OFFICE ARRANGEMENT AND LAYOUT

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP86-00244R000200010004-0
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 16
• Document Creation Date: December 12, 2016
• Document Release Date: March 4, 2002
• Sequence Number: 4
• Content Type: REPORT

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OFFICE ARRANGEMENT AND LAYOUT
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DEVELOPMENT OF OFFICE PLANNING
.The application of industrial engineering techniques to
the problems of office arrangement and work flow is a
development of comparatively recent years. The reasons
for:this late start can be traced to a number of facts
which made off ice planning unnecessary in the past.
During the last half century, tremendous strides were
made by automation in industry; consequently, fewer fac-
tory woxkers are now needed to produce a given product.
The resultant increased office force to production force
ratio has forced office or administrative expenses into
a position of greater importance in relation to the
total cost of products.
Another factor which contributed to the emergence of
off ice planning was the short supply of first-class
office space. World War II and the Korean conflict so
held back construction that, even with the sizable pro-
gram of recent years, there exists a shortage of space
in many of our urban centers. This condition, together
with rising construction costs, has forced the cost of
office space to an alltime high.
Many of the layout patterns which we find in the offices
of today still conform to those established many years
ago when buildings were vastly different. _ The office
building at the turn of the century was usually a wing-
structure building or a hollow square surrounding a
central light court, The office space consisted of a
series of moderately deep rooms on each side of a cen-
tral corridor. As late as the end of World War I,
lighting was designed for 5foot-candles of illumination
,and the only. ventilation was provided by opening the
windows. Offices were made up of individual rooms in
order to secure maximum benefit from natural light and.
air. All desks were oriented to the best source of
light, namely, the windows, and were kept fairly close
to these windows to take maximum advantage of the venti-
lotion afforded duxing_the summer months, The majority
of the employees sat facing the door. The practice of
giving the corner office to the "'boss" was related to
the cross ventilation afforded by such a location.
The building of today usually consists of block-type
space well lighted and airconditioned and divided by a
few access corridors radiating from the central core.
The open area of the .past was referred to as a ?rbullpen.'r
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This term indicates a large noisy area with little to
recomtrend it from -the standpoint of light, ventilation,
or sound control. In the modern building, the bullpen
has been retitled as "open-area" space; it is well-
lighted, airconditioned, acoustically treated, and can
be a pleasant place to work.
Another factor of importance to the space planner is the
.ability with which various organizational components in
an office can communicate. Offices were once generally
so small and compact that communication, whether oral or
by the transmission of documents, did not present a sig-
nificant problem. Today the space planner must ensure
that the various components of an organization are phys-
ically arranged in a manner which will facilitate communi-
cations of all types.
WORK FLOW AND LAYOUT
The relationship of individuals to each other and the inter-
relationship of tasks are the most important factors in any
layout. The development of a layout which conforms to and
complements the predominant work flow requirements of an
office is perhaps the most important phase of space planning.
$y the systematic study of the operations, processes, and
'procedures involved in, individual (or group) tasks, the
planner is able to assist management by providing work
station patterns which ensure a smooth, straight line
flow of work. To avoid misunderstanding, it is proper to
state at this point that space planning in no way con-
flicts with or overlaps the field of methods and systems
analysis. The role of the space planner is to gain a
knowledge of the functions as they have developed and to
translate that knowledge into the best space layout pos-
sible within the limitations imposed by building charac-
teristics, fiscal allotments, etc.
In a well-planned office, paper work goes from one desk to
another with the least amount of handling, traveling, and
delay. The geometric axiom that a straight line repre-
sents the shortest distance between two points can also
be applied to office layout. Work should progress in a
series of straight lines with a general forward movement,
avoiding crisscross patterns and backward motion. When
tentative office layout has been developed, the flow pat-
tern should be traced from desk-to-desk. Desks that are
out of the straight line flow will become obvious. Those
desks should be shifted so that they are between the desk
?from which the work is received and. that to which it will
be passed. It is that simple.
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PBIYATE OFFICES ,
The private office is the source of some of the most per-
plexing problems facing the space planner; the questions
of who should have an office, and whether or not it
should be furnished with ceiling-high partitioning, are
ones which must be settled by top management acting on
the advice and recommendations of the space specialist.
