Meansofescapefromfire,passivefeatures;Adiscussionpaper

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Meansofescapefromfirepassivefeaturesandreasonable
grounds.Codecomplianceissues;

ADiscussionPaper;thisisaworkinprogressandsubjectto
updates

(comments,critiqueandfeedbackisappreciated)
1. Introduction;

Recentlytherehasbeenatrendtoincreasetheclaimforweathertightandotherbuildingdefect
issuestoincludetheworkthatmightberequiredasaconsequenceofthebuildingconsentforthe
repairsthatunders112mustincludeanupgradeformeansofescapefromfire.Thishascoincided
withchangestothefiresafetyclausesanddirectionsastowhatisrequiredtoassessabuildingifit
hasaspecifiedsystemthatrequiresacomplianceschedule.

Theintentionofs112hadbeentoacceptnoncomplianceofolderbuildingsbecauseofthe
economiccosttoupgradeforthecodeclausesbutmakinganexceptionforMeansofescapefrom
fireclausesandalsodisabledaccessifapplicable.Thisrecognisedthatmanyoldbuildingscouldhave
poorfiresafetyfeaturesandwhenabuildingwasbeingworkedonthiswasagoodopportunitytoat
leastensurethatbasicescaperoutesandwarningsystemswereinplace.Itwasacceptedthatother
fireclausessuchasprotectionofotherpropertyandverticalandhorizontalfirespreadwerenot
generallypartoftheserequirements.S112onlynominatedtheMeansofEscapeclausesandthis
referenceratherthantotheFireSafetyclausesingeneralindicatesthatparliamentintendedthisto
beanarrowfocus.(MeansofEscapeisadefinedtermintheactandthisisdiscussedlater.)

Duringrecladworkinrecenttimesitisnotuncommontofinddefectsinthefireandsound
separationsinmultidwellingbuildings.Thesecanrangefromnonexistentseparationstoholesto
damagetofireratedwallsfromsubsequentworkorpenetrationsnotsealedcorrectlywhenbuilt

Claimshavegenerallytwostrands;

1. AllegationofbreachesofthecodeinparticulartheCfiresafetyclause

Thishastwoparts;

a. AllegationsthatthebuildingworkwasnotcomplianttoCAS1asconstructedinsay
2005.
b. theworkwasnotcodecompliantwhenbuiltandisnottoday.

2. Considerableworkthatisthenbeingclaimedtobedonetosatisfythes112Meansof
EscapefromFireupgraderequirementstriggeredbyabuildingconsentapplication.

Thesearesimilarargumentsashavebeenruninleakyclaimsandallowedovertheyears.Itmustbe
rememberedthatNZs10yearlongstopperiodforclaimingforbuildingdefectsencouragesacatch

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allmentalitywhenaclaimismadeasthismaybetheonlychanceforabuildingownertogetaclaim
settledthroughthecourts.

Duringtheleakydecadejustpasttherewaslittlediscussionofcodecomplianceexceptforan
underlyingbeliefthatE2requiredbuildingstonotleakandB2Durabilityrequiredthemtobe
durablesoleakyhomeswasperceivedasafailureofboth.

Therewaslittleattempttodefendtheconstructionparticularlyfromcouncilwhoweremore
focusedonimplicatingotherpartiesthandefendingtheirposition.

TherewasnodiscussiononwhetherE2allowedforaleakthatcouldberepairedorwhatconstituted
NormalMaintenanceunderB2.RegularmaintenanceisnowrecognisedinE2As1theacceptable
solutionwhichmeansthedeemedtocomplysolutionhasanallowanceforfailureandpremature
failurebutthishasyettobearguedincourtasadefence.

