BIM for

Municipalities

May 2022
BIM for
Municipalities

Authors:
Nawel Lafioune. M.Ing, M.Arch, Asset M.Cert, Project M.Cert

Expert Panel
Phil Healey, Manager, Enterprise GIS Services, City of Kingston
Paul Shaffelburg, Manager GIS, Halifax Regional Municipality
Justin Pockar, Manager, Customer Solutions and Business Registries, City of Calgary
Louis Tremblay, BIM Manager, Ville de Québec

Review Panel
Bill Moore, President, buildingSMART Canada
Gord McElravy, Director, buildingSMART Canada
Erik Poirier, PhD, Professor, École de technologie supérieure

In collaboration with:

No part of this publication may be reproduced, copied or transmitted in any

form without the permission of buildingSMART Canada

2
About the Municipal Infrastructure Council
The Municipal Infrastructure Council Program on BIM Adoption, Policy,
and Standards provides member municipal partners a collaboration
forum structured to deliver BIM Innovation, Pedagogy and Open BIM
Standards through participation in real-world municipal projects.

Municipal participants have varying levels of BIM experience and

knowledge. Working together within a collaborative framework, and
utilizing existing municipal experience and BIM knowledge, along
with support from industry and academia, member partners will
participate in real-world municipal projects designed by and lead
by municipalities. Supported by buildingSMART Canada, its BIM
Affiliate Organizations and the International community, municipalities
will innovate the application of BIM standards, methodology and
processes within a Canadian context.

About buildingSMART Canada

buildingSMART Canada is committed to supporting the digitalization
of Canada’s built asset industry by developing and helping promote
the adoption of open, international standards and solutions.
buildingSMART Canada is the community for visionaries working to
transform the design, construction, operation, and maintenance of
Canada’s built environment.

As a Canadian federally incorporated Not-for-Profit Corporation,

the Canadian chapter of buildingSMART International provides the
appropriate body and home for Canadian BIM and digital project and
asset lifecycle delivery Standards and best practices development. It
exists to support the implementation of BIM in a way and at a pace
that enables industry to successfully achieve its objectives and deliver
value to Canadians.

Canada and Canadian professionals have a long history and reputation

of collaboration and communication between countries and regions.
The chapter continues to fulfill this role, supporting the development
and application of standards from high-level to practical use.

3
Table of Contents

5 Introduction

6 BIM Overview

18 BIM’s Potential and Benefits

20 Addressing BIM: Implementation Challenges

22 Contextual considerations for adopting and implementing BIM

in Canadian municipalities

27 Conclusion and next steps

4
Introduction
Canada, along with the 192 other Member
States of the United Nations (UN), adopted
in 2015 the 2030 Agenda for Sustainable
Development, which consists of 17 goals,
including No. 9: Industry, Innovation and
Infrastructure; No. 11: Sustainable Cities
and Communities; and No. 12: Responsible
Consumption and Production.
Canada is the second-largest country in the world
in terms of area and 80% of its population lives
in urban areas (Statistics Canada, 2001). It is
composed of provinces and territories and has cities
of all sizes. The designation of “city” in Canada
varies by province. This white paper considers a city
or municipality to be any urban area composed of a
territory, assets, citizens, and a government.
Assets include the constructions and equipment
that are essential to a community. This report
focuses on the existing and future built assets of
urban infrastructure and buildings, for instance,
parks, roads, railways, sewer systems, water
systems, etc. Built assets are the cornerstone of
public health and safety and as such, they require
effective management to ensure sustainability and
the quality of service to citizens. Built assets are the
pillar of economic and social development. “Local
governments own approximately 60 percent of the
public infrastructure that supports our economy
and quality of life.” Indeed, a $1B investment in
infrastructure generates $1.6B in economic growth
and 18,000 new jobs according to the FCM (2021).
Thus, current and future infrastructure require
sound, evidence-based investment strategies.
When cities exhaust their borrowing capacity for
the development of horizontal infrastructure, they
become ineligible for new renewal programs.
The issues facing cities can be controlled with a
shared understanding, that combines expertise
from different areas and uses new technology and
best practices for optimization and sustainability.
Over the past two decades, the emergence of BIM,
paired with the features of Geospatial Information
System (GIS), has proven to be considerably
beneficial despite the transition to BIM-GIS
presenting several organizational, procedural,
and technological challenges. For several years
now, believing in the benefits provided by these
new processes and technologies, many countries
are requiring the use of BIM in all large-scale
projects. However, while the implementation of
GIS appears relatively widespread within Canadian
municipalities, this is not yet the case for BIM in
Canada.
The purpose of this white paper is to demystify
and demonstrate the potential value of BIM for
municipalities across Canada if it is implemented
in a structured and supported manner. The paper
summarizes its use in municipal buildings and urban
infrastructure, and in issuing digital permits and its
role in the management of built asset life cycles. It
also summarizes the potential and the advantages
of BIM along with its challenges and ways to
overcome obstacles. This white paper presents
the basics and provides contextual considerations
for the adoption and implementation of BIM
in Canadian municipalities. Lastly, it provides a
roadmap for projects, and considerations regarding
policies, standards, technology, processes, and
skills. The communes involved in the Infrastructure
Council close out the paper by presenting their
perspectives on the adoption and implementation
of BIM.
5 5
 BIM Overview
The term Building Information
Modeling (BIM)
The concept of BIM appeared in the 1970s. The
acronym BIM corresponds to three terms: Building
Information Model, Building Information Modelling
and Building Information Management. The French
translation is Modélisation des Données des
Bâtiments, or MDB. The word “building” designates
all types of infrastructure (e.g., bridges) as well as the
act of construction. In recent years, the use of BIM
has extended to areas for which it was not initially
planned, such as linear infrastructure projects. The
term for BIM that is used in the construction of urban
infrastructure and city management is “CIM,” for
City Information Modeling (Xu, Ding, Luo, & Ma,
2014) or Civil Information Modeling (Hutsel & Bush,
2016). In this paper, the acronym BIM is used, and
the word “building” is used to designate built assets,
regardless of whether they are linear infrastructure or
vertical infrastructure such as buildings.
Definition of BIM
BIM has been defined in many ways in the last few
years. BIM was originally conceptualized as software,
or 3D modelling technology by Smith & Tardif (2009)
or as the organization and manner of delivering
integrated projects by Eastman et al. (2011) and
Xiao & Noble (2014). BIM includes all the processes,
BIM Lifecycle
Figure 1: The BIM Lifecycle
policies, and practices related to the collaborative
development of the digital representation of an asset
or series of built assets to support defined business
objectives (Succar, 2009; NIBS, 2012). Therefore,
the use of BIM required that all members of a
project team be able to access and work on a single,
centralized collaborative design. BIM is much more
than a simple transition to 3D modelling. It represents
a change in direction regarding the way projects are
undertaken and the way fundamental issues related to
processes and workflows arise. BIM is a process that
encompasses the entire life cycle of a built asset. It
is a sociotechnical system that requires commitment
and a change in organizational structure from
stakeholders. This change equally affects people,
processes, and technologies.
As shown in Figure 1, BIM enables the visualization,
coordination, simulation and management of
human resources, schedules, construction costs and
operations and maintenance costs over the entire
life cycle of the built asset. The model also makes it
possible to control compliance with standards. To this
end, a model contains intelligent and structured data,
which enables the analysis and simulation of energy
efficiency, structural calculations, and the detection
of conflicts between a project’s stakeholder’s different
models. Generally, the process proposed by BIM
begins with the use of software to create 3D digital
parametric model(s) (or virtual 3D models) of a newly
built or existing asset.
6
Geomatics or Geospatial
Information System (GIS)
The Geospatial Information System (GIS) is designed
to save, store, manipulate, manage, and present
spatial or geographical data. GIS can relate
unrelated information by using location as the key
index variable. “Locations or extents in the Earth
space–time may be recorded as dates/times of
occurrence, and x, y, and z coordinates representing,
longitude, latitude, and elevation, respectively.”
(Wikipedia, 2020).

