table of contents - queensland fire and emergency services · fire safety system be...

- Public - Guide to the Referral of Performance Solutions (Effective 102020)2

Table of Contents1 Introduction 3

11 Purpose of this Guide 3

2 QFES Jurisdiction 421 NCC Performance Requirements Relevant to QFES Operations 4

22 Submission Requirements 4

3 QFES Roles and Responsibilities 531 QFES as the Emergency Response Service and Fire Safety Advocate 5

32 QFES as the Regulator 5

33 QFES as the Employer 5

4 Operational Requirements in the Built Environment 641 Departures from NCC Vol 1 ndash Part C17

42 Departures from NCC Vol 1 ndash Part C28

43 Departures from NCC Vol 1 ndash Part C39

44 Departures from NCC Vol 1 ndash Part D1 10



47 Departures from NCC Vol 1 ndash Part E1 13




411 Departures from QDC MP22 17

412 Departures from QDC MP37 18

5 QFES Position Statements 1951 QFES Scope Reduction Initiative 20

52 FireSafetyVerificationMethod 21

53 TenabilityCriteriaforFirefighters 22

54 Fire Brigade Intervention Model 23

55 Use of Combustible External Cladding 24

56 Use of Jet Fans in Carparks 25

57 Self-Storage Buildings 26

58 Automated Vehicle Parking Systems 27

6 QFES Referral Process 2861 Stages of QFES Referral 28

62 Unwanted Alarms 28

63 Independent Third Party Review 28

64 QFES Assessment Fees 28

7 Inspection Testing amp Commissioning 2971 Inspection of Special Fire Services amp Performance Solution Aspects 29

72 QFES Inspection Fees 29

73 FireEngineerVerification 29

8 Occupation amp Maintenance 3081 CertificateofClassification 30

82 Permanent Notice about Performance Solutions 30

83 Maintenance of Performance Solution Aspects 30

84 Fire and Evacuation Plan 30

85 Information Storage amp Sharing 30

86 Management-in-Use Plan 30

copy State of Queensland (Queensland Fire and Emergency Services) 2020

The Queensland Government acting through the Queensland Fire and Emergency Services supports and encourages the dissemination and exchange of publicly funded information and endorses the use of the Australian Governments Open Access and Licensing Framework (AusGOAL)

All Queensland Fire and Emergency Services material in this document ndash except the QFES logo any material protected by a trademark and unless otherwise noted ndash is licensed under a Creative Commons Attribution 40 licence

The Queensland Fire and Emergency Services has undertaken reasonable enquiries to identify material owned by third parties and secure permission for its reproduction Permission may need to be obtained from third parties to re-use their material

Written requests relating to the copyright in this document should be addressed to

Intellectual Property Coordinator Information Management Ministerial and Executive Services Public Safety Business Agency GPO Box 9879 Brisbane 4001 EM QFESIPCopyrightqfesqldgovau

DisclaimerTo the extent possible under applicable law the material in this document is supplied as-is and as-available and makes no representations or warranties of any kind whether express implied statutory or otherwise This includes without limitation warranties of title merchantability fitness for a particular purpose non-infringement absence of latent or other defects accuracy or the presence or absence of errors whether or not known or discoverable Where disclaimers of warranties are not allowed in full or in part this disclaimer may not applyTo the extent possible under applicable law neither the Queensland Government or the Queensland Fire and Emergency Services will be liable to you on any legal ground (including without limitation negligence) or otherwise for any direct special indirect incidental consequential punitive exemplary or other losses costs expenses or damages arising out of the use of the material in this document Where a limitation of liability is not allowed in full or in part this limitation may not apply


1 IntroductionWelcome and thank you for accessing Queensland Fire and Emergency Servicesrsquo (QFES) Guide to the Referral of Performance Solutions QFES trusts that this resource will prove a valuable starting point for your interaction with QFES in our role as a Referral Agency for Performance Solutions for a buildingrsquos fire safety system

11 Purpose of this GuideThe main purpose of this guide is to communicate QFESrsquo expectations of referred Performance Solutions to facilitate effective stakeholder engagement with QFES and encourage desirable Referral Response outcomes

This Guide is intended to be read by all stakeholders to a Performance Solution however primarily used by the Assessment Manager and the Fire Engineer responsible for the buildingrsquos fire safety system