Thepossibilityoffailureofacompliantsolutionandwhoisresponsibleforongoingcompliance
shouldhavebeenarguedatthefirstproceedingsbutitwasnotdone(ordonesuccessfully)and
precedentswerethensetandbuilton.(ColleenDickscaseetc)

3. Thebasisofaclaim.

Councilusuallyhaveaparticularclaimagainstthembasedonthedutyofcaretheyowetohome
owners.Thissamedutyofcareisnotappliedtocommercialownersastheyhavewaystomanage
economiclossandrisk.Councilsstatementofconsentandcompliancearebasedonwhetherthere
wasreasonablegroundstoissuetheCCCorconsent.

DuetolongstopperiodclaimsarenowcomingforwardforBA2004consents.Iftheconsentwas
issuedundertheBuildingAct2004thentheCCCissuedthatthebuildingworkonreasonable
groundscompliedwiththebuildingconsent.Thebuildingconsentwasissuedonthebuildingwork
complyingwiththebuildingcode

Thereasonablegroundsargumentisanimportantaspecttothis.

Firestopstogapsandpenetrationaregeneralrequirementscommonlyinspectedandunderstoodto
maintainsmokeandfireseparations.

Failuretoprovidetheseisafailureoftheacceptablesolutionbutitmaynotbeafailureofthecode
clauseifthedesignandconstructionmitigatesthedefect.Providingstopsensurescompliancebut
theiromissionisnotautomaticallyabreachofthecodeclause.(iedeemedtocomplywith
prescribeddetailsdoesnotmeannoncompliancewiththecodeclausebutcanonlymeanonlythe
acceptablesolution).

Acceptablesolutionsareworstcasesolutionsandanasbuiltassessmentisrequiredtoestablisha
breachofthecodeclausewhichmustalsobealikelihoodofafailureoftheperformancecriteriaand
thefunctionalrequirement.

Otherpartiesmayalsooweadutyofcarebutmayhaveacontractualrelationshipaswell.

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4. ThecurrentBuildingconsentapplication;

Priortoproceedingsaconsentisappliedfor.Theemphasisseemstobeonupgradingthebuildingto
thepresentrequirements.Thisisperceivedascompliancewiththecurrentacceptablesolutionoras
nearlyasreasonablypractical(ANARP)whichshouldbeacommonsenseapproachtowhatisthere
andwhatismissingandanappreciationofwhatcouldbedonebutisinsteadperceivedasa
mandatoryrequirementtoclosethegap.

S112onlyrequiresupgradewithmeansofescapefromfire.Butthequestionsareraisedastowhat
thiscoverswhenotherissuesaresuspectedorapparentandthelevelofcertaintyrequired.

5. Theconsentissues

Thebuildingworkisdefinedintheactastheworkforinconnectionwiththeconstruction
alterationdemolitionorremovalofabuildingortheworktothebuildingnotthebuildingitself
unlessthebuildingworkisanewbuilding.

Adetermination201080statedthat;

Dangerousisdefinedintheactas;

121 Meaning of dangerous building

(1) A building is dangerous for the purposes of this Act if,
(a) in the ordinary course of events (excluding the occurrence of an
earthquake), the building is likely to cause
(i) injury or death (whether by collapse or otherwise) to any
persons in it or to persons on other property; or
(ii) damage to other property; or
(b) in the event of fire, injury or death to any persons in the building
or to persons on other property is likely.
(2) For the purpose of determining whether a building is dangerous in terms
of subsection (l)(b), a territorial authority
(a) may seek advice from members of the New Zealand Fire Service
who have been notified to the territorial authority by the Fire Service
National Commander as being competent to give advice; and
(b) if the advice is sought, must have due regard to the advice.

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Socouncilcannotactunlessthebuildingisdangerousorinsanitaryandtheycannotactbecause
theythinkthebuildingisnoncompliantandtheownerchoosestheextentofthebuildingworkif
donetoabuildingbutcannotbemadetoupgradeforanycodeclauseexceptforMeansofescape
fromfireanddisabledaccessunders112.