All Earth-based spatial-temporal location and extent

references should be relatable to one another and
ultimately to a “real” physical location or extent.
This key characteristic of GIS has begun to open new
avenues of scientific inquiry (RESEARCH GUIDES
University of Wisconsin, 2016).

GIS generally contains many types of geographic

objects organized into themes that are often
displayed as layers. Figure 2 illustrates how
information is organized in layers.

GIS has many applications, for example decision-

making, organizing a society’s primary information
systems, such as cadastral systems and national
security, and automating technical workflows such
as cartographic production and image analysis. In
other words, the capacity of GIS can extend to carry
out public policy decisions. It stores, manages, and
analyzes the data in an urban environment while BIM
does the same with data for buildings and urban
infrastructure. Thus, GIS and BIM manage spatial
information.

7
Figure 2: Organization of information into layers
Adapted from NBIMS, 2006
The integrated BIM-GIS approach is growing in
popularity and beginning to serve an increasing
number of applications in the different phases of a
built asset’s life cycle from planning and construction to
demolition. Buildings are the main type of application
of this approach, focusing on the construction phases.
During the construction planning and design phases,
the integrated BIM-GIS approach is used in several
activities such as site selection, energy design,
structural design, interior acoustic design, climate
assessment, design authorization and performance
assessment. During the construction phases for new
assets, the approach applies to managing the supply
chain and work schedule. For building renovation
projects, the approach helps with decision-making.
During the operations and maintenance phases, the
approach is widely used and benefits a wide range
of activities, including facilities management, spatial
navigation, heritage protection and risk management.
During the demolition phase, transport network
information is integrated into the GIS with material
information from BIM models for waste sorting,
estimation, volume calculation and transport. This
enables geospatial analysis. The BIM-GIS integrated
approach also applies to urban infrastructure. It
supports uses such as earthwork simulation, visibility
analysis, and traffic simulation. The approach can be
applied for the analysis of urban neighborhoods where
underground utilities, road network and buildings are
all connected and used for the analysis. Its application
is primarily for activities such as energy management,
emergency response, and facility management.
The integrated BIM-GIS approach involves better
information in a digital environment. By connecting
the value chain to urban planning, it can also be
applied for emergency planning. This is very useful
for public safety and emergency management. For
example, municipalities can modernize their systems
to interact with 911 and comply with regulations.
With technological advances in the integration of
BIM and GIS, the opportunities and uses will continue
to grow. These opportunities are at the heart of the
implementation of BIM within Canadian municipalities.
8
City Information Modeling,
Smart Cities and Digital Twins
City Information Modeling (CIM) uses the same 3D
modeling concept as BIM, but at the city scale, and
using a holistic, data-centric approach. CIM provides
a series of models that form an integrated and rich
semantic city containing structured, shared, and
interconnected information, which offers a systemic
view of a city. It allows the different stakeholders
(e.g., managers, engineers, architects, and urbanists)
to collaborate and work efficiently in real time on
a single data source (model of the city), which in
turn helps them make more informed decisions.
Amorim (2015) defines CIM as a process in which
city professionals work and produce an ecosystem
of unique and shared data, and must work in
collaboration on city design, planning, execution,
operation, monitoring, maintenance, and renovation.
The city model can be conceptualized as a collection
of databases that contain information on the built
assets included in the BIM models for buildings and
city infrastructure, information from the GIS and
information from other sources, such as sensors and
the Internet of Things. As a result, CIM combines
the benefits of BIM, such as data visualization and
analysis and the benefits of GIS, such as Earth-
based spatial-temporal localization. Furthermore,
many researchers discuss not only the information
relating to built assets, but also relating to physical
characteristics and the flow of people, goods,
and resources, including their political, social, and
economic dimensions. For instance, Almeida and
Andrade (2018) define CIM as a knowledge model
based on calculations that include processes,
public policy, and technologies allowing the various
stakeholders to collaborate in the development of
sustainable, participative, and competitive cities.
Other researchers are focused on available and
future digital technologies to support the design
of city models. For example, the Smart World CIM
platform by Cityzenith is used by professionals in
numerous fields around the world.
The CIM paradigm as a city model is achieved
by incorporating information from BIM and
GIS. Therefore, all city data are available and
referenced in the CIM model. Thus, it is possible
to extract information directly from the virtual model
to monitor the performance of built assets and make
the right decisions to maintain the level of required
services provided to citizens. ISO 37120 measures
the performances of urban services and quality of
life using indicators. These measures are feasible for
most cities and the data used are already collected by
cities, but not in a standardized manner. ISO 37120
allows all cities, regardless of their size, to share best
