Operating Protocol - Tier framework to support standards in the Building Code system
A combination of tier status and contextual factors will support programming of updates to standards used in the Building Code system.
Application
This protocol outlines the approach used to guide decisions about priorities for the regulator in the maintenance or development of both New Zealand and joint New Zealand/Australian standards, relevant to the Building Code and its associated supporting documents (acceptable solutions and verification methods).
This document was developed in 2021 and will be applied in subsequent decision-making.
When to use the Protocol
This protocol is intended to support planning and decision-making for upcoming standard update projects, while work continues with the sector and Standards New Zealand to develop strategies for managing and maintaining the broader suite of building and construction standards.
Importance of updating standards in the Building Code System
The Building Act 2004 section 405 provides for the citation of standards and incorporation into regulations (e.g. the Building Code), acceptable solutions and verification methods. This essentially allows for detailed information, arrived at through a formal process, to be included in these regulatory instruments.
In ensuring that the Building Code and compliance pathways keep pace with changing trends, demands and technology, it is important that the content of the referenced standards are maintained, and the citations within the acceptable solutions and verification methods are updated accordingly.
Constraints on the update process
The process that facilitates an update to a standard can require considerable resources, for instance time contributed by participants. The way standards are used in the Building Code system does not differ between international and New Zealand standards. However, the building sector and regulator have the greatest ability to participate on committees and provide their perspective within a New Zealand based process. In addition, the Building Act 2004 section 406 states that updated standards are given legal status only after the reference has been updated in the Building Code system, following analysis of its regulatory impact. This also requires resource from the regulator and input from the sector.
Consultation on this protocol highlighted the need for clearer strategies around when and how to best use New Zealand resources across the different “types” of standards processes (international, joint Australia/New Zealand and New Zealand) in addition to making plans for the upkeep of existing New Zealand standards.
In the interim, this protocol provides a starting point for decision-making and a step toward more certainty and transparency.
Tier framework
The tier framework is used to identify a core set of standards (Tier 1 and 2), considered of high importance to the Building Code. All standards (or standard series where relevant) that are directly referenced in the Building Code, acceptable solutions or verification methods, are assessed against criteria before being grouped into three categories (Tier 1, 2 or 3). These criteria identify the extent to which the standard is likely to require closer involvement of the building regulator, given the importance of the content to the regulatory system, and the level of risk it addresses.
The criteria are:
- Risk severity. The standard is referenced in a part of the Building Code that addresses severe risks, either to life safety or significant economic losses.
- Contribution to the Building Code. The standard is critical to demonstrating compliance with the Building Code and addresses needs that are specific to New Zealand that are not available from other sources.
- Design focus. The scope of the standard focusses on the technical aspects of building design, rather than the manufacturing or testing of construction products, and so the standard development costs are unlikely to be covered elsewhere in the building industry. It is anticipated that Tier 1 standards will be exclusively related to building design. Tier 2 may contain standards that relate to the manufacture or testing of construction products that present a high risk of regulatory failure, and compliance with Building Code requirements cannot be demonstrated in an alternative way.
Those that score highest against the criteria are in Tier 1, followed by Tier 2, with the remainder in Tier 3. Current Tier 1 and Tier 2 standards are listed in Appendix A.
It was initially proposed that each "tier" would have a default level of MBIE support in respect to funding and involvement of the regulator. Following consultation MBIE has removed these default approaches, recognising that more planning is needed before this type of approach could be effectively implemented. In the interim, tier status helps to characterise importance of the standards to the Building Code and is an indicator of the likely level of support and priority. For upcoming proposals, the tier status will be considered in combination with a set of contextual factors. The contextual factors can also be used to put forward a project for consideration, irrespective of its tier.
The contextual factors are:
- Events, technology or new information that provide an opportunity for innovation or suggest a standard needs to be updated.
- Whether the standard is linked and/or required to support planned updates to the Building Code.
- Whether the standard will contribute to other strategic priorities.
- Updates that are initiated and co-funded by another party (including joint AS/NZS standards).
- The likely cost of the update relative to the potential benefit and/or synergies with other projects.
Further work
As signalled above, this operating protocol is intended to be revisited in the future once more work has been undertaken to develop strategies for the upkeep of all building and construction standards. MBIE will be working with the sector and Standards New Zealand to advance this.
Standards tier status
The standards within Tier 1 and Tier 2 can be viewed here.
The standards in Tier 3 comprise the remaining standards (approximately 300) that are primary references in the Building Code system (i.e. referenced directly in the acceptable solutions and verification methods).