Strictlycouncilsarenotthearbitersofcodecompliance;Unders19thisisthedomainofthe
compliancedocuments,productcertificationandthedeterminationprocessunders178.Itisamoot
pointbutafailuretobesatisfiedisreallyjustthatandcouncilsdonotdeterminenoncompliance
whichrequiresevidenceofabreach.Complianceisnotdeterminedbycouncilbuttheydoneedto
besatisfiedonreasonablegroundstoissuethebuildingconsentandtheCCCthatfollowsthe
completionofthework.Ifthereisadoubtastocompliancetheappropriateresortistothe
determinationprocessunders178.

Councilpolicyisoftenriskaverseanddrivenbycouncilselfinterestratherthanthestrictletterof
thelaw.Tobefairthecourtshavebeensomewhatunfairinattributingliabilitytocouncilwhich
whilegenerallyatalowerlevelsay20%underjointandseveralinNZlawtheratepayeroftenends
uppickingupallthecosts.

6. Thecodeclauses;

S17ofthebuildingcodesaysthatthebuildingworkhastocomplywiththebuildingcode.The
buildingworkistheworktothebuildingandthishastocomplynotthebuilding.

Therehastoalsobeadistinctionbetweentheobjectiveofthebuildingactthatthebuildingshall
complywiththebuildingcodeonreasonablegroundsandtherequirementforbuildingworkto
comply.

Codeclausesaremadeupof3partstheobjective(theaim)thefunctionalrequirement(thething
thebuildingmustdotosatisfytheobjectiveandperformancecriteria(thequalitativeand
quantitativecriteriathatmustbemettosatisfythefunctionalrequirement

TheCclausesarecontainedinthebuildingcodeandareunders17requiredtobecompliedwith
whenbuildingworkisundertaken.(thisappliestobothconsentedandunconsentedwork.)

Unders22Compliancedocumentsaresolutionsdeemedtocomplywiththecodedclauseandunder
s25theymaybeacceptablesolutionsorverificationsmethodsbutcannotcontaincontractualor
commercialrequirementsor(b)relatetoregulatoryapprovalsorwaiversor(c)beinconsistentwith
thisactorregulationsands405to413(mayreferencestandardsandcodesofpractice)

VerificationmethodsaremethodsthatverifycompliancesuchastestsandstandardsThisisnot
applicabletofireasonlyC/VM1appliestosolidfuelappliances.

Tosatisfyacodeclausethedesignermaynominateanacceptablesolutiontodemonstrate
compliance.Theseareprescriptivesolutionsthataredeemedtocomplyunders19.Thereare6
waystocomplyanacceptablesolutionisawaytocomplybutasstatedins23doingsoisnotthe
onlywaytocomply.Inotherwordsanacceptablesolutionisdeemedtocomplybutnoncompliance
withoneisnotnecessarilynoncompliancewithacodeclause.

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7. TheCclausesfiresafetyclausesandtherelevantacceptablesolutions;

Then;

Thecodeclausefiresafetyclausescurrentattimeofconstructionin
2005wereC1C4.

Thisisoneofthefewclausestobesignificantlychangedsince1992

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8. Thenewfireclauses;
Whattheymean?Theclauseswerechangedin2013;C1nowcontainstheobjectivesforalltheCclausesThefunctionalrequirementswere
rearrangedThenewclausearemorequantitativeandsetverifiablenumberswhereastheoldclausesweremorequalitativeandrequirements
wereappropriate,adequateandlikely.

ThereisnoclausecalledMeansofEscapefromFire(astherewaswiththeC2clausecirca2005)

ThereisMovementtoaplaceofsafetywhichcouldbeunderstoodtomeanthesame.Ifsotheapplicationshouldbesimilar.

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9. Theacceptablesolutionwasalsorevisedatthistimeandisnowpresentedasan
acceptablesolutionfortheparticularpurposeRiskgroup.