practices and compare their social, economic, and
environmental progress internally and compared to
other cities both locally and globally. BIM and CIM also
assist in increasing the accuracy of the results subject to
ISO 37120 and enabling more assertive and effective
decision-making.
BIM and CIM integration will help support healthy city
management. For instance, construction sites produce
noise and waste, city councils are better informed thanks
to the BIM and CIM models and can therefore make
better-informed decisions to ensure that construction
goes well while ensuring that the city operates
smoothly. These models contain information that allows
cities to be more resistant to rapid urbanization and
demographic growth. Furthermore, in small cities with
high population density, such as Singapore, owners
and contractors must provide construction data to
a municipal server to plan developments in a more
organized and efficient manner.
The concept of a “smart city” was created in reaction
to the growing challenges that cities are facing. It aims
to improve the operational efficiency of city services to
provide citizens with a better living environment., CIM
or the urban city information model was created with
the same objective. It describes “a fully integrated,
semantically enabled ‘super-BIM’ 3D city model that
hyper-connects users to any contextual project data
source or analysis tool—static or dynamic, spatial on
nonspatial—from buildings to roads and public spaces
(open data), to streetlights (sensors/IoT), to people
on the street (social media).” (ARCHITECT, 2021). City
simulations are now possible in CIM, based on BIM. BIM
for smart cities is not only a choice, but a necessity. BIM
holds the key to many processes, as smart cities require
smart infrastructure.
9
Another concept, the “digital twin” (DT), makes it
possible to simulate, optimize, predict, and make
decisions in a dynamic way through its AI, which is an
essential component for superior levels of calculation
(Boje et al., 2020). DTs can process an enormous
amount of data (Howell & Rezgui, 2018; Qi & Tao, While there is a wide variety of
2018) and interconnect several databases. Much like concepts, cities need to offer and
BIM, it is an important source of data. Furthermore, maintain good service to provide
BIM is considered to be the starting point for DTs a better quality of life to citizens
(Howell & Rezgui, 2018; Patterson, Taylor & Bankhead, (which is what smart cities offer);
2016). visualize and maintain the digital
thread of their built assets and
The viability of a DT depends on the ability to simulate them (which is what CIM
correctly represent the data and its semantics, and
offers); and create a digital version
to make all datasets available to process knowledge
(Boje, Guerriero, Kubicki, & Rezgui, 2020). DTs can
of every physical component and
learn and make decisions thanks to their knowledge achieve prediction (which is what
bases, which are part of their AI (Qi & Tao, 2018; digital twins offer).
Zheng, Yang, & Cheng, 2019).

1010
BIM for Municipal Buildings
[Translation] “Municipalities are entities that have
political and administrative autonomy with various
responsibilities, such as development, urbanism,
housing, public health, public safety, […], etc.”
(MAMOT, 2010).

Cities intervene throughout the entire life cycle

of the building (e.g., operation, maintenance, risk
management, etc.). They often play the various
roles of project manager, facilities manager, asset
manager, real property manager, etc. The city’s
objective is to maintain a good level of service
and ensure (and possibly extend) the lifespan of
buildings for as long as possible.
At the strategic level, for instance, BIM helps to
further thinking on information requirements to
properly conduct a new building project (design and
construction) or an existing building (operation and
maintenance). Defining information requirements
influences information organization and exchange.
This process is standardized in ISO 19650, wherein
information requirements are categorized and
structured. CEN/TC 442 (2019) adds information
requirements for the standards framework and the
building code. During planning, the uses of the
models are defined and the information that needs
to be delivered is structured within a single data
source: the digital model of the built asset. Preparing
the model’s uses formalizes the information
requirements in a more specific and tangible way
during the planning phase.
BIM for Municipal Infrastructure
A city is never managed by managing a single
type of asset in isolation, and a building is
always connected and integrated to other
infrastructure, such as transportation systems,
utilities, etc.
Cities develop and renew their infrastructure.
As these are dispersed throughout different
sectors and fields, several issues arise in
linear urban infrastructure management. Such
management encompasses urban infrastructure
construction projects (e.g., calculating
drainage capacity) and existing linear
infrastructure assets (e.g., managing old sewer
networks). The issues with linear infrastructure
management cannot be resolved using the
two-dimensional data included in plans. This is
where the use of BIM is essential.

The model is a database that contains the

characteristics and technical components and helps
populate the building’s operating software. The
various information on the architectural, structural,
mechanical, electrical, and plumbing components
are integrated into this database: composition,
volume, shape, colour, fire resistance, materials,
functions, area, energy consumption, environmental
impact, etc. The BIM models are a base of
information that is crucial to operations and has a
major positive impact over the entire life cycle of
the building. For instance, the BIM model makes
it easier to locate equipment and systems within
the building and provides quick access to data on
warranties and manufacturer specifications.