Tier 1 standards for the Operating Protocol
These have been assessed against the criteria outlined in this Operating Protocol. The score for the standard against each criteria is indicated by:
- VH = Very High
- H = High
- M = Medium
- L = Low
Tier 1 - New Zealand standards
| Assessment Criteria Score | ||||
|---|---|---|---|---|
| Standard prefix and number (version will change over time) | Standard title | Risk Severity | Contribution to NZ Building Code | Design Focus |
| NZS 1170.5 | Structural Design Actions - Part 5: Earthquake design actions - New Zealand | VH | VH | VH |
| NZS 3101.1&2 | Concrete structures standard - The design of concrete structures | VH | VH | VH |
| NZS 3404.1&2 | Steel structures standard | VH | VH | VH |
| NZS 3604 | Timber-framed buildings | VH | VH | VH |
| NZS 4121 | Design for access and mobility - Buildings and associated facilities | M | VH | VH |
| NZS 4229 | Concrete masonry buildings not requiring specific engineering design | VH | VH | VH |
| NZS 4230 | Design of reinforced concrete masonry buildings | VH | VH | VH |
| NZS 4510 | Fire hydrant systems for buildings | VH | VH | H |
| NZS 4512 | Fire detection and alarm systems in buildings | VH | VH | H |
| NZS 4514 | Interconnected smoke alarms for houses | VH | VH | H |
| NZS 4541 | Automatic fire sprinkler systems | VH | VH | H |
Tier 1 - Joint Australia/ New Zealand Standards
| Assessment Criteria Score | ||||
|---|---|---|---|---|
| Standard prefix and number (version will change over time) | Standard title | Risk Severity | Contribution to NZ Building Code | Design Focus |
| AS/NZS 1170.0-3 | Structural Design Actions series (General principles; Permanent, imposed & other actions; Wind; Snow & ice) | VH | VH | VH |
| NZS 3603 (to be replaced by NZS AS 1720.1 & AS/NZS 1720.4 | Timber structures standard | VH | VH | VH |
| AS/NZS 2327 | Composite Steel – Concrete Construction in Buildings | VH | VH | VH |
| AS/NZS 1547 | On-site domestic wastewater management | H | VH | VH |
| AS/NZS 3500.1-4 | Plumbing and drainage series (Water services; Sanitary plumbing and drainage; Stormwater drainage; Heated water services) | VH | VH | VH |
Tier 2 standards for the Operating Protocol
These have been assessed against the criteria outlined in this Operating Protocol. The score for the standard against each criteria is indicated by:
- VH = Very High
- H = High
- M = Medium
- L = Low
Tier 2 - New Zealand standards
| Assessment Criteria Score | ||||
|---|---|---|---|---|
| Standard prefix and number | Standard title | Risk Severity | Contribution to NZ Building Code | Design Focus |
| SNZ TS 3404 | Durability requirements for steel structures and components | H | VH | H |
| NZS 3602 | Timber and wood-based products for use in building | H | VH | H |
| NZS 4211 | Specification for performance of windows | H | VH | VH |
| NZS 4214 | Methods of determining the total thermal resistance of parts of buildings | M | VH | VH |
| NZS 4218 | Thermal insulation - Housing and small buildings | M | VH | VH |
| NZS 4219 | Seismic performance of engineering systems in buildings | VH | H | M |
| NZS 4223.2 – 4 | Glazing in buildings series (Insulating glass units; Human impact safety requirements, *Design actions) | VH | H | H |
| NZS 4243.1 | Energy efficiency - Large buildings - Building thermal envelope | M | VH | VH |
| NZS 4303 | Ventilation for acceptable indoor air quality | M | VH | VH |
| NZS 4305 | Energy efficiency - domestic type hot water systems | M | VH | VH |
| NZS 4332 | Non-domestic passenger and goods lifts | VH | VH | M |
| NZS 4334 | Platform lifts and low-speed lifts | M | VH | M |
| NZS 4402 | Methods of testing soils for civil engineering purposes series (multiple parts) | VH | H | M |
| NZS 4431 | Code of practice for earth fill for residential development | VH | H | VH |
| NZS 4515 | Fire sprinkler systems for life safety in sleeping occupancies (up to 2000 square metres) | VH | VH | H |
| NZS 4517 | Fire Sprinkler Systems for Houses | VH | VH | H |
| NZS 4520 | Fire resistant door sets | VH | VH | M |
| NZS 6104 | Specification for emergency electricity supply in buildings | M | VH | VH |
| NZS 6703 | Code of practice for interior lighting design | M | VH | VH |
| NZS 8500 | Safety barriers and fences around swimming pools, spas and hot tubs | H | VH | M |
Tier 2 - Joint Australia / New Zealand standards
| Assessment Criteria Score | ||||
|---|---|---|---|---|
| Standard prefix and number (version will change over time) | Standard title | Risk Severity | Contribution to NZ Building Code | Design Focus |
| AS/NZS 2033 | Installation of polyethylene pipe systems | VH | VH | M |
| AS/NZS 2293.2 | Emergency evacuation lighting for buildings - Inspection and maintenance | VH | VH | H |
| AS/NZS 4020 | Testing of products for use in contact with drinking water | VH | H | M |
| AS/NZS 4284 | Testing of building facades | H | VH | M |
| AS/NZS 4671 | Steel reinforcing materials | VH | H | M |
Tier 2 - Australian standards
| Assessment Criteria Score | ||||
|---|---|---|---|---|
| Standard prefix and number | Standard title | Risk Severity | Contribution to NZ Building Code | Design Focus |
| AS 1668.1&.2 | The use of ventilation and air-conditioning in buildings series (Fire and Smoke control in multi-compartment buildings; Ventilation design for indoor air contaminant control) | VH | H | VH |
| AS 2159 | Rules for the design and installation of piling | VH | H | VH |
| AS 2293.1&.3 | Emergency escape lighting and exit signs for buildings series (System design, installation and operation; Emergency escape luminaries and exit signs) | VH | VH | H |