CAS2asanexamplestates

Thisformatmakes
assessmentssomewhateasierwiththemeansofescapefromfireforexampleisnowpart3of

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theacceptablesolutionandincludesfireseparationssuchas3.9.5(butthisisnotallfire
separations)

AnacceptablesolutionisadeemedtocomplysolutionunderthebuildingAct.Theseare
prescriptivedocumentsthatarebasedonhistoryandexperienceinNZtogetherwithstandards
acceptedintheindustry.Theymaynotbeverifiablesolutionsbutstandasacceptablestandards.
Theyareunderstoodtobeworstcasesolutionsthatarerobustandallowforarangeofdesigns
andcomplexityandchoiceofmaterials.Theyhaveinherentcontingencyinthem.

Itisamistaketoconsiderafailuretocomplywithaprescriptiverequirementofanacceptable
solutionasabreachofacodeclause.Theworstthatshouldbesaidisthatnoncompliance
meansthatthesolutioncannotbereliedontodemonstratecompliance.Abreachrequires
evidentialbasisforfailureofaperformancecriteriaofarelevantcodeclauseoratleasta
likelihoodthatthiswilloccur.

Inthiswaythereisasignificantseparationbetweenafailuretocomplywithanacceptable
solutionandthepointthatthisbecomesabreachofthecodeclause.

S17forexamplerequiresbuildingworktocomplywiththebuildingcodebutthisdoesnotmean
complywithanacceptablesolutionunlessitisreferencedunders20astheonlysolution.This
provisionhasyettobeinvokedinNZ.

Likewises40makesitanoffenceforapersontobecarryingoutbuildingworkexceptin
accordancewithabuildingconsent(andanoffencenottounlessexemptedunders41).

Thereisnooffenseattributedtoafailureunders17.

Whenconsideringafailureofmeansofescapethesamedistinctionsneedtobeapplied.

10. S112

TheBuildingAct1991s8specificallyexcludedexistingbuildingfromcompliancewiththebuilding
code.Thiswasnotstatedinthe2004Actbutisreflectedinthepowersofcouncilandpartsofthe
Act.S112providestheexceptionandapplieswhenanownerelectstoapplyforabuildingconsent
foralterationstoanexistingbuilding.S112limitscouncilpowertorequirecertainworktobedone.

Theintentionofs112wastocapturebuildingswithinadequatemeansofescape(firealarmsand
escaperoutes)andgetthosecriticalfeaturesintobuildingstomakethemsafernotcapturethe
minordefectsinrecentwork.Havingsaidthateveryprudentbuilderandownerwouldaddressany

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issuestheyfindinthecourseoftheworkbutthisshouldntbethedriverfortheworkinthefirst
place.

Thisisnodifferentfromtheownerwhoelectstomaintaincompliancebydiligentrepairsand
maintenanceandthedecisionremainswiththem.

Thesectionprotectsownersofbuildingsfromcouncildemandstoupgradeandmakesupgrade
optionalandtheprerogativeoftheowner.Unlessdangerousorinsanitarydefinitionsapply(in
whichcaseworktomakenotdangerousorinsanitaryisthelimitofcouncilpower.Apartfromthis
thecouncilcannotdetermineorrequireascopeofwork.

Alterations to existing buildings

112 Alterations to existing buildings
(1) A building consent authority must not grant a building consent for the
alteration of an existing building, or part of an existing building, unless the
building consent authority is satisfied that, after the alteration,
(a) the building will comply, as nearly as is reasonably
practicable, with the provisions of thebuildingcode that relate to
(i) means of escape from fire; and
(ii) access and facilities for persons with disabilities (if this is a
requirement in terms of section 118); and
(b) the building will,
(i) if it complied with the other provisions of the building code
immediately before the building work began, continue to comply with those
provisions; or
(ii) if it did not comply with the other provisions of the building code
immediately before the building work began, continue to comply at least to
the same extent as it did then comply.
(2) Despite subsection (1), a territorial authority may, by written
notice to the owner of a building, allow the alteration of an existing building,
or part of an existing building, without the building complying with
provisions of the building code specified by the territorial authority if the
territorial authority is satisfied that,
(a) if the building were required to comply with the relevant
provisions of thebuildingcode, the alteration would not take place; and
(b) the alteration will result in improvements to attributes of the
building that relate to
(i) means of escape from fire; or
(ii) access and facilities for persons with disabilities; and
(c) the improvements referred to in paragraph (b) outweigh any
detriment that is likely to arise as a result of the building not complying with
the relevant provisions of thebuildingcode.