11

Twenty-five of the world’s largest
construction companies stated
that incorrect predictions, risk
identification and cost increases
were the main challenges in road
construction according to KPMG
(2005). Flyvbjerg (2005) confirms
this in their study covering 167
cases spanning 20 countries
and 5 continents by concluding
that projects with longer
implementation phases experience
greater cost increases. BIM can
help to solve these problems.
BIM for Road Projects
In practice, the use of a BIM workflow for road and
highway projects begins with the creation of a smart
3D model of the roadways in which the components
are connected to each other in a dynamic way;
this means that there is a set of coordinated and
reliable design information about the project in
one ecosystem. This design method based on an
information model provides the opportunity to
consider different design variables to reach the
optimal solution. Another advantage of designing
with BIM is the possibility of quickly implementing
the most recent design changes and automatically
updating the system for all documentation, such
as bills of quantities, plans, etc. that include all
the changes. Furthermore, a few model uses
are applicable in both buildings and linear
infrastructure. For instance, the conflict detection
feature between the structure and mechanical
and electrical services can be used effectively in
road design and construction to prevent conflicts
between underground infrastructure, water and
sewer systems, electrical cables, telecommunications
cables, etc.
BIM can be used to simulate lighting, sight
lines, drainage, signage, and many other needs.
From planning to construction, BIM can predict
costly errors before the project is conducted. It
enables better communication, cost and schedule
optimization, quality control, taking preventive
action and conducting more specific schedules and
energy analyses.
12
BIM and e-permitting
The city issues construction permits for all
projects on its territory, whether these are new
constructions or renovation projects. Obtaining
a construction permit requires a review and
approval process for all construction drawings;
the process requires time and implies a cost,
but serves to verify, improve, and demonstrate
compliance with current applicable codes (e.g.,
zoning, buildings, fire prevention).
The current process for reviewing drawings relies
mainly on manual processes. It is typically iterative
and long, due to the complex nature of the
codes, standards, requirements, interpretations,
and language used by the different parties (e.g.,
inspectors, designers, etc.), and the inspector’s
ability to interpret the 2D design and the substantial
amounts of extraneous papers. These issues create
delays in the permit issuing process and sometimes
represent safety risks.
Inspectors, who have in-depth understanding and
knowledge of building codes, have noted conflicts
among design disciplines and the lack of information
contained in 2D documents. They work with 2D
documents but apply a building code that involves
3D considerations. Meanwhile, other sectors of the
industry such as design and construction teams are
quickly transitioning to BIM. Manual verification is
complex and subject to human error that could lead
to financial impacts, yet the process of reviewing
plans has remained practically unchanged despite
technological advancements.
Automatic code verification is a review process that
promises to be faster. Construction permits could be
issued using BIM to standardize the plan review process
for different reviewers and help eliminate contradictory
interpretations of the design and the code. Research by
Ballyard (2016) revealed that BIM has the potential to
help the process of visualizing the project and its data,
to extract information from objects and provide a better
understanding of the relationship between the built
asset’s unique characteristics and other components.
Furthermore, designers do not need to prepare all
the traditional 2D documents. [Translation] “There are
software tools to verify the compliance of 3D models,
but the rule sets based on codes that oversee the
process are not yet well developed or tested. Creating
an automatic workflow for code verification is also not
yet well developed or tested, and a good number of
potential users - those responsible for enforcing codes -
are not very well exposed to any of this.” (ENR, 2012)
Therefore, the different municipal jurisdictions that
perform the plan review process could greatly benefit
from the automation of the process for issuing digital
permits. The advantages of this automation, identified
in an international study by the Norwegian Building
Authority (2014), are: equal requirements in terms of
information for all local authorities; equal information
assessment for all types of identical projects; digital
information allowing their reuse for other purposes;
solutions to pre-verify requests before they are formally
submitted; and support for design in accordance with
regulations.
On the other hand, the use of BIM in the plan review
process presents a few challenges, such as, the model’s
accuracy, the level of development in the model, legal
implications, and the inspectors’ ability to use BIM.
13
Other Examples

From around the world, governments that use BIM

have already begun automating the process for issuing
construction permits. In 2020, 14 countries took part
in a sharing workshop for some of the most recent
developments in best practices in this field. Many solutions
were presented by Estonia, Finland, Germany, the
Netherlands, and the United Kingdom. For example, the
Estonian solution for Proof of Concept (POC) based on
open-source components highlighted the advantages of
controls based on algorithms that are less sensitive to BIM
errors compared to strictly rule-based controls. Estonia
plans to implement ‘model verification based on BIM’ into
the existing construction permit system in 2021.

buildingSMART International pointed out the necessity

of open and neutral data exchange, and that IFC
was the preferred choice for most public authorities.
buildingSMART Finland also noted in its presentation that
it is not possible to achieve complete automation without
good BIM standards.