Secondary purposes include guidance on

bull QFESrsquo position with respect to certain aspects of referred Performance Solutionsbull The process of referring Performance Solutions to QFESbull QFESrsquo submission expectations for referred Performance Solutionsbull QFESrsquo inspection and commissioning practices related to Performance Solutionsbull The ongoing role of QFES in occupied Performance Solution buildings including QFESrsquo maintenance

monitoring practices related to Performance Solutions

Important Notes1 This document is a guide only Reference should be made to all relevant legislation and associated codes standards and other

guidance documents for full details of applicable legislative requirements

2 This Guide should not be considered as a replacement for seeking independent professional advice on matters of fire engineering or legislative requirements for lawful development applications

3 Users should ensure that any printed copies of this document within their possession and any referenced codes or standards are the latest revisions or include the latest amendments


2 QFES JurisdictionBefore a decision can be made on a development application under Part 3 of the Planning Act 2016 it is a requirement that a Referral Agency Response is sought from relevant referral agencies

QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 as a Referral Agency for amongst other things a Performance Solution for a buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the National Construction Code

Section 22(2) of the Planning Regulation 2017 provides that QFES must also assess the development application against the laws it administers and reasonably identifiable policies it applies Effectively this means that QFES advice must come from the perspective and intent of all its roles and responsibilities

For Performance Solutions assessed against the Performance Requirements of Volume 1 of the National Construction Code Schedule 9 Part 3 Division 3 Table 1 of the Planning Regulation 2017 requires that QFESrsquo assessment must be against

bull Chapter 3 of the Building Act 1975 andbull The building assessment provisions (defined by Section 30 of the Building Act 1975)

Important Notes1 QFES may concurrently hold other powers which may overlap with QFESrsquo jurisdiction regarding Performance Solutions For

example see Schedule 9 Part 3 Division 3 Table 2 of the Planning Regulation 2017

21 NCC Performance Requirements Relevant to QFES OperationsQFES relies on a buildingrsquos fire safety system (defined by Schedule 24 of the Planning Regulation 2017) to effectively and safely undertake operational activities including search amp rescue and structural firefighting

Due to the operation of Clause A07 and A15 of Volume 1 of the National Construction Code QFES anticipate that any Performance Solution impacting a Performance Requirement related to a buildingrsquos fire safety system

bull Will be relevant to fire brigade interventionbull Must be referred to QFES for a Referral Agency Response and bull Should be developed holistically against QFESrsquo Operational Requirements in the Built Environment in its

entirety

22 Submission RequirementsSection 26 within Chapter 3 of the Building Act 1975 specifies what must be included within the supporting documentation for a Performance Solution


3 QFES Roles and ResponsibilitiesQFES is given numerous roles and responsibilities by legislation and by the operation of Section 22(2) of the Planning Regulation 2017 QFES gives its Referral Agency Response from the perspective and intent of these roles and responsibilities therefore it is important to broadly know what they are

31 QFES as the Emergency Response Service and Fire Safety AdvocateSection 8B of the Fire and Emergency Services Act 1990 legislates QFESrsquo functions as

a) To protect persons property and the environment from fire and hazardous materials emergencies

b) To protect persons trapped in a vehicle or building or otherwise endangered to the extent that QFESrsquos personnel and equipment can reasonably be deployed or used for the purpose

c) To provide an advisory service and undertake other measures to promotemdash

i) Fire prevention and fire control and

ii) Safety and other procedures if a fire or hazardous materials emergency happens

d) To cooperate with any entity that provides an emergency service

e) To perform other functions given to QFES under this Act or another Act

f) To perform functions incidental to its other functions and

g) To identify and market products and services incidental to its functions

From this perspective QFESrsquo Referral Agency Response is likely to be affected where QFES identifies actual or potential threats to life property or the environment that are inherent to the buildingrsquos intended use or location or introduced by the prescriptive or performance-based aspects of the buildingrsquos design

32 QFES as the RegulatorAs part of QFESrsquo functions its authorised officers regulate certain matters including building fire safety matters detailed in Part 9A of the Fire and Emergency Services Act 1990 and one of that Actrsquos subordinate legislative instruments the Building Fire Safety Regulation 2008

Section 4 of the Building Fire Safety Regulation 2008 identifies the main objects of that Regulation are to ensure persons can evacuate buildings safely and quickly if a fire or hazardous materials emergency happens and to ensure prescribed fire safety installations for buildings are maintained