TheexceptionsareMeansofEscapefromFireandDisabledaccess.Theotherclausesonlyneedto
continuetocomplywiththeotherclausestotheextenttheycomplyalready.Themeaningofthis
clausehasbeensettledlawbydetermination200310

Disabledaccessandfacilitiesgenerallyonlyappliestopublicbuildingandisnotconsideredhere.

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UpgradeofMeansofescapefromfirecertainlymeansinstallescaperoutesinabuildingthatdoes
nothavethemandthisisacommonproblemwithpolderbuildingbuiltbeforeeventhemostbasic
firerequirementswererequired.Itisarguablethatitshouldevenbeconsideredwherecompliance
hasbeenconsideredanddesignedforpost1992andthebuildingcodeconsideredbecausethere
mustneabasiclevelofcompliance.Whensmokealarmswereintroducedasmandatorythiswas
includedinmeansofescapetocaptureexistingdwellingsinNZ.

11. WhatdoesMeansofEscapefromfiremean?Whatarethemeans?

Meansofescapefromfire,isadefinedtermandthismustbereferredtoandinformthe
subsequentinterpretationandconclusions.

means of escape from fire, inrelationtoabuildingthathasafloorarea,

(a) meanscontinuousunobstructedroutesoftravelfromanypartofthe
floorareaofthatbuildingtoaplaceofsafety;and
(b) includes all active and passive protection features required to warn
peopleoffireandtoassistinprotectingpeoplefromtheeffectsoffireinthecourse
oftheirescapefromthefire
Thepassivewarningfeaturesarethealarmsandpassivefeaturestoprotectpeoplefromtheaffects
offireinthecourseoftheirescapefromthefirearethoseassociatedwiththemeansofescape.
Thatisthefireseparationsthatfromtheescaperouteiftheyaretherebutnotthefireseparations
thatsatisfyotherclausessuchasspreadoffireandprotectionofotherproperty.

Theaffectofadefinedtermmeansthatwherethistermisusedintheactthemeaningmustbe
applied.Themeaningofmeansofescapefromfiremustbesomethinglessthatallthefireclauses
oritwouldsimplysaythisandtheneedtodefinethemeanswouldnotberequired.

Thekeyinmyviewistounderstandthattheconsiderationistothemeansthatallowtheescape

Itdoesnotincludeallthefireclausesbutonlythatrelatedtothemeansofescapefromfire.Ifit
meantallthefireseparationsitwouldsaythis,ifitmeanallfireseparationitwouldnothaveto
stateinthecourseoftheirescapefromthefire(oritcouldjustsayfromthefire)

PassivefireseparationsassociatedwiththeMeansofEscapeonlyneedtobeconsidered,these
includethefirewallsthatformasafepath,andfireandsmokedoorsinthatpath.Itincludesthefire
alarmsthatwarnpeopleofthefireandallowthemtomaketheirescapeincludingsmokedetectors
requiredtoprotectsleepingspacesbutwhichmanyexistingpropertieslack.

S112alsoconsidersmeansofescapefromfire.

