service. (top)

Section Six: Accountability Liability

This section is provides guidelines for quality control of the entire residential sprinkler program. In general, the use of proper credentials at each step in the process is expected to ensure quality installations. However, it is also understood that the occasional improper plan, installation or other function will occur. This accountability/liability section should serve as a reminder that a system of penalties should be in place for serious multiple offenses before they occur.

Credential Verification

It is expected that the credentials that are required as part of other portions of the residential sprinkler program (example, certification of plan preparers and licensing of installing contractors) will be checked early in the process or identified as part of the submittal requirements on plans or permits. Again, proper credentials do not alone ensure quality installations. Checking credentials does not relieve the Authority Having Jurisdiction of responsibilities for proper plan review and installation inspection.

Proper Plan Preparation, Review, Installation, Inspection and Maintenance

If a complete project - from the start of plan preparation through review, installation, inspection and maintenance - proceeds with no major problems, the system is functioning as expected. Minor "fixes" are anticipated throughout the individual programs for plan preparation and installation. They are an expected part of any construction process. If, however, the fixes are not of a minor nature, or appear to be the result of deliberate attempts to cut corners, or are continual and repeated on the part of certain parties, then some mechanism is needed to penalize the offenders in a fair and consistent manner. The system proposed allows simple education as the appropriate remedy for minor offenses.

Check Credentials

Although credentials should have been verified initially, the development of problems might indicate that an error was made in this area, or that individuals within a company might be conducting business based on the credentials of other individuals.

Continued Financial Responsibility: Insurance, Bonding, Warranties

Contractor licensing laws, contractor certification programs, or other state or local ordinances may require evidence of installer insurance, bonding and project warranties to protect the consumer. Even if no problems were encountered during system plan preparation and installation, it should be verified that these mechanisms for continued financial responsibility are in place.

Do Penalties Exist?

The Authority Having Jurisdiction (AHJ) should determine what types of penalties are already in place at the state or local level as part of contractor licensing laws or general construction industry requirements. If it is determined that the laws already available do not provide a comprehensive penalty system, the Authority Having Jurisdiction should investigate his/her authority to establish additional penalties.

Penalties levied against individuals or companies involved with improper plan preparation, installation or maintenance might involve fines, suspension, and ultimately revocation of credentials. A program for in-house discipline or termination should also be in place for similar offenses on the part of the plan reviewers and inspectors. A mechanism should also be in place to provide for rehabilitation and education of those individuals who have been penalized under the system. (top)

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