14
BIM in Construction Projects and
Built Asset Management
In a city, much like in any organization, a construction
project is completed in phases. When BIM is
prioritized for a project, merely making the BIM tools
available and beginning 3D modelling is not enough
to successfully implement BIM. It is important
to note that a specific BIM procedure must be
followed, involving measures that can be studied
and implemented for each phase.
In Canada, the management issues currently faced
by the construction industry in construction projects
pertain to collaboration and coordination between
the different stakeholders (architects, engineers,
contractors, owners, etc.) and data exchange and
management issues. Other issues involve the
management of construction project completion
deadlines and risk management, especially
regarding health and safety on worksites.
The implementation of BIM strengthens
collaboration and facilitates communication which
in turn increases performance in project completion.
BIM allows many stakeholders (e.g., engineers,
subcontractors, suppliers, etc.) to work together
on a single visual and accessible virtual model.
The model’s uses are defined during planning,
thereby preventing any inefficiencies from arising
before implementation in the field. For example,
the model helps in detecting conflicts between
the different disciplines, preparing the estimate
and verifying energy efficiency. Using a simulation
process called BIM 4D can lead to a potential 30%
increase in precision between the estimated time
and actual time for execution in the field according
to GARRIDO et al. (2017). Each facet of BIM
adds value. BIM 5D is used for real and projected
budgetary analysis and monitoring over time, to
estimate necessary costs from the very beginning of
all projects.
It enables the real-time visualization of costs and
demonstrates any changes in costs. BIM 6D enables
the analysis of the construction project’s energy
consumption and reduction in the long term. Decision
making regarding the selection of materials is faster and
more precise, providing energy savings over the entire
life cycle of the construction.
BIM contributes to the safety of building construction
sites. It enables the identification of hazardous situations
and makes it possible to predict and limit them through
virtual reality. Workers know about dangers and
hazardous situations before they arrive on the site. From
the preparation of the site, BIM provides static and
dynamic visualization that facilitates the consideration
of risks and prevents the numerous dangers related to
hastiness and improvisation. For example, visualizing
access areas and storage needs, parking lots, pedestrian
traffic, vehicle and motor traffic, the flow of deliveries.
By being better informed, workers can understand and
propose adequate solutions for all potentially critical
situations.
The BIM model and the current rapid development
of “serious games” makes it possible to reproduce
the world entirely virtually and represent it in a way
that is remarkably close to reality. Thus, it is possible
to virtually visit and visualize the built asset and the
construction site. Thanks to full immersion into the
modelled construction site in virtual reality, it is possible
to simulate risks very realistically, analyze individual
and collective reactions and improve the ability to face
undesirable events.
Assets management (AM) enables better decision-
making as to the choice of project to prioritize. It helps
with portfolio management and aims to maintain a
good level of service for as long as possible while
considering the organization’s financial capacity. Built
asset management covers and coordinates all the
activities and phases from planning to the delivery of
the construction project or its acquisition, and is most
present during the operation and maintenance phases
of the life cycle. This extends to risk management and
the renewal of the asset itself.
15
AM is emerging relatively quickly in
municipalities because of its many advantages.
It improves understanding of the different
service level options, costs, and related risks.
It fosters better decision-making, based on the
benefits and costs of the different options. AM
can assist in informing decision makers (internal
and external) and citizens of financial needs
and in justifying these needs. It can help justify
upcoming investments and show responsible
management of public funds. It defines
performance indicators, assesses performance,
and allows cities to compare themselves.
Furthermore, project management allows better
decision-making concerning the management
of the selected project. BIM is mostly used by
the industry to support construction project
management from the design phase to project
delivery, and its use over the other phases of the
asset’s life cycle is not as widespread in practice.
Municipalities are coming to recognize the
potential of BIM, and are increasingly
deploying it.
While there are many potential advantages to
the integrated BIM/AM approach, not much
has been published on the topic. Currently
the ISO55000 series of standards, along with
ISO19650, are the main references for any
particular implementation attempts. It is also
necessary to assess the compatibility of the
structuring and standardization of the project
management model provided by the Project
Management Institute (PMI). The integrated
BIM/AM approach can only materialize if there is
more interest and willingness from leaders, more
application projects, more methodology and
support with more research in the field.
Continued management of asset information
must be maintained, and full advantage must
be taken of both separate and integrated
processes. A virtual model of the asset that is
filled with information will enable operation
and maintenance cost optimization. It will make
it easier to model infrastructure resilience and
identify the most effective strategies to improve
energy efficiency and reduce carbon emissions.
This integrated BIM/AM approach is based on
organizational maturity, processes, technology
and change management.
Here are a the main advantages of applying an
integrated BIM/AM approach over the life cycle of
built assets:
• Maintains a record of the built asset that enables
content creation using a standardized format
to transfer information to operations and
maintenance.
• Enables the sharing of 3D models between
multiple stakeholders, thus improving integrated
management, enabling information sharing,
easily reusing the controlled model throughout
the asset’s life cycle, and offering the possibility
of consulting the asset’s maintenance history
(record of assets).
• Enables greater clarity with regard to long-term
expectations for service performance and the
consequences of decisions made during the
design phase over performance and life cycle
costs.
• Helps to understand life cycle costs with better
environmental performance forecasting.
• Reduces project start-up costs thanks to the
availability of key information at the beginning
of the project (information requirements); and
reducing construction and operation costs
thanks to fewer construction defects, reduced
costs for management processes resulting from
incomplete data.
• Provides the composition of the structures
prior to demolition and helps in identifying the
elements that can be recycled or that require
special attention (e.g. hazardous materials).
16
Example of Singapore

The city of Singapore is a world leader in the

adoption of BIM and has set as one of its
objectives to implement the world’s fastest
system for digital construction permits (Tracks,
Table 1: Evolution of electronic permit processing
2014). Many lessons have been learned from the
in the city of Singapore
city of Singapore’s 20 years of experience and
the diligent work, support, and investment by
the State. The evolution of the process extracted Focus of the master plan IT2000 1990s
from Shahi (2018) is summarized in Table 1. The on the use of information technol-
ogies.
experience has enabled significant progress in
terms of efficiency and savings for all private and Connection of private businesses 1995
public organizations. and government agencies.

Singapore’s success is partially due to its city-State Creation of shared standard for 2001
structure, with a single centralized agency overseeing data sharing CP83 and signature of
an agreement by professional as-
authorizations across the entire country, according sociations and public organizations
to Shahi (2018). The successful implementation of for its use.
digital permits is also a result of the city’s support
and leadership. The different stakeholders (e.g., Digital permits made mandatory. 2004
manufacturers, designers, software suppliers, etc.)
work in collaboration with the authorities who issue Change of permit processing dead- 2009
orders, statutes, and regulations in preparation for lines from 102 to 38 days.
the transition to the digital review of all construction
permits. Digital permits require support from Training costs and BIM material 2010
government procurement policies and the various costs covered by Building Con-
struction Authority (BCA).
jurisdictions through the contracting processes and by - BIM architectural bids accepted
writing standards. by the Construction and Real Prop-
erty Network (CORENET).
Using a transition period is one of the keys to success.
The framework for the digital permit is implemented
progressively, leading to fewer direct costs for the BIM structural, mechanical, electri- 2011
government. This top-down approach has allowed cal, and plumbing bids accepted
by CORENET.
more control and management during the transition - Change of permit processing
period (Shahi, 2018). The approach includes, for deadlines to 25 days.
instance, training highly-qualified personnel who assist
in guiding the industry through the transition.
Mandatory BIM submissions for 2015
Rolling out BIM was one of the initiatives that projects larger than 5,000 m²
supported the progressive transition towards the
framework for digital permits. Also, the Singapore Ongoing development of automat- 2018
ic code verification using software
Building and Construction Authority allocated US$4.2 linked to BIM.
million specifically for the implementation of BIM,
covering costs for training, advice, and software in
the construction sector. Progress in the framework of
monitored digital permits has led the local industry
to submit BIM models to obtain digital permits and
automatic verification of code compliance for GIS
integration.

17
BIM’s Potential and Benefits
While preparing this report, many benefits of BIM were identified, but most
projects for which BIM has been used are vertical built asset developments

Federated and Reusable

information
BIM provides a source of federated and reusable
information through 3D modelling. This can
include geometry, spatial relations, geographical
information, quantities and properties of
construction elements, cost estimates, inventory
material and project schedule. (Le & Hsiung,
2014). The model can be used throughout the
project life cycle (Bazjanac, 2006; Eastman et al.,
2011). BIM provides not only virtual 3D models,
but also visualizations (Azhar, Nadeem, Mok,
& Leung, 2008; Bentley, 2018; BIMhub, 2018) Cost Management
and a better understanding of a project. It also
facilitates communication between stakeholders BIM makes it possible to test, analyze and
(Le & Hsiung, 2014). Therefore, the sharing and simulate in real time to achieve better energy
exchange of information is more efficient, and efficiency and cost management before
information circulates in real time throughout construction even begins. It also reduces
project development. BIM has a profound impact on waste and the need for redevelopment
construction project participants (Smith, 2014; Xiao (Azhar et al., 2008; Bentley, 2018; BIMhub,
& Noble, 2014) by reason of risk and knowledge 2018). Generally, asset operations and
sharing. It helps avoid serious financial losses and maintenance costs are not included in the
scheduling impacts. construction cost, even though they can
represent over half the total expenditures
during a project life cycle (Becerik-Gerber,
Sound Project Management Jazizadeh, Li, & Calis, 2011). In this regard,
BIM offers the possibility of managing the
BIM can generate enormous construction project
costs of planning, construction, operations,
management benefits, thereby improving decision-
and maintenance throughout a project life
making. Gould (2010) proposes that BIM be oriented
cycle, up until demolition.
primarily towards management, combining the social
and technological aspects of construction projects.
Deutsch (2011) adds that adopting BIM requires
a holistic approach involving not just technology,
but also social change. Lewis et al. (2010) indicate
that operations and maintenance information must
be correctly added to the BIM model before the
project is handed over and that facility managers
can achieve savings in the order of 70% by adopting
proactive maintenance procedures. Aram et al.
(2013) confirm this, saying that once project teams
develop BIM capacities for information creation,
collaboration and decision-making, there will be a
considerable improvement in project performance.

18
The Benefits of BIM in Numbers

Table 2 is based on Poirier’s (2017) presentation and According to Table 2, the highest rate relates to
presents the quantitative benefits of BIM in general, reducing construction site timelines, which implies a very
and for the Quebec construction industry specifically. promising opportunity.

Table 2: The benefits of BIM in numbers
Reproduced and adapted with permission from
Poirier (2017)
Benefits of BIM in general
Increased worksite productivity
Reduced construction costs
Reduced project duration (from
design to commissioning)
Fewer returns to the worksite
Reduced intervention time in oper-
ating phase
Reduced work time in operating
phase
Benefits of BIM in Quebec
industry
While this white paper presents some benefits of
BIM and discusses the orientation towards BIM in
Canadian cities, some countries have been applying
it for years at a national level and its adoption is not
limited to construction projects. In the United States,
Rate one of the largest construction markets in the world,
a $200 billion federal funding plan is stimulating
20 to 28% additional expenditures of $1.3 billion in cities over
the next decade. The goal is to support investments
3 to 10%
in infrastructure, with many BIM opportunities given
to the growing urban population. In Singapore, BIM
7 to 19% is considered a key technology on its journey towards
the smart nation. They surpassed the BIM objective
of increasing construction industry productivity and
electronic permits and BIM submissions. Singapore is
50 to 95% working towards Facility Management and Smart City.
In the United Kingdom, companies may only bid for
66 to 98% projects if they have BIM level 2. The U.K. is capitalizing
on the success of its national program and aiming
to become a global leader in BIM exploitation, and
55 to 80%
exporting its BIM expertise. In parallel, it is preparing a
national digital twin program.
Rate

Significant efficiency gains 37%

Reduced worksite risks 34%

Opportunities for prefabrication 26%

and manufacturer integration

Reduced waste 24%

Improved transfer of construction 21%

data to asset management

Improved communication transpar- 21%

ency

Greater automation potential to 21%

industrialize construction

19
Addressing BIM:
Implementation Challenges

20
Collaboration
BIM is not easy to integrate into businesses. It
requires changes within an organization or an
industry as well as implementing communication
strategies to develop and train integrated teams.
This integration entails the transparent use of
technology and training of qualified personnel. To
do this, it is essential to identify needs to implement
BIM rather than simply promoting the use of its
technology (Howard & Björk, 2008). A number of
sites have identified issues at the root of ineffective
BIM deployment (Egan, 1998; Latham, 1994;
Wolstenholme et al., 2009). The primary issue is
lack of collaboration. While BIM underlines the links
between members of a project, it does not foster
closer collaboration between different companies
(Dossick & Neff, 2011; Xiao & Noble, 2014).
Zutshiet et al. (2012) highlight the importance of
organizational alignment with project objectives and
priorities to succeed collaboratively.
Cost
The second challenge is the investment required to
implement BIM. High cost is a major obstacle to BIM
adoption in the construction industry (Azhar, 2011;
Giel, Issa, & Olbina, 2010). Many businesses are not
yet convinced of the utility of additional investments
in BIM deployment compared with the real benefits
they may gain from adopting BIM (Barlish & Sullivan,
2012; Li, Lu, & Huang, 2009). The largest costs are
the initial costs of software, interoperability, and
personnel training (Hardin & McCool, 2015; Jenkins,
2013; Olatunji, 2011).
New technologies may lead to risks in another
crucial area. For example, software companies could
increase their prices in the future. Software market
competition is a potential solution to this challenge
in that it is likely to lower prices.
Interoperability
The challenge with interoperability lies in the
adoption of individual standards that vary from one
organization to another, resulting in fragmented BIM
process use. This fragmentation occurs because each
organization works in a silo with its own standards
based on its own interests, whereas BIM works for
the interest of all and, especially, in the interest of the
citizens of today and tomorrow. The solution, already
adopted in some countries, is BIM usage standards that
are consistent for stakeholders and for creating open
standards (OpenBIM) and that allow for sharing and
interoperability between different software.
Legal aspects
A third challenge involves legal aspects:
• The obligation for due diligence of professionals
governed by professional orders, as well as
contractual arrangements and government policies.
• Constraints surrounding intellectual property (IP),
virtual property (VP) and integrated virtual property
(IVP) (Christensen, McNamara, & O’Shea, 2007;
Olatunji & Akanmu, 2015). Furneaux and Kivvits
(2008) suggest that governments are addressing
these problems.
• A review of the definition of roles and
responsibilities of each stakeholder to avoid
liability risks (Race, 2012). According to lawyer
Comeau (2017), it is important to distinguish risk
management and division of responsibility.
Training
Another important issue is training and the lack of
specialized BIM workforce. There is a shortage of
experts in BIM implementation, as well as a lack of
public training. The time required to train personnel is a
major constraint for businesses. The solutions proposed
by Forgues (2017) are [translation] “consolidation of
architecture, engineering, construction management
and real property management programs in a built
environment school” and [translation] “supporting
leaders in BIM education: a Quebec digital construction
research consortium.”
21
Contextual considerations for
adopting and implementing BIM
in Canadian municipalities

22
Resilience
Resilience is the first contextual consideration to
bear in mind. It can be considered as the fourth
objective for sustainable development, alongside
the social, economic, and environmental aspects.
Cities must reflect on problems and challenges
associated with risk management in a context of
uncertainty and on how to develop an effective
long-term management strategy based on resilience.
For example, phenomena, such as those that can
arise in Canada’s specific climate context or hazards
related to climate change, are becoming more
frequent and more extreme. The capacity of cities
to be resilient is indispensable. Cities must have the
capacity to absorb and recover from disruptions.
The old strategy used to protect against disasters
was to calculate and calibrate for hazard-resistant
construction. In the past 30 years, to reduce impacts
as much as possible, the strategy has been based on
the concept of resilience. This means accepting that
disasters will occur and doing everything possible to
reduce the impact.
Applied to built asset management, resilience
becomes a synonym for: critical built asset reliability
(generally, this is used as opposed to the concept of
vulnerability); an integrated resource management
and adaptation capacity that can be mobilized
during the crisis to mitigate dysfunctions of standard
services; a capacity to adapt service needs to the
technical systems’ ability to meet them; and post-
incident recovery.
Hence, cities must equip themselves with resilience-
based strategies for a less vulnerable system. To
ensure the survival of a society and its economic
recovery after a societal phenomenon or a disaster,
innovations must be incorporated to strengthen
resilience. For example, system and predictive
measures are undeniably the most accurate and
effective ways to modify behavior in the face of risks
and building indicators are often useful. But this
systemic approach remains difficult to implement,
especially citywide. Thus, new technology and
concepts and processes like BIM and digital twin are
indispensable for cities.
Here are two examples of the potential contributions of
BIM to city resilience:
1. Built assets are generally built to last a century,
but when looking at the sustainability of a city and
the well-being of future generations, we must aim
for a millennium. This vision cannot be attained
when contract awarding rules prioritize the lowest
compliant offers (Éditeur officiel du Québec,
2017). This approach has impacts on the quality of
performance, the preservation of service levels, and
the lifespan of built assets, because contractors try
to cut back by using less expensive material and
more affordable labor. In this context, BIM can be
used for a sustainability cost-benefit analysis and
prevent the risks associated with aging built assets.
2. Some assets are located below street level. They
are not visible and there is no information about
their exact surroundings and their behavior over
time. Currently, this information is stored in Excel
spreadsheets, drawing layers, PDF files and maps
while it could be kept in BIM structured models,
able to provide fast and georeferenced access.
Diffusion Dynamics
Many national governments mandate BIM for public
construction projects. Using numerous implementation
strategies, public construction projects in Singapore,
the United States and the United Kingdom are well
known according to Smith, (2014), Atkinson & al (2014)
and Shou (2015). In these countries, the TOP-DOWN
approach is used, where governments play a vital role
in resolving obstacles by enforcing legislative BIM
standards and specifications for construction projects.
There is another approach where organizations can
take the initiative to implement without national
and international guidelines and standards. A close
examination of these two approaches shows that
top-down government participation contributes
essentially to facilitating a coordinated approach rather
than a fragmented approach to the adoption and
implementation of BIM (Atkinson, 2014).
23
 Table 3: Summary of critical initiatives examined
in six countries

1. Role of key The public sector is one of the key

actors drivers of the implementation of BIM
and the private sector also plays an
important role. For example, in Hong
Kong, private-sector contribution is
significant, especially in terms of new
International technology development.

considerations 2. BIM policy

and/or program
The government must establish
a policy specific to adopting BIM
on all projects. In each of the six
countries identified above, different
In recent years, several factors have been taken departments were responsible for
into consideration for the implementation of BIM establishing a BIM policy covering
and at various degrees of depth. For the effective different subjects such as regulatory
directives, contractual arrangements,
implementation of BIM, some studies present critical implementing best practices and
examinations of these considerations. Wong et al. standards, funding research and
(2010), for example, highlight critical initiatives arising education, etc.
from examining BIM implementation in the public
and private sectors in six countries: the United States, 3. Developing For example, initiatives like GSA
Finland, Norway, Denmark, Singapore, and Hong Kong. BIM directives/ in the United States, Statsbygg in
These critical initiatives are summarized in Table 3. standards Norway and Branch – Development
Bureau in Hong Kong.