Itstates;
(1) A building consent authority must not grant a building consent for the
alteration of an existing building, or part of an existing building, unless the
building consent authority is satisfied that, after the alteration,
(a) the building will comply, as nearly as is reasonably practicable, with the
provisions of thebuildingcode that relate to
means of escape from fire

Ifthereareprovisionsidentifiedthatdontcomplythen(b)applies

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(b) the building will,

(ii) if it complied with the other provisions of the building code
immediately before the building work began, continue to comply with those
provisions; or
(ii) if it did not comply with the other provisions of the building code
immediately before the building work began, continue to comply at least to
the same extent as it did then comply.
Thismeansthatifthebuildingdidntcomplywiththebuildingcodebeforethealterationitdoesnt
havetoafterbutthattheworkcannotmakeitworse.Thisrequirementtoupgrademeansofescape
onlyappliestothemeansofescapeclausesandnotalltheclausessuchasprotectionofother
propertyandverticalandhorizontalspreadandsurfacefinishes(exceptforthefinishesinthe
escaperouteperhaps).

Surfacefinishisacontentiousareaassmokegeneratedfromafirecanintrudeintoescapepathbut
thenitisperhapsnottheclearunobstructedpathandnolongertheescaperoutefromfire.This
issueneedsfurtherconsideration.Inmyviewonlysurfacefinishesinasafepathshouldbe
consideredinrespecttomeansofescapeasthefire(anditsaffects)inotherpartsofthebuilding
arewhatweareescapingfrom.

12. WhatdoesAsNearlyasReasonablyPracticable(ANARP)mean?

(yettobeconsidered.)

Therequirementtomeetthecurrentrequirementsisallowedadiscretionunder'asnearlyas
reasonablypracticable'(ANARP)andprovideswriggleroomforreasonablegroundsanduncertainty
aswellasrecognisingthatinadequatemeansofescapewouldbeaddressedwhenabuildingconsent
wasappliedfor..

13. Specifiedsystemsandpassivefirefeatures
WhenspecifiedsystemsarepresentandacompliancescheduleistriggeredtheIQP
responsibleforannualchecksmustalsoconsidermeansofescape.Thisincludesthepassive
featuresassociatedwiththatmeansofescape.RecentMBIEguidancedocumentshave
confusedthisandcreatedambiguity
ThesestatethatfireseparationsareprescribedasspecifiedsystemsintheBuildingRegs
2005.Thisisstrictlynotcorrecttheregsstatethat;

15,Any or all of the following systems and features, so long

astheyformpartofabuildingsmeansofescapefromfire,andso
long as those means also contain any or all of the systems or
featuresspecifiedinclauses1to6,9,and13:
(a) systemsforcommunicatingspokeninformationintendedto
facilitateevacuation;and
(b) finalexits(asdefinedbyclauseA2ofthebuildingcode);and
(c) fireseparations(assodefined);and
(d) signsforcommunicatinginformationintendedtofacilitate

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evacuation;and
(e) smokeseparations(assodefined).
(emphasisadded)

1to6,9and13includes;

Schedule 1 Specified systems

1 Automatic systems for fire suppression (for example, sprinkler
systems).
2. Automatic or manual emergency warning systems for fire or
otherdangers(otherthanawarningsystemforfirethatisentirely
withinahouseholdunitandservesonlythatunit).
3. Electromagnetic or automatic doors or windows (for example,
onesthatcloseonfirealarmactivation).
4.Emergencylightingsystems.
5.Escaperoutepressurisationsystems.
6.Risermainsforusebyfireservices.

9.Mechanicalventilationorairconditioningsystems.

13.Smokecontrolsystems.
Sopassivefeaturesonlyneedtobeconsideredforacomplianceschedulewhere
theyformpartofthemeansofescapeandtheyinvolveabuildingwithaspecifiedsystem
notedin16,9and13above.