From this perspective QFESrsquo Referral Agency Response is likely to be affected where QFES identifies issues related to evacuation suitability and fire system maintainability that are inherent to the buildingrsquos intended use or location or introduced by the prescriptive or performance-based aspects of the buildingrsquos design

33 QFES as the EmployerQFES also owes a primary duty of care under Section 19 of the Work Health and Safety Act 2011 to its operational firefighters who may be directed to attend structural fires and other emergency incidents

From this perspective QFESrsquo Referral Agency Response is likely to be affected where QFES identifies operational hazards that are inherent to the buildingrsquos intended use or location or introduced by the prescriptive or performance-based aspects of the buildingrsquos design


4 Operational Requirements in the Built EnvironmentQFES supports the flexibility and innovation facilitated by Performance Solutions and advocate that a buildingrsquos fire safety system be lsquofit-for-purposersquo As one of the primary purposes of a buildingrsquos fire safety system will be to facilitate fire service intervention QFES has developed a list of general Operational Requirements in the Built Environment These are intended to be given due consideration to the extent applicable to the building-specific circumstances and potentially applied as lsquoAcceptance Criteriarsquo for demonstrating a Performance Solution for a buildingrsquos fire safety system is considered suitable for QFESrsquo operational activities

Section Relevant Fire Safety Aspect Operational Requirements in the Built Environment41 Fire resistance and stability Prevent the partial progressive or total collapse of the building to allow firefighters

to undertake search and rescue and extinguish the fire using the equipment provided

42 Compartmentation and separation

Contain the fire to a size and intensity within the operational capacity of QFES and the extinguishing capacity of the equipment provided

43 Protection of openings Prevent the spread of fire via openings in internal and external building elements to maintain structural stability compartmentation and fire separation

44 Provision for escape Provide evacuation routes that allow for safe occupant evacuation compatible with contraflow access for firefighters to areas of the building affected by smoke and fire

45 Construction of exits Provide evacuation routes that allow for safe occupant evacuation and that allow firefighters to stage search and rescue and firefighting activities from a place of relative safety

46 Access for people with disabilities

Provide facilities for the safe equitable and dignified assisted egress of people with disabilities in a fire compatible with the operational procedures of QFES

47 Firefighting equipment Provide firefighting equipment that can control and extinguish the fire is compatible with QFES procedures and equipment and that is located in accessible places of relative safety for firefighters

48 Smoke hazard management Provide a fire detection and alarm system that will provide early warning to building occupants and that is monitored to provide automatic notification of fire to QFES

Contain the spread and accumulation of smoke to allow for safe occupant evacuation and to allow firefighters to undertake search and rescue activities and to extinguish the fire

49 Lift installations Provide facilities for the efficient movement of firefighters firefighting equipment and occupants requiring assisted egress in conditions free from the effects of fire and smoke

410 Visibility exit signs and warning systems

Provide clearly identifiable and direct evacuation routes that allow occupants to complete their evacuation in conditions free from fire and smoke

411 Residential care buildings Provide an automatic suppression system and other necessary provisions to contain fire and smoke spread to allow for safe occupant evacuation and for firefighters to undertake search and rescue and extinguish the fire

412 Farm buildings Provide facilities for the safe evacuation of occupants and firefighting equipment that is compatible with QFES procedures and equipment and is capable of extinguishing the fire

Important Notes1 The list above represents a statement of requirements that broadly correspond to the fire safety related parts of Volume 1

of the National Construction Code and the Queensland Development Code This is not intended to be an exhaustive list of requirements

2 General commentary for each requirement is provided within the corresponding section of this site accessed by using the left-hand navigation menu

3 Stakeholders to a Performance Solution should contact the QFES Regional Community Safety Office within the relevant QFES Region (ie where the building is intended to be built) to speak to a QFES Building Approval Officer about local operational matters and specific local operational requirements

4 Due to the operation of Clause A07 and A15 of Volume 1 of the National Construction Code QFES also recommend that a Performance Solution to a buildingrsquos fire safety system be developed holistically against QFESrsquo policy on Operational Requirements in the Built Environment in its entirety


41 Departures from NCC Vol 1 ndash Part C1The following information is intended to inform preliminary discussions between stakeholders and QFES A Building Approval Officer from the relevant QFES Regional Community Safety Office is best placed to advise on the local operational matters and operational requirements applicable to this fire safety aspect with respect to the specific building design proposals under consideration