Unless top management interests itself in this problem
and sets forth the criteria that shall be used, the space
planner faces endless controversies.
It would be well, at this point, to define the term "pri-
vate office," as used herein. It is a room occupied by
one individual and includes rooms constructed of either
ceiling-high or bank-type partitions. (This definition is
important as one frequently hears of a room occupied by
two individuals or by~a man and his secretary referred to
as a private office . ) ,
Although the Government space planners are confronted with
many problems not encountered by their counterparts in
industryy there are sufficient points of similarity to
justify a brief review of the current trend in industry
with regard to private offices. Generally speaking, the
high cost of off ice space has forced management to take a
more conservative approach to the assignment of private
off ices, especially at the middle.echelan. The number of
private offices assigned to this group is on the decline
and, when provided, they tend t~award modest sizes. In-
creasing emphasis is being placed on decor rather than
size in view of the economic advantage in satisfying re-
quirements in this manner rather than to pay, year-by-
year, for excess space.
A logical interpretation of the pattern developed from
studies of private business is that private offices are
assigned on the basis of the job to be done. Where
off ices can be used as a vehicle to promote a company's
product, there is no hesitation to devoting extra money
for additional space and elaborate furnishings. Also,
in the so-called prestige fields, spacious and. luxurious
off ices are accepted as a necessary and prudent business
expense. On the other hand, few firms now provide large
off ices merely to indulge the whims of officials.
There are relatively few instances within Government where
justifications extended for large offices which exceed
functional requirements will withstand objective scrutiny.
A simple fact which all space planners should bear in
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mind is that the status argument for excessive space is
usually offered only when more practical reasons cannot be
generated. There is no question that ceremonial areas
have a place in the Government space picture, but they
should be kept to a minimum. The offices provided for our
elected representatives in both houses of the Congress are
quite modest and should set an example for the space used
by the Executive Branch of the Government.
Private offices should be provided only when there is
functional need, and then they should be only large enough
for .the occupant to conduct his normal business in an
efficient manner and with a reasonable degree of dignity.
Speaking generally, experience indicates that the need
far an office larger than 250 square feet is rare within
the Federal establishment,
The question of the location of private offices is one
which is being given new thought. Traditionally, these
rooms have been situated along the perimeter of buildings
with the interior space given over to the more routine
operations. This practice is discouraged by many space
planners who believe that the freedom of movement of prig
vote office occupants and the nature of subordinate posi-
tions indicate a need to reverse the situation. Modern
building designs have improved interior space to an
extent that inside private offices are more acceptable,
and the technique of assigning window space to large
clerical operations is gaining favor. The psychological
advantages of permitting the "lower echelanst" an outside
view have been very effective in many cases where tried.
In most agencies, the occupants of private offices will
receive the majority of visitors; in fact, the receiving
of many visitors is one of the principal factors in the
need for private accommodations. Whenever passible, these
offices ..should be situated in such a way as to make it
unnecessary for visitors to traverse .the principal work
areas. Locating private offices away from window walls
facilitates such an arrangement.
Partitions-.are one of the more valuable tools of the space
planner. Their indiscriminate use, however, is one of
his major problems. The main point to be considered in
connection with the use of partitions is that each one of
ceiling-height introduced into an office.scheme reduces
utilization flexibility.
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Before recommending installation of partitions, be satis-
fied that a functional need exists. If it does, determine
the type which will permit the greatest flexibility and
still satisfy the requirement. Explore carefully the use
of less-than-ceiling-high types. Tn addition to the com-
parative ease with which these can be moved, there are the
advantages associated with job cost, ventilation, heating,
and lighting. The two most popular types in this category
are the so-called three-quarter partition (7' to 7~6~*) and
the bank- type which is usually about 5t high. The three-
quarter partition is often preferred on the basis of addi-
tional audio privacy. Actually, the advantage aver bank-
type in this respect is insignificant. Soth kinds provide
adequate visual privacy. The bank-type has the advantage
of providing almost maximum flexibility as it is generally
of much lighter construction and is secured by means of
an occasional anchor bolt. It can be shif ted one foot, or
100 feet, in any direction to conform to organization or
staffing changes with little damage to the building, and,
more importantly, with minimum disruption of office
operations.
The separation of various units within an office into sep-
arate rooms or areas should be avoided unless there are
compelling reasons for such a separation. There is a tend-
ency on the part of management to encourage this separation
.but an objective analysis of the requirements will often
indicate that such subdivision is unnecessary. The provi-
sion of a separate room for each unit is a great deterrent
to flexibility of space use and curtails communication.
As a rule, units of an office-.need not be separated from
others unless noisy work practices, heavy visitor loads, or
a similar distraction exists in one or the other offices
which would annoy neighboring units.
Components of an organization not separated by partitioning
have a greater awareness of the overall job being done in-
stead of being limited to the problems of a particular divi-
sion, branch, or section. The open concept provides com-
munication between employees, which contributes to office
efficiency. Elimination of unwarranted partitions further
provides an opportunity to balance growth in one section of
the office against shrinkage in another.
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AUDIO PRIVACY
The space planner heaxs many reasons why people in Govern-
ment need places where confidential discussions can be held
and a variety of suggestions as to how this should be accom-
plished. The private off ice is the most popular, if not
always the most practical, solution. The Federal establish-
ment undoubtedly has a greater problem in this respect than
many branches of business. The most important consideration
of course, is that of national security which sometimes
requires that extreme protective measures be taken.
In addition to the security requirements, the Government is
faced with privacy situations involving investigative agen-
cies and other activities which have occasion to inquire
into the most confidential aspects of individuals* personal
lives and the operations of business concerns. There is no
question as to these personsf entitlement to reasonable
privacy regardless of whether they are summoned_to the ,
office or appear voluntarily to render assistance, or avail
themselves of services offered by the agency. There are
alternatives, however, in determining the methods to be used
to satisfy the various requirements.
The private office, as mentioned previously, is an obvious
solution but shou7.d be~limited to situations which require
the utmost privacy on a continuous basis. Where-the need.
is more intermittent, small interviewing booths can be
used. Another technique is to provide sound baffles for
sensitive work stations. These baffles are usually 5'
partition sections used to separate desks which are situ-
ated close together. These baffles deflect and deaden
sound waves to a moderate degree. An additional method of
obtaining audio privacy is to place desks a little farther
apart .than the recommended 3 feet.
All of the "open methods'T of providing privacy, including
private offices formed of bank-type partitions, depend on
a rather unusual factor; that is the general noise level
of surrounding areas. A case in point is the loan depart-
ments of many banking firms. It is not unusual to see a
group of loan officers seated in open areas an the main
floor each discussing the personal financial problems of
applicants. Eavesdropping is not as easy as it might seem,
however, because the noise generated on a busy banking
floor tends to cover up individual conversations to a point
where. they are an unintelligible hum. This is not by way
of suggesting that office noises should be allowed to be-
come objectionable, but there are certain noise levels
which are unavoidable and the space planner should take
advantage of the condition.
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In many off ices there is. the problem of attempting to keep
visitors from listening to general discussions and conver-
sations. An acceptable method of accomplishing this is
to detain the visitor in a reception area until the person
he has come to see is free to receive him.
Finally, there are privacy requirements which occur so
rarely as to suggest improvised solutions. For example,
when an individual has one ar two confidential discus-
sions per week, it is not feasible to take special meas-
ures. Rather, the situations should be handled as they
arise by using a vacant private office, a conference
room, etc. Frequency of need is a point which the space
planner should explore thoroughly.
VISUAL PRIVACY
The need of ten arises to provide special acco~nmodatioms
for persons performing tasks requiring a very high degree
of concentration. It would be impractical to try to in-
clude illustrative examples of the types of work which
could qualify for this treatment because almost everyone
believes that his job is unique with regard to mental
demands. Generally, .the qualifying tasks are in the cre-
ative fields and some form of visual shield is all that
is required. Bank-type partitioning is widely used. for
this purpose.
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~'URNITLTRL AND EQUXPI4ZENT
No discussion of space planning would be,complete without
recognizing the importance of furniture and the effects,
both good and bad, which it has on utilization. Funda-
mentally, the space planner's mission is to devise the
methods to house people and their necessary furniture and
equipment in a manner which will enable them to perform
their tasks efficiently and in reasonable comfort. It is
essential that off ice space be sufficient to accommodate
every item of furniture actually required; otherwise, effi-
ciency~is impaired. It is equally important that all un-
necessary equipment be removed to avoid paying for space
that is not needed.