There has been a move to include all fire separations as they indirectly provide
protection from fire and allows an occupant time to escape but this is the function of
alarmsintheirproperty.Neighboursareprotectedbyotherpropertyandverticaland
horizontalspreadprovisionsandthesearenotthesearenotthemeansofescape(unless
theyactuallyformthemeans(providesafepathsetc)).Fireseparationsassociatedwith
openpathsbytherenaturearenotdependentonfireseparationsfortheirperformance.
Concernsrelatedto

Thismisinterpretation(thatallfireseparationsneedtobeconsideredbecause
theyarealwaysinthemeansofescapeorweneedtoprotectpeopleatthestartoftheir
escapeaswell)isbecomingaprevailingviewandwasexpressedinrecentMBIE
determination2016048ShirleyRd.
(https://www.building.govt.nz/assets/Uploads/resolving
problems/determinations/2016/2016048.pdf)

This was expressed as a consensus among experts that was not necessarily the
case. The issue was not discussed in detail in this determination and the meaning of

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means of escape not considered (except for reference in appendix). This is a serious
omission

A higher court ruling is needed to clarify and uphold the correct meaning of
means of escape and relationship of fire separations to these means. Until the law is
settledtheissueisliveandopentoquestion.Thereisalwaysdangerthatpoordecisions
set the bar and to some extent this is what happened with leaky homes with very few
decisions actually compliance based but often predicated on the assumption that the
coderequiredthatbuildingshallnotleak.

14. ReasonableGroundsmeaning;

Recentlythiswasthesubjectofsubmissionsduringthecourseoftheappealagainstthe
determination2015/073(HuhanaDavisAucklandCouncilCIV20150041721)whereweargued
thatcouncilhadnotestablishedreasonablegroundstoissueaNTF.

Thecouncillegalsubmissionincludedthefollowingargument;

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Weacceptthisunderstandingofreasonablegroundsanditshouldbeconsistentlyappliedtoall
instanceswhenthisthresholdisreferencedintheBuildingAct.

ItfollowsthatinthecaseoftheissueofaCCCthatthebasisforissuingtheremustbeanobjective
andcrediblebasisbutthisdoesnothavetobecompellingorcertaingroundstobejustifiedfor
issuingaCCC.Inotherwords;thegroundsforissuingaCCCaresatisfactiononreasonable
groundsandnotcertaintyorsomeabsoluteproof.

Thisshouldbeunderstoodasbasedontheinspectionsthatacouncilinspectorisexpectedto
undertakeandsupportedbytheinspectionsatdifferentstagesofconstruction.Itcannotbean
invasivedestructiveinvestigationthatnoownerwouldtolerateinanewbuilding.

ItfollowsthatthiscanbearelativelylowlevelofsatisfactionbutaCCCcouldnotbeissuedifthere
wasevidenceoffailureorobjectivenonperformanceorevidenceoffailureonavisualinspection.

MembersoftheNewZealandBuildingSurveyorsInstitute,RCISandotherexpertshaveconsiderable
skillandexperienceinassessingperformanceanddamageinexistingdwellings.Thisisfoundedon
recentleakyhomesassessmentsthatestablishedinvasiveinspectionswithdestructiveinvestigation
asthebasisfortheirevidentialreports.

Thehighlevelofproofrequiredtoestablishdamagescopeofrepairforalegalclaimarenot
appropriatetothequitedifferenttestfortheissueofaCCCorabuildingconsent.Thisisbecause
absoluteproofofperformanceisimpossiblewithoutremovingallthecladdingandseeingallthe
areastoverifywhathasbeenhappening.Thisisacriticalfactorincouncilactionsthathasbeen
poorlyarguedinleakyclaimsbutIamnotresponsibleforthestrategiesrunincouncilsdefenceto
datebutwedolivewiththelegacyofshortsightedlegalopinionsthatnowmanifestasriskaverse
policies.

Isitreasonableforacouncilinspectortoundertakeacomprehensiveinvasiveinvestigationto
establishperformance(ornonconformance)?