Part C1 Fire Resistance and Stability

Operational Requirement Prevent the partial progressive or total collapse of the building to allow firefighters to undertake search and rescue and extinguish the fire using the equipment provided

What the Guide to NCC Volume 1 sayshellip Operational considerations includehellip

QFES note the following key statements from the Guide regarding fire resistance and stability

ldquoThe Objective of Section C is tohellipfacilitate the activities of emergency services personnel andhellipprotect other property from physical damage caused by structural failure of a building as a result of firerdquo

ldquoThis Objective is based on the belief that a building shouldhellipfacilitate the role of emergency services personnel such as the fire brigade if it becomes necessary for them to undertake such operations as fire-fighting and search and rescuehelliprdquo

ldquoThe reason the Objective concerns itself with the protection of other property is primarily because fire from a building should not pose a serious risk to the health safety and amenity of the public or occupants of another buildingrdquo

ldquoFunctional Statement CF1 ndash A building is to be constructed to maintain structural stability during fire to allow occupants time to evacuate safely and allow for fire brigade interventionhelliprdquo

ldquoA building must remain structurally stable during a fire to allow the occupants to safely evacuate allow the fire brigade to undertake search and rescue if necessary and fire-fighting operations and avoid damage to another building allotment or roadrdquo

ldquoWhile assessment of a building proposal must have regard to the differing needs of each building element the proposal must make sure that the elements have an appropriate structural stability during a fire so thathellipthe fire does not endanger firefighters while they are undertaking search and rescue operationsrdquo

The fire resistance and stability of a buildingrsquos structure during a fire is a fundamental tactical consideration for QFES operations

Whether (and if so how) to undertake search amp rescue firefighting and incidental emergency management is a decision that must be made in a complex evolving and high-stress environment

This consideration is broad as the potential risks are broad

For example the collapse of a single structural element can pose a significant life safety risk to a firefighter operating within this immediate area and by contrast progressive or total failure of the structure can pose a significant life safety risk to all responding firefighters egressing occupants and bystanders

Where firefighter occupant or bystander life safety is compromised or at risk of being compromised QFESrsquo ability to effectively undertake search amp rescue firefighting and incidental emergency management is likely to be impeded

Therefore QFES Officers are likely to look for assurances that the buildingrsquos structure can resist the worst fire that is credible in the design life of the building to guarantee structural stability during and after a fire incident

Where a buildingrsquos fire safety system is designed or intended to become structurally unstable during a fire it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officers considering the structure not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building

Aspects of the Fire Safety System that may be relevanthellip

Special Fire Services that may be relevanthellip

Holistic Application of Operational Requirements

ndash Fire Resistance Levels (FRLs) of load-bearing elements

ndash Spandrels ndash Ventilation openings ndash Combustibility of the external wall

assembly ndash Fuel load ndash Fuel orientation (eg stacking and

shielding) ndash Passive fire stopping of service

penetrations ndash Required Safe Egress Time (RSET)

ndash Fire hydrants ndash Fire mains ndash Services required under the NCC Vol

1 Clause E110 ndash Smoke and heat venting systems ndash Smoke exhaust systems ndash Special automatic fire suppression

systems ndash Sprinklers including wall-wetting

sprinklers ndash Vehicular access for large isolated

buildings

Due to the operation of Clause A07 and A15 of Volume 1 of the National Construction Code QFES also recommend that a Performance Solution to a buildingrsquos fire safety system be developed holistically against QFESrsquo policy on Operational Requirements in the Built Environment in its entirety



Part C2 Compartmentation and Separation

Operational Requirement Contain the fire to a size and intensity within the operational capacity of QFES and the extinguishing capacity of the equipment provided