The standard table found in most offices measures 60" x 34"
and requires approximately 25 square feet of floor space
which includes access area. At a rate of $4.25 per foot,
it costs the Government $100.00 per year to provide space
for such an item. This is a significant expense and it
.becomes an equally significant extravagance when the table
is not really needed. The Goverr~nientts annual rent bill
for housing unneeded furniture amounts to a surprising sum
and every means should be employed to eliminate this waste.
We are anxious to see each employee have all the equipment
needed to do an effective job, but will resist housing un-
needed furniture. Extra items such as telephone tables,
-bookcases, side chairs, and especially the standard tables,
may represent status symbols to certain employees, They
should not. be supplied automatically with certain positions
without a consideration of the need.
Extra furniture presents another kind of problem. Not being
used for.. any specific purpose, this furniture is frequently
the place where clutters of papers and odds and ends accumu-
late thereby detracting from the "clean and crisp" appearance
desired for every off ice. One technique used effectively to
reduce inventories of unneeded furniture is to begin a program
of replacement with new or reconditioned furniture, This per-
mits the selection of items of uniform appearance and creates
an attractive off ice. Also standards can be developed so that
,only needed items will be provided giving comparable positions
identical furniture "packages."
There have been some radical changes in furniture design in
recent years'.including the development of a line of func-
tional desks and related items known as "modular" furniture.
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The Federal Supply Service has developed a comparable line
called "uniti.zed`* furniture which has all the functional
advantages of its commercial counterparts -but is standard-
ized to ensure complete interchangeability of components.
The functional effectiveness of this equipment is obvious.
Our interest, naturally, lies in the effect which this new
furniture has on space management. Oux experience has
shown that the use of unitized furniture may afford better
space utilization than standard desks in a given block of
space. However, standard furniture has certain features,
mainly layout flexibility, which enable the planner to
obtain better space utilization in most instances. The
proper approach, then, is to examine carefully the space
under consideration and compare the degree of utilization
obtainable with each type, considering also the probable
costs of alfex~ations and new furniture which might be re-
quired. Only by such methods can the relative advantages
of the two types be accurately evaluated..
Regardless of the type required, the use of oversize furni-
ture should be avoided. There are many positions in Govern-
ment with functions which require the incumbents to spend
a major portion of their time away from their desks, using
them mainly to prepare reports, receive assignments, etc.
It is proper to consider the use of 45'" desks for such
positions. Further, if it is not necessary to make drawer
space available for such positions, the use of writing
tables should be considered. The use of the large confer-
ence desks should be limited to those having a legitimate
functional need far them.
The physical condition of earancerofaan officeeandhappear-
great influence on the app
ance, in turn, affects employee morale. Good looking fur-
niture, whether it is new, reconditioned, or merely the
old items polished up, should always be encouraged by the
space planner.
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CONFERENCE AREAS
Conferences, meetings, and assemblies are an important part
of Government operations. How is the space planner to eval-
uate and provide for such requirements? In the past, the
private office with a full conference table setup, requir-
ing from 350 to 400 square feet, was a widely used solution.
The best solution is a system of separate conference rooms
for the joint use of all components of an activity, with
higher levels of management being given conference desks
and/'or small conversation areas within their private offices.
It is entirely possible to provide space for in-office con-
fexences of up to ten persons in 200 to 250 square feet when
conference desks are used. A conversation area can be in-
cluded in these offices for the informal atmosphere created
by coffee table discussions of three or four persons.. Smaller
meetings of two or three persons can usually be held around
a standard desk,
The space planner should remember that conference facilities
are essential but he should attempt to maintain the amount
of space devoted to this purpose at a level consistent with.
actual needs. Consider wider use of existing conference
rooms before recommending others; if this is not feasible,
fulfill requirements by the assignment of the minimum amount
of space which will accomplish the job.