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 Meansofescapefromfire,passivefeatures;Adiscussionpaper
r e v i s e d N o v 2 0 1 7 Page23of24

15. Conclusion;

Defectsandimperfectconstructionisnotevidenceofacodebreachunlessthiscanbe
demonstratedthatitcompromisesthecodeclausetosuchanextentthattheperformancecriteria
cannotbesatisfied.Thistestistothebuildingandnotthebuildingelement.Whilecompliancewith
anacceptablesolutiongivesconfidenceinthatsatisfactionnonconformitywithanacceptable
solutionrequiresafurtherassessmentofthebuildinganditsparticularattributes.Acceptable
solutionsareworstcasesolutions.WhileIacceptthatthishigherlevelofassurancecertainly
satisfiescomplianceitistoaveryhighlevelandcertaintythisisnotthelevelrequiredfor
reasonablegrounds.Theuncertaintythatremainsinallconstructionandinherentinanydesign
forwhatevercodeclausemustbesubjecttocommonsenseandaproperriskassessmentofwhatis
reasonableandlikely.

Intermsofthefireclausestheperformancecriteriaarenowveryquantitativeandrequirean
analyticalapproachbasedonsciencewhichisnoteasilyundertaken.Butanassessmentmustat
leastincludethefactorsthatmitigatetheconcernsthatmaybepresent.Thisisparticularlythecase
withmattersrelatingtomeansofescapefromfirewhichisrequiredtobeconsideredunders112
andthepassivefeaturessuchasfireseparationsandwarningsystemsassociatedwiththatMeansof
Escape.

Aproperappreciationforwhatconstitutesismeansofescapeisrequiredtoproperlyinformthe
inspectionoffireseparationsthatareassociatedwithspecifiedsystemsandpartofcompliance
schedules.

Weexpertsarecriticizedasmuchforwhatwemissasforwhatwemaysee.Whileabuilding
surveyormayhitthemoneybecauseheknowsthelikelyplacesforfailureitisverydifficultto
establishanaffirmationofcertaintyinperformance.

Inotherwordsweareabletoprovenoncompliancewithdiscreteevidencebutproving
complianceisimpossiblewithoutsignificantdamagetothecladdingtoproveitisntbroke.This
lackofcertaintyanddoubtisthedomainofnormalmaintenanceandanownersongoingdutyto
maintaincompliance(attheirownrisk).

AnothercomplicationistheconceptoffuturelikelydamageallowedforintheWHRSactthatwhile
intendedtocoverinevitabledamagefromcurrentleakswasattimesallowedtobenomorethat
futurelikelyleakswithlikelybasedonexpertopiniondifficulttorefute.Italsogavelicenceforthe
hiddendefectsyettobediscovered(ornot).

Abreachofcompliancemustinreturnbeanevidentialbasisthatismorethanjustthepossibilityof
noncompliancebutmustdemonstratealikelihoodoffailureofthecodeclause.Thisisdifferent
fromthereasonablegroundsthatacouncilisonlyrequiredtoestablishbutforacontraventionto
occurthebreachmustbequantifiableandevidentiallybased.

Thetestofnoncompliancemustthenalsoinvolveanevaluationofwhetherthereasonablegrounds
ofsatisfactionexistedandthefailureofcompliancethatifitfallsintotheareaofcertaintymust
becometheresponsibilityofthecurrentowneraspartofnormalmaintenanceandregular
maintenancerequiredtomaintainthelevelofcompliancethattheownerrequiresastheir

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Phone:094460052|
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 Meansofescapefromfire,passivefeatures;Adiscussionpaper
r e v i s e d N o v 2 0 1 7 Page24of24

prerogativeunderthebuildingact.Thiscannotbeimposedonanowneranditfollowsifanowner
choosestoupgradethenthisshouldnotfalltootherpartiesinproceedings.

Thissameevaluationshouldbemadetos112andmeansofescapewhichmustbebasedonproper
interpretationofwhatmeansofescapefromfiremeansbutalsoallowsforimperfectconstruction
anduncertaintyaslongasthebuildingisnotdangerous.

Thismustbethebasisofanyclaimalso.

(Thisdiscussionpaperisaworkinprogressandwillbeupdatedfromtimetotime.Nov2017)

A L Building Consultant Ltd

Phone:094460052|
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