QFES note the following key statements from the Guide regarding compartmentation and separation

ldquoThe Objective of Section C is tohellipfacilitate the activities of emergency services personnel and avoid the spread of fire between buildingshelliprdquo

ldquoThis Objective is based on the belief that a building shouldhellipfacilitate the role of emergency services personnel such as the fire brigade if it becomes necessary for them to undertake such operations as fire-fighting and search and rescue and assist in minimising the risk of fire spreading from one building to anotherhelliprdquo

ldquoFunctional Statement CF2 ndash A building is to be provided with safeguards to prevent fire spread

ndash So that the occupants have time to evacuate safely without being overcome by the effects of fire

ndash To allow fire brigade intervention ndash To sole-occupancy units providing sleeping

accommodation ndash To adjoining fire compartments and ndash Between buildingsrdquo

ldquoA building must have in-built safeguards to prevent the spread of firehellipto allow the fire brigade to undertake search and rescue if necessary and fire-fighting operationshelliprdquo

ldquoBuilding elements must be appropriate to avoid spread of fire taking into considerationhellipmattershellipincluding the size load or intensity of any fire in the building the difficulty of evacuation andor rescuehellipthe fire-fighting operations of the fire brigade and the resources available to ithelliprdquo

QFES operations are based on the rapid intervention of small highly skilled teams of firefighters in a fire event to effectively extinguish a fire

Subsequently the life safety of these firefighters is reliant on the fire being contained to a size and intensity that is within the operational capacity of the equipment provided for the building

Where extinguishment activities are undermined the life safety risk for QFES firefighters increases

For example a fire breaching compartmentation or separation boundaries may result in firefighter access routes being impacted by fire or smoke resulting in QFES firefighters becoming trapped with a limited air supply via breathing apparatus

This may impede fire brigade intervention further as internal extinguishment operations are abandoned and lower risk but less effective external exposure protection undertaken

Therefore QFES Officers are likely to look for assurances that the building has compartmentation and separation provisions to ensure the worst fire that is credible in the design life of the building is still within the operational capacity of QFES

Where a buildingrsquos fire safety system is designed or intended to permit uncontrolled or excessive fire spread it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officers considering a buildingrsquos compartmentation and separation not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building




ndash Fire Resistance Levels (FRLs) ndash Spandrels ndash Ventilation openings ndash Separation distances between fire

source features ndash Combustibility of the external wall

assembly ndash Fuel orientation (eg stacking and


penetrations


1 Clause E110 ndash Special automatic fire suppression



buildings




Part C3 Protection of Openings

Operational Requirement Prevent the spread of fire via openings in internal and external building elements to maintain structural stability compartmentation and fire separation










ldquoBuilding elements must be appropriate to avoid spread of fire taking into considerationhellipmattershellip including the size load or intensity of any fire in the buildinghellipthe buildingrsquos exposure to fire in another building or risk of spreading a fire to another buildinghellipthe fire-fighting operations of the fire brigade and the resources available to ithelliprdquo



For example a fire breaching a service penetration may result in a concealed fire travelling in voids above firefighters or across compartment boundaries and firefighter access routes being impacted by fire or smoke resulting in QFES firefighters becoming trapped with a limited air supply via breathing apparatus

Fire brigade intervention may be impacted further where resources are deployed to undertake external exposure protection and containment to prevent fire spread to adjoining buildings prior to internal extinguishment activities

Therefore QFES Officers are likely to look for assurances that the building has provisions protecting openings in the internal and external elements of the building to ensure the worst fire that is credible in the design life of the building is still within the operational capacity of QFES

Where a buildingrsquos fire safety system is designed or intended to permit fire spread via openings it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officers considering a buildingrsquos protection of openings not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building








penetrations

ndash Fire detection and alarm systems ndash Fire hydrants ndash Fire mains ndash Services required under the NCC Vol




buildings



44 Departures from NCC Vol 1 ndash Part D1The following information is intended to inform preliminary discussions between stakeholders and QFES A Building Approval Officer from the relevant QFES Regional Community Safety Office is best placed to advise on the local operational matters and operational requirements applicable to this fire safety aspect with respect to the specific building design proposals under consideration

Part D1 Provision for Escape

Operational Requirement Provide evacuation routes that allow for safe occupant evacuation compatible with contraflow access for firefighters to areas of the building affected by smoke and fire