RECEPTION AREAS AND VISITOR CONTROL
Proper visitor control is important. The layout should pro-
vide for primary visitor entrances for the main components
of an office and each such entrance should be attended by an
employee who serves as a receptionist. Detaining visitors
at a point where they cannot overhear official discussions
will, in some instances, preclude the necessity of private
offices. This is also a means of making certain that visi-
tors are properly directed to the desk of the person they
are calling to see, and avoiding the distraction of having
them wander around the office.
When justified by the number of~visitors, the reception area
should be equipped with chairs, ash stands, and a table for
reading material, as appropriate. This area also lends
itself to interesting displays of program activities and
other promotional endeavors.
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RECORDS AND MAILROOMS
No office planning project should be undertaken without
evaluating the- record accumulations to determine their
correct inclusion in the office layout.. In many offices,
the records are vital to the efficient operation of one or
mare components and should be situated so that they will
be as adjacent to their users as possible. Depending on
the type of office operation the feasibility of placing
small banks of file cabinets within the .using components
rather, than having a central file activity should be con-
sidered, Some large operations which have centralized
controls 'require central files. Because file cabinets
and shelving occupy space, they are properly considered
in a space study. However, records and their use present
problems which have many aspects, a.nd the attention of
specialists is of ten advisable. Every space planner has
seen groups of records which he believes could be disposed
of or sent to Records Centers, but it is suggested that
records specialists be consulted on other than routine
problems.
Mailrooms present somewhat similar problems. The space
planner must consider the mail facilities in the general
space pattern but other than routine matters should be
referred to mail management specialists.
COATROOMS
An item which can add materially to the appearance of an
affice is the proper handling of employees coats, hats,
etc. Individual lockers use a great amount of valuable
wall space and are not usually found in the modern office.
Coat trees have a limited capacity, frequently requiring
the use of several in~a relatively small area thereby,
detracting from the appearance of the room. The modern
valet stand is capable of holding a number of coats, hats,
umbrellas, etc,, and is the most acceptable equipment for
this purpose. An alternative is the provision of a coat
closet in one corner of the room. It is recommended that
these be open to the view of employees to discourage
pilfering which could occur in a room isolated by the
simple act of closing a door.
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Obviously, prime office space should not be used for bulk
storage of any kind. Only working inventories of office
supplies and other materials should be .maintained in of-
fices, preferably i:n standard supply cabinets rather than
storage closets. It is much more satisfactory to locate
supply operations in secondary space such as basement areas
because of their proximity to shipping entrances, the elim-
ination of disruption to office activities, and the avail-
ability of more space than can usually be spared from
office operations.
ARRANGEMENT OF DESKS
The basic unit or work station around which office layouts
are made, is the desk and chair of the individual employee.
Generally speaking, if these units are arranged properly
the balance of the furniture and equipment required for the
office can be fitted into the remaining areas of the room.
When confronted with the task of arranging work stations,
the space planner must satisfy two main requirements. First,
he must situate them in a manner which conforms to the prim
cipal work flow patterns of the office, Second, he must
attain maximum utilization of the space involved, consistent
with sound space management practices. This section deals
with~the latter requirement and, although it is written in
terms of the larger office, the principles and techniques
apply to even the smallest.
One of the most satisfactory .arrangements of work stations
is a single column of desks facing the same direction and
running parallel to the largest window wall of the room.
The desks can be placed with ends butted against the window
wall and an aisle along the other side, or they can be
placed away from the wall to provide access from both sides.
Obviously, such a column scheme can be repeated the depth of
the room. An almost equally effective arrangement, espe-
cially in large clerical operations where space is limited,
are columns consisting of two desks, placed end-to-end, and
running the length of the room. When these columns are
placed with the ends of one row of desks against a wall,
the spacing between the desks should be a little greater
than normal to provide easy access for the inside employee.
Although the importance of natural light is diminishing
with improvements in office lighting, it is still preferable
to situate desks so that windows are at the side instead of
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in back of the occupant. This arrangement will generally
result in having the employees facing away from office en-
trances, thereby reducing distractions caused by people
entering the room.
Desks should not be placed back-to--back so that the occu-
pants face each other, unless there are sound functional
reasons for doing so. Space management experience has
shown that such an. arrangement does not conserve space and
that, as a general rule, employees so situated tend to dis-
tract one another more frequently than when arranged in
some other manner. Fortunately, there are suitable alter-
natives to satisfy almost any functional requirement which
would otherwise call for a face-to-face scheme.
In the modern block-type building, desks may be placed in
columns along a window wall but if there are no interven-
ing partitions they may be facing windows in another side
of the building. This can be an annoyance, sometimes pro-
ducing eye fatigue, and~'some corrective measures are indi-
cated. In addition to the use of venetian blinds or other
window coverings, this problem can be solved by placing a
bank-type divider partition across the widish of the space
at the center point and situating the desks so that every-
one faces the partition which is just high enough to block
out the window glare. A double row of file cabinets, back
to-back, will accomplish the same result.
Every effort should be made to arrange desks in straight
lines, in accordance with a predetermined aisle pattern..
This technique will facilitate the flow of txaffic through
an off ice, especially visitors who are not familiar with
the layout, and will contribute to the general atmosphere
of efficiency which is a desirable featuxe in all office
designs.
OFFIGE ENVYRO~TMENT
Studies conducted under controlled conditions leave little
doubt that physical environment has a predictable~en~o~ence
on production, both in the factory and office.
obvious environmental factors are illumination, decorative
colors, airconditioning, and sound control. These will be
discussed in general terms.
Illumination, with regard to both intensity and type, is
generally considered the most important element in the
office environment. A properly designed lighting system
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provides varying intensities of illumination according to
the tasks performed or service areas to be~lighted. For
example, corridors and washrooms xequire only 15 to 20
foot-candles of light while a drafting room may need 75.
In general office areas, approximately 50 foot-candles of
illumination, maintained in service at working height, is
considered very good. There are other levels recommended
for various functional areas but the variables involved
limit this discussion to generalizations. The important
point is that good lighting is essential and should not
be compromised. The efficiency and eyesight of employees
should not be jeopardized by poor lighting.
Color conditioning has, within the past few years, taken
a prominent position in the environment scheme. Some of
the first experiments in the field of color dynamics were
conducted in factories and the results were quite surpris-
ing. It has been determined, for instance, that certain
colors have a warming effect; others make a room seem cool.
There also are color groups which are restful, stimulating:
depressing, etc. Colors must be correlated with the light-
ing because the reflectance value of the paints used will
affect the level of illumination reaching working surfaces
Paints which produce glare should be avoided. The cooler
shades of green and blue have an almost universal appeal
but th.e tendency is to use them to the paint of monotony.
The introduction of complementary colors on small walls}
doors, etc., will dispel the monotony and add life and in-
dividuality to an office. Color conditioning is an inter-
esting and complex field and the space planner with a
working knowledge of it is in a position to render a more
complete service.
The advantages of airconditioning are well known. It has
been proved that production will generally increase, and
absenteeism and employee turnover decrease when aircondi-
tioning is used. Cleaning costs are usually lower in air-
conditioned buildings. Newer buildings in most sections
of the nation have this feature.. Unfortunately, installa-
tion in existing buildings involves considerable- cost and
can only be accomplished on a long-range basis.
Sound control can be effected in a number of ways. The
most widely used method in offices is the installation of
sound-absorbing materials on ceilings. This is effective
when noise levels are only moderately distracting. In
large offices, an effort should be made to avoid concen-
trations of noisy equipment such as typewriters, office .
machines, etc. This obviously cannot be done in a typing
pool or tabulating machine room and the only answer is to
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isolate the operation, preferably by means of sound-absarb-
ing partitions, and treat the interior of the room to make
it as comfortable as possible far the employees, A rea-
sonable noise level is to be expected in any office. Over-
conditioning of offices can have adverse effects because
noise generated within the area will seem amplified and
distracting.
The application of the principles of space planning requires
the exercise of sound judgment. There are often several
alternative solutions to a problem and it is the planner*s
role to determine the one which will satisfy the agency*s
requirements and, at the same time, be the most advantageous
for the Government. Generally, the best solution will be
the mast logical and acceptable compromise between the ideal
and that which is reasonably attainable. As in any other
administrative problem, the challenge can best be met by the
orderly examination of each element of the problem in the
light of both theory and experience. Consideration must
.always be given the variables which constantly face the
space planner, such as building characteristics, the avail-
ability of suitable space, fiscal limitations, future plans,.
and other comparable factors.
15
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