Building for the 21st Century – new scope and content proposed for the Building Code

Your feedback is sought at an important stage in the review of the New Zealand Building Code.

Minister for Building Issues, Hon Clayton Cosgrove has launched a discussion document Building for the 21st Century, Review of the Building Code. It is open for submissions until 31 August 2006. The discussion document proposes a new scope and content for the Building Code. It forms part of a review that represents a significant leap forward in what the Building Code can do for the country. It is a major review, the first since1991 when the Code was introduced, and goes far further than the technical amendments that occur from time to time.

While there is still much work to do, it is already clear that once the review is completed, the Building Code will have different performance standards for buildings. In this edition of Codewords, we highlight the discussion document and look briefly at the proposals:

• addressing new directions for
  the performance of buildings
• presenting a new structure
  for the Code
• creating clear performance
  standards and making the
  Code easier to use.

The review was introduced by the Building Act 2004. The Department has until 30 November 2007 to undertake the review and to present a report with its recommendations to the Minister for Building Issues. The majority of changes for the building sector are likely to be implemented after this time.

The review so far

The Department began the process of reviewing the Building Code in 2004 with a period of research. It engaged a wide range of industry, government and consumer representatives in a series of workshops in 2004 and 2005 to find out what people want from the Building Code. Some of the things people told us are as follows.

In implementing the review of the Building Code, and also the wider changes introduced by the Building Act, the Department has a very clear objective: the people of New Zealand have access to quality homes and buildings that meet their needs and reflect our New Zealand environment. In its purpose statement, the Building Act restates some existing, and introduces some new, requirements in regard to sustainable development, and for buildings to have attributes that promote health, safety and wellbeing. The discussion document focuses on the new directions for the Building Code.

• We need better quality buildings, fit for their purpose.
• The Code should be visionary, taking into account future needs.
• The Code needs to take measurable steps forward.
• The Code should be flexible and encourage innovation.
• The Code should be simple enough for people to be able to understand how to achieve their minimum standards.
•  Information about standards should be accessible, with plenty of guidance documents and
  multimedia presentation.
• The Code should be linked to a comprehensive training programme.

The Department has also been working with other government departments since 2004 and will be aligned with related policy and strategies, including:

• New Zealand Housing Strategy work on sustainable cities and
  the Urban Design Protocol, which is part of the Sustainable Development for New Zealand Programme of Action
• National Energy Efficiency and Conservation Strategy
• New Zealand Waste Strategy
• New Zealand Disability Strategy
• Positive Aging Strategy
• Healthy Housing Programme.

Addressing new purpose and principles

In implementing the review of the Building Code, and also the wider changes introduced by the Building Act, the Department has a very clear objective: the people of New Zealand have access to quality homes and buildings that meet their needs and reflect our New Zealand environment. In its purpose statement, the Building Act restates some existing, and introduces some new, requirements in regard to sustainable development, and for buildings to have attributes that promote health, safety and wellbeing. The discussion document focuses on the new directions for the Building Code.

In implementing the review of  the Building Code, and also the  wider changes introduced by the  Building Act, the Department has a very clear objective: the people  of New Zealand have access to  quality homes and buildings that  meet their needs and reflect our  New Zealand environment. In its purpose statement, the Building Act restates some existing, and introduces some new, requirements in regard to sustainable development, and for buildings to have attributes that promote health, safety and wellbeing. The discussion document focuses on the new directions for the Building Code.

Building for a changing world

In the 15 years since the Building Code was introduced, our needs have changed dramatically. So too have building systems and technology. For example, one issue is the recent major trend towards inner city and apartment living, particularly in Auckland. Many other cities and towns are also experiencing increases in intensive housing development. The Building Code needs to take account of people living in intensified environments in terms of noise levels, space requirements, ventilation, and other features of buildings affecting wellbeing.

Other population and dwelling trends include a projected rise in the number of households with occupants aged 65 and over, changes in house and apartment sizes, a movement towards all buildings being accessible to all people, rates of homeownership and affordability. Environmental drivers need consideration in the review as the construction and use of buildings take significant resources, energy, water and materials.

The review will also consider whether buildings need to be designed for a greater range of weather conditions brought about by climate change. Materials and technologies used in construction are evolving quickly. Building systems and products, and building standards and design are increasingly international. Commercial and industrial expansion also has implications for buildings.

Many of the questions posed to the sector in the discussion document are based around these issues.

Scope and content of the Building Code

The proposals for the scope and content of the Building Code have been set out in four main themes based on the Purpose section of the Building Act. These are:

• Safety
• Health
• Wellbeing
• Sustainable Development.

The discussion document focuses on the new things being proposed, as the current Building Code already addresses many performance requirements for buildings. However, comments about the current provisions of the Building Code are also welcomed.

The quality and performance of a building depends on interactions between a large number of building features. The performance criteria for each feature need to be a careful balance of a large number of factors, so the review will consider quality and affordability, and regional considerations.

Preview of Safety, Health, Wellbeing and Sustainable Development

This article provides only the briefest overview of the scope and content proposed by the review of the Building Code. You are encouraged to view the discussion document itself. You can obtain a copy by ringing the Department on 0800 242 243 to order a copy, or it can be viewed online at www.dbh.govt.nz

Safety in the Building Code

Proposed objective for safety

The Building Act (section 3) has a requirement that people who use buildings can do so safely. Safety is not a new requirement of building regulation, but has been reconsidered in light of the new Act. The proposals divide safety into three parts from the perspective of building features: structural safety; fire and emergency safety; and safety in use. They consider how the Building Code could address attributes to make buildings more resilient to hazards, such as tsunami, coastal erosion or landslide.

Health in the Building Code

Proposed objective for health

The Building Act requires that people who use buildings can do so without endangering their health, and that buildings have attributes that contribute appropriately to the health of the people who use them. Like safety, health is not a new requirement of building regulation, but we do need to be certain that the health requirements of the new Building Code meet society’s expectations and take into account environmental factors. Health is influenced by space, hygiene (personal and food preparation), water quality, hazardous materials and substances, noise, air quality, temperature and heating systems, and dangerous emissions.

Wellbeing in the Building Code

 Proposed objective for wellbeing

A greater emphasis has been placed on the needs of consumers (occupiers of housing and other dwellings).

Identifying the wellbeing aspects of buildings is complicated as the effects derived, such as comfort and convenience, are subjective. Wellbeing in the built environment is influenced by noise, space, air quality, air temperature, lighting, water quality, visual awareness of the external environment, access to outdoor spaces, privacy, outlook, sense of security, common spaces (particularly in apartment blocks), proximity to adjacent buildings, access to facilities, provision of natural light, and whether the building meets the cultural requirements of the intended occupants.

To date, there is a higher level of regulation (though not necessarily building regulation) for commercial buildings rather than domestic buildings. For example, noise levels at property boundaries and proximity to neighbourhood buildings, are the responsibility of local authorities under the Resource Management Act 1991, rather than the Building Code. The review questions whether more can be achieved through the Building Code.

Sustainable development in the Building Code

Proposed objective for sustainable development

Sustainable development can be defined as ‘meeting the needs of the present without compromising the ability of future generations to meet their own needs.’ Successful sustainable development is measured in terms of social, economic and environmental benefits. Sustainable building will reduce the adverse human impacts on the natural environment, while improving quality of life and economic wellbeing. To achieve sustainable buildings we need to apply principles of resource and energy efficiency, healthy buildings and materials, and ecologically and socially sensitive land use to the Building Code.

Sustainable building requires a whole-building’ systems approach that considers the building’s entire life cycle from planning, design and construction to operation and maintenance, renovation, and demolition or building reuse. This is an area that is difficult to regulate through performance based standards. However, the proposals in the discussion document consider sustainable development around durability, energy efficiency and the use of renewable sources of energy in buildings, water efficiency and water conservation, the efficient use of materials and material conservation, protection of other property, and buildings with a cultural, historical or heritage value.

Proposed structure for the new Building Code

One of the purposes of reviewing the Building Code is to improve the usability of the Code through providing more clarity about the standards buildings must meet and guidance on how those standards can be met. The discussion document proposes a new structure for the Building Code, organising its various parts into a hierarchy of objectives and performance criteria that combine to ensure the purposes of the Building Code and the Building Act are being met.

New Zealand has had a performance-based Code since 1992. We intend to continue with the development of a ‘secondgeneration’ performance-based Code with improvements to the way in which the performance criteria are stated. We propose adopting an extension of the Nordic model to provide greater clarity in the description of the performance criteria. Discussion in detail about performance criteria is not part of this discussion document, but the framework presented in the document illustrates how the performance criteria are linked to the objectives.

The proposed hierarchy aligns with a model proposed by the Inter-Jurisdictional Regulatory Collaboration Committee (IRCC) and with the model that Canada (currently) and Australia (intends to) use. It provides a framework for the rigorous analysis and description of performance standards. The discussion document also includes a section on documents that support the Building Code.

The full building compliance system relies on other documents to interpret or apply in a practical way the performance criteria set in the Code. (These are Tiers VII and VIII in the IRCC model.) For each performance criterion in the Building Code we propose a method by which that performance may be designed and verified – that is a Verification Method. However, we propose that Acceptable Solutions be segmented according to types of building. More information on this, together with examples, can be found in the discussion document.

Making a submission

We now have an opportunity to shape the future of our buildings and ensure they deliver the right social, economic and environmental outcomes for us as building users and as a nation. The review represents a significant leap forward in what a Building Code can do for the country. Once the review is completed, there will be different performance standards for buildings. We therefore encourage everyone in the building sector to view the discussion document. You are welcome to make a submission on all or part of the proposals. Submissions can either be made by returning the submission form at the back of the document itself, or online through an interactive submission form on the Department’s website. To obtain a copy, call us on 0800 242 243 or visit www.dbh.govt.nz