1944
5 mars 1998
Direction générale des Travaux
France. Direction de la Construction (1944-1998)
À la Libération, la France est exsangue. Après cinq années de conflit, les destructions sont sans commune mesure avec celui de 1914-1918. 2 millions d’habitations ont été touchées, 1851 villes ont été ravagées. 120 000 établissements industriels ont été détruits, 250 000 exploitations agricoles ont été endommagées.
Sur tout le territoire, les zones urbanisées avec leurs usines, leurs bâtiments publics, gares, infrastructures de communication sont à reconstruire.
Il faut aussi faire face aux situations d’urgence telles que les opérations de déblaiement, la remise en état de la voirie, le relogement des sinistrés.
La réponse doit être forte, planifiée, coordonnée, centralisée. L’État crée le ministère de la Reconstruction et de l’Urbanisme (MRU) le 16 novembre 1944, résultat d’une fusion entre la délégation générale à l’Équipement national (DGEN) et le commissariat à la Reconstruction immobilière (CRI).
L’administration du MRU s’organise alors progressivement autour de deux grandes directions, l’une dite de conception sur les questions de reconstruction, d’urbanisme, d’habitation et d’aménagement du territoire. L’’autre dite d’exécution, la direction de la Construction.
1944-1949 : faire face à l’urgence
Une direction générale des Travaux est mentionnée dès fin 1944 après la création du MRU. Chargée de mettre en œuvre les orientations de la direction générale de l’Urbanisme, de l'Habitation et de la Construction (DGUHC), elle concentre tout d’abord son action sur tous les travaux préliminaires à réaliser pour le compte de l’État : le déblaiement des ruines, la remise en état sommaire des réseaux d’eau, d’assainissement, d’électricité et de gaz.
À cela s’ajoute la mise hors d’eau des immeubles pouvant être rapidement réutilisés comme constructions provisoires et le suivi et le contrôle des différents corps de métiers œuvrant pour la reconstruction du pays, notamment les architectes.
Plus précisément en matière de logement, la direction (dénommée direction de la Construction après le décret du 16 mars 1949), est chargée de suivre les marchés de travaux, avec notamment la construction d’immeubles – immeubles sans affectation immédiate (ISAI) financés par l’État et remis aux propriétaires en échange de leurs indemnités de dommages de guerre -, le suivi et contrôle des actions avec les groupements de reconstruction (associations syndicales de reconstruction et sociétés coopératives de reconstruction).
1950-1966 : tourner progressivement la page de la Reconstruction
Après les travaux d’urgence, la direction de la Construction s’attache à décliner peu à peu des missions en matière d’urbanisme et d’habitation.
Ainsi, dans le cadre des directives et des plans émanant de la direction de l’Aménagement du territoire et en liaison avec les collectivités locales, la direction de la Construction est chargée d’assurer la réalisation des plans d’urbanisme, de fixer les règles relatives au permis de construire et d’en contrôler l’application, d’étudier tous les moyens techniques permettant de réduire le coût de la construction et d’assurer le contrôle de l’exécution des travaux entrepris par les organismes d’HLM, les groupements de reconstruction ou les diverses administrations publiques.
Une note de service du 13 décembre 1958- 19900614/4 dossier 2- (dix jours avant la parution auJournal officield’un décret fixant les attributions du nouveau ministère de la Construction) précise qu’outre les attributions mentionnées dans le décret du 23 mars 1949, la direction de la Construction est chargée de la rénovation urbaine et de la lutte contre les taudis, de l’élaboration avec le Centre scientifique et technique du bâtiment (CSTB) de dispositions visant à faire progresser les méthodes et les techniques du bâtiment en vue d’abaisser les prix et d’améliorer la qualité des constructions. La direction de la Construction a pour mission également de répartir au plan national les moyens affectés à la construction, de diriger la réalisation des grands ensembles en coordonnant la construction des logements et des équipements collectifs.
Au début des années 1960, un groupe de travail oeuvrant pour la Construction pointe plusieurs incohérences dans un document intitulé « direction de la Construction » -19900614/4 dossier 2-. Tout d’abord le développement désordonné d’activités de contrôle et de recherche de la Direction aux dépens du rôle normal dévolu aux services extérieurs ou du CSTB. Puis, l’existence de bureaux chargés de la liquidation des opérations de reconstruction (déminage, travaux préliminaires), héritage de la direction générale des Travaux et qui encombre une direction de la Construction dotée d’attributions permanentes. Il est alors souligné qu’il faut donner à cette administration les moyens qu’implique la mission principale qui lui est confiée : faire construire dans les meilleures conditions le nombre de logements prévu par les objectifs du gouvernement.
1966-1978 : se recentrer sur la problématique du logement
Après la création du ministère de l’Équipement, un décret du 21 décembre 1967 modifie l’organisation centrale du ministère sans pour autant changer les missions de la direction de la Construction.
Dans la revueEquipement-Logement-Transportsnuméro 63-64 de 1971 puis dans une lettre d’information d’avril 1978, il est cependant précisé que la direction se réorganise afin de mettre l’accent sur le développement des études dans le domaine du logement (financement, législation, recherche et études sur la construction et l’habitation, habitat insalubre). À cela s’ajoute une tutelle sur les aides financières nouvellement mises en place dans le cadre de la réforme des aides au logement avec la loi du 3 janvier 1977.
1978-1998 : l’intégration des dimensions environnementales et architecturales
La prise en compte des dimensions environnementales et architecturales se traduit par la création d’un ministère de l’Environnement et du Cadre de vie en avril 1978, suivie d’une réorganisation importante des administrations centrales.
Un délégué à l’Architecture et à la Construction dont relèvent la direction de l’Architecture et la direction de la Construction apparaît dans le décret du 6 septembre 1978 fixant l’organisation de l’administration centrale du ministère de l’Environnement et du Cadre de vie. La direction de la Construction élabore et met en œuvre la politique de la construction et de l’habitat ; elle est responsable de la politique d’aide au logement (règles relatives au financement de la construction neuve, programmation et gestion des crédits d’aide à la construction, aide personnalisée au logement).
Chargée des actions d’innovation et d’incitation touchant aux techniques de construction, la direction de la Construction intègre une nouvelle mission : mettre en application les mesures visant aux économies d’énergie et à l’utilisation des énergies nouvelles dans l’habitat.
Les décrets des 2 juillet 1985 et 27 mars 1992 fixant l'organisation de l'administration centrale du ministère de l’Urbanisme, du Logement, des Transports ne modifient pas pour l’essentiel les missions de la direction de la Construction qui assure de plus l’animation et la coordination des activités de constructions publiques en y associant les compétences relatives à l’architecture relevant de la direction chargée de ce domaine.
À partir de 1993 et jusqu’en 1995, la direction est placée sous l’autorité directe du ministère du Logement, puis revient jusqu’en 1998 dans le giron du ministère de l’Équipement, avant de disparaître avec l’arrivée d’une direction générale de l’Habitat et de la Construction et deux services portant les missions urbanisme et logement : le service du Développement urbain et de l’Habitat et le service de la Stratégie et de la Législation.
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