Carrying out a project with BIM, especially in an
organization as diverse as a municipality, requires
adapting the usual process to a BIM process. Regardless
of the implementation plan followed, it is important or
even crucial to follow proven best practices.
4. Information In other countries, there are multiple
exchange ca- competing BIM suppliers/developers.
pacity Their efforts must be rationalized.
The public sector of a country is best
placed to bring synergy to multiple
competing BIM developers.

5. Organization In Hong Kong, HKIBIM plays a pro-

for BIM imple- active role by providing an exchange
mentation platform for the contributions of BIM
stakeholders and professionals.

6. Presentation, The results of the BIM program, once

promotion, and established, must be disseminated
liaison and communicated.

24

Contractual Considerations:
The Case of Dubai
The United Arab Emirates is a federation of seven
individual emirates, including Dubai. They do not
have a national BIM adoption requirement. In 2013,
Dubai Municipality circular 196 required the use of
BIM for architectural and MEP (mechanical, electrical,
and plumbing) work. In 2015, circular 207 supported
circular 196 and required that consulting offices be
responsible for applying BIM and for architects and
engineers to be responsible for its use.
It is important to note that directives said nothing
about how BIM should be implemented, the
minimum requirements, standards, or the minimum
level applied by BIM. It is possible that these
omissions are intended to allow them to become
familiar with BIM before all the requirements are
introduced.
In this context, the parties determined how BIM
should be implemented in the contract, which
led to a failure in this deployment. Even though
Dubai’s experience is considered a failure, it is part
of a continuous learning and improvement process
and may serve as a learning experience. They
must consider clauses regarding BIM management
responsibilities; choice and incorporation of a
protocol; providing documents; and the hierarchy of
contractual documents.
Initiatives underway
in Canada
A number of actions are underway in Canada
regarding the implementation of BIM in the federal,
provincial and municipal public sectors. In addition,
several private companies in Canada’s AEC sector
have adopted BIM and use it for major projects.
Government procurement does not require BIM,
with a few exceptions, even though several private
companies in Canada’s AEC sector have adopted
BIM and use it for major projects. For example, the
Department of National Defence (DND) has been
making significant use of BIM for several years.
Quebec and Alberta are progressing quickly and seem
to be the most advanced and the most supported by
their provincial governments compared with other
provinces. Alberta Infrastructure has published its
Digital Project Delivery specifications and has been
implementing them on their capital projects since
2018. The Ministère de l’Économie et de l’Innovation
du Québec has supported the Initiative Québécoise
pour la Construction 4.0 (IQC 4.0), in collaboration with
le Groupe BIM du Québec et l’Institut de gouvernance
numérique since 2018. In 2021, the Government of
Quebec unveiled its roadmap for BIM deployment
in public projects. The six key Quebec public works
(Société québécoise des infrastructures, Ministère des
Transports, Société d’habitation du Québec, Hydro-
Québec, City of Montréal and City of Québec) have
committed to progressively incorporating BIM in public
projects.
In this context, it is important to learn the precursors
and analyze the existing BIM situation at the local,
provincial, federal and international levels.
25
Current Context
for Canadian
Municipalities
As BIM affects all aspects of an organization, its
implementation in a city must be considered
as an integral part of each existing process
rather than as an isolated BIM entity unique
to a few specific tasks or projects. In addition,
the different applications of BIM must be used
throughout the entire built asset life cycle.
For example, BIM has an impact on decision-
making processes and vice versa. It is therefore
important to know the hierarchy, the legislative
bodies and how powers are shared in Canadian
cities. This knowledge will help to identify the
committees involved and the information that
the models must contain.

Canada’s municipal system varies from province

to province, but there are nevertheless
similarities. Consequently, a detailed analysis
should be undertaken of its organizational
structure, competencies and resources, legal
framework, processes, and technological
infrastructure.

Administration of Canada’s cities falls under

exclusive jurisdiction of the provinces. The
competencies and powers necessary for
this are delegated through various general
statutes such as: the Cities and Towns Act;
the Act respecting land use planning and
development; the Cultural Heritage Act; the Act
respecting municipal territorial organization; the
Municipal Works Act, etc. Some municipalities
have specific powers, depending on their
constitutional charter or order.

These statutes and others govern the

functioning and activities of municipalities. They
also delegate jurisdiction to the administrative
entities of the local municipalities and regional
administrations.

26
Conclusion and next steps

Cities encounter multiple challenges in delivering maximum

value to their citizens. Not only do they plan, deliver and
maintain critical built assets, they are also responsible for
regulating and approving all buildings on their territory. This
paper shows the potential of BIM to overcome some of these
challenges. BIM has already proven itself as a process that
federates multiple actors towards a common goal. It allows
for transparent coordination between different disciplines and
teams on the job site. It improves planning and optimization
of work as well as safety and efficiency. BIM helps managers
meet sustainable, social and economic development
objectives. Decision-making is more efficient thanks to the
structured information accessible in BIM models throughout
the lifecycle of municipalities’ built assets. Moreover, it can
help municipalities deliver better services to it citizens through
better more streamlined processes.

This white paper is an introduction to BIM in Canadian

cities. Deploying BIM leads to a competitive, efficient, and
productive construction sector. It helps managers make rapid
and better-informed decisions that ensure the sustainability of
built assets. This white paper offers contextual considerations
to factor before any BIM implementation. Simply put, BIM
must be incorporated into the communication and strategic
plan of cities and each city requires a roadmap that considers
its specific context.

2 27
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