QFES note the following key statements from the Guide regarding provision for escape

ldquoThe Objective of Section D is tohellipsafeguard occupants from illness or injury while evacuating in an emergencyrdquo

ldquoFunction Statement DF2 ndash A building is to be provided with means of evacuation which allow occupants time to evacuate safely without being overcome by the effects of an emergencyrdquo

ldquoA building must provide the capacity for occupants to evacuate in a safe and timely manner without being overcome by the effects of the emergency (for example smoke heat or flame in the case of a fire)rdquo

ldquoFire-isolated exits are used in multi-storey buildings to enable people to evacuate safely past a storey on fire facilitate fire brigade access to carry out operations such as search and rescue and fire-fighting and minimise the distance people need to travel in a fire affected area before they are able to access a lsquosafe placersquo such as a fire-isolated stairwayrdquo

ldquoPaths of travel to exits must have dimensions appropriate to a number of factors including

ndash The number of occupants can affect the evacuation time ndash The mobility and other characteristics of occupants will

have a direct impact on the evacuation time and ndash The function or use of the building takes account of any

special provisions such as movement of beds in hospitalsrdquo

To undertake search and rescue and internal firefighting firefighters require access to trappedimmobile occupants and to areas of the building affected by smoke and fire

QFES rely on the evacuation routes within buildings to do this

Where evacuation routes are incompatible with occupant egress QFES access or both delays and hazards can arise which impede search and rescue and internal firefighting activities

For example factors such as long distances narrow or confined spaces single or converging egress routes or contraflow access against egressing occupants can delay or impede access to incapacitated occupants and the fire itself

This issue is exacerbated where QFESrsquo activities could introduce a path for smoke travel to the evacuation routes eg opening doors

Therefore QFES Officers are likely to look for assurances that the building has provisions for escape that ensure the safe egress of occupants and safe access for QFES to trapped occupants and areas affected by fire and smoke during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to permit protect in place require assisted evacuation or introduce incompatible contraflows it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officers considering a buildingrsquos provision for escape not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building




ndash Travel distances ndash Dimensions of egress paths and

stairwells ndash Ceiling height ndash Distances between alternative exits ndash Required Safe Egress Time (RSET) ndash Refuge spaces ndash Smoke curtains or baffles ndash Discharge location of exits

ndash Air-handling systems used for smoke control

ndash Emergency lifts ndash Sound systems and intercom

systems for emergency purposes ndash Fire detection and alarm systems ndash Fire hydrants ndash Smoke and heat venting systems ndash Smoke exhaust systems ndash Stairwell pressurisation systems




Part D2 Construction of Exits

Operational Requirement Provide evacuation routes that allow for safe occupant evacuation and that allow firefighters to stage search and rescue and firefighting activities from a place of relative safety


QFES note the following key statements from the Guide regarding construction of exits





Paths of travel to exits must have dimensions appropriate to a number of factors including




To undertake search and rescue and firefighting firefighters require access to trappedimmobile occupants and to areas of the building affected by smoke and fire from a place of relative safety QFES rely on the evacuation routes within buildings to do this

A place of relative safety for firefighters to stage search and rescue and internal firefighting activities generally requires an ability to connect to a fire hydrant system in an area where satisfactory conditions for firefighters are maintained for the firersquos duration

For example firefighters may connect to a hydrant two floors below the fire floor in a high-rise building so that if their air supply depletes they can readily follow a fire hose line back to a place where they can remove their breathing apparatus without being overcome by smoke (eg in a smoke free fire isolated stair)

This then also requires that the place of relative safety is located within a suitable coverage zone for the equipment provided

Therefore QFES Officers are likely to look for assurances that the buildingrsquos exits are constructed to allow search and rescue and firefighting to be staged from a place of relative safety during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to allow smoke ingress or loss of tenable conditions for firefighters in exits it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officers considering a buildingrsquos construction of exits not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building




ndash Travel distances ndash Smoke lobbies ndash Natural ventilation of corridors or

stairwells ndash Required Safe Egress Time (RSET) ndash Refuge spaces ndash Smoke curtains or baffles ndash Discharge location of exits


ndash Emergency lifts ndash Fire detection and alarm systems ndash Fire hydrants ndash Smoke and heat venting systems ndash Smoke exhaust systems ndash Stairwell pressurisation systems




Part D3 Access for People with a Disability

Operational Requirement Provide facilities for the safe equitable and dignified assisted egress of people with disabilities in a fire compatible with the operational procedures of QFES


QFES note the following key statements from the Guide regarding access for people with a disability

ldquoOne of the primary intentions of the Disability Discrimination Act 1992 is to provide people with a disability with the same rights as the rest of the community The word ldquoequitablerdquo combines concepts of fairness and equality It does not mean that all people must be able to do precisely the same thing in the same wayrdquo


ldquoThe Objective refers to safeguarding occupants while evacuating in an emergency This includes people with a disability who cannot independently use exits and may require specific egress arrangementsrdquo


ldquohellipeffects of the emergency includehellip smoke heat or flame in the case of a firehelliprdquo

ldquoThe mobility and other characteristics of occupants will have a direct effect on the evacuation time Matters to be considered include whether the occupants are likely to have limited mobility or capacity to find their way unassisted and the type and the extent of that limitationrdquo

ldquoPaths of travel to exits must have dimensions appropriate to a number of factors includinghellipthe mobility and other characteristics of occupants will have a direct impact on the evacuation timehelliprdquo

The conditions within a building on fire can be dynamic and increasingly dangerous as the fire grows and consumes fuel occupants and firefighters move throughout the building and the buildingrsquos fire safety system reacts to the fire

Subsequently QFES prioritise search and rescue operations when responding to a fire event and most buildings in Australia adopt a lsquoone-out all-outrsquo or phased evacuation strategy

Where occupants are unable or impeded in their ability to self-evacuate QFESrsquo intervention may become impeded as resources and activities are altered to accommodate this situation

For example firefighters may assist evacuation instead of attempting to extinguish the fire concurrently any firefighters attempting extinguishment may be tactically restricted because remaining occupants do not have personal protective equipment

Therefore QFES Officers are likely to look for assurances that the access provisions in a building for people with a disability also ensure safe and equitable egress for those occupants in a way that is compatible with the operational capability of QFES during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to permit protect in place or require assisted evacuation it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a buildingrsquos access for people with a disability not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building





stairwells ndash Smoke lobbies ndash Refuge spaces ndash Smoke curtains or baffles ndash Natural ventilation of corridors or

stairwells ndash Distances between alternative exits ndash Required Safe Egress Time (RSET)






47 Departures from NCC Vol 1 ndash Part E1The following information is intended to inform preliminary discussions between stakeholders and QFES A Building Approval Officer from the relevant QFES Regional Community Safety Office is best placed to advise on the local operational matters and operational requirements applicable to this fire safety aspect with respect to the specific building design proposals under consideration

Part E1 Fire Fighting Equipment

Operational Requirement Provide firefighting equipment that can control and extinguish the fire is compatible with QFES procedures and equipment and that is located in accessible places of relative safety for firefighters


QFES note the following key statements from the Guide regarding firefighting equipment

ldquoThe Objective of Part E1 is tohellipprovide facilities forhellipthe fire brigade to undertake fire-fighting operationsrdquo

ldquoTo assist in stopping or limiting the spread of fire facilities must be provided to assist the fire brigaderdquo

ldquoFunctional Statement EF11 ndash A building is to be provided with firefighting equipment to safeguard against fire spreadhellipso that the fire brigade has the necessary equipment to undertake search rescue and firefighting operationshelliprdquo

ldquoFunctional Statement E11 ndash A building is to be provided with firefighting equipment to safeguard against fire spreadhellipto other parts of the building and between buildingsrdquo

ldquoFacilities may be manually or automatically operated and include fire hydrants fire hose reels sprinkler systems portable fire extinguishersrdquo

ldquoThe intent of installing a fire hydrant system is to provide adequate water under sufficient pressure and flow to allow the fire brigade to fight firesrdquo

ldquoIt is expected that designers will meet any special fire brigade requirements which may cover such matters as the types of couplings and special flows and pressures to suit a particular nozzlerdquo

The type distribution and performance of firefighting equipment must be compatible with the operational capability of QFES

Where equipment is inadequate for the fire event the operational capability of QFES will be limited or impeded entirely and may result in life safety risks to occupants firefighters and bystanders as the fire continues to grow and consume fuel

For example a fire contained to small compartment may able to be extinguished with a single hydrant however a fire in a warehouse may require multiple hose lines from hydrants in multiple locations to extinguish In either case firefighters need to be able to access and connect to those hydrants to be operationally effective

Therefore QFES Officers are likely to look for assurances that the building has firefighting equipment that is accessible and useable by QFES to extinguish the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to limit access to firefighting equipment have insufficient extinguishing capacity for the fire or be incompatible with QFESrsquo equipment or procedures it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a buildingrsquos provision for firefighting equipment not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building








penetrations ndash Smoke lobbies

ndash Fire control centres ndash Fire hydrants ndash Fire mains ndash Services required under the NCC Vol

1 Clause E110 ndash Smoke exhaust systems ndash Special automatic fire suppression


sprinklers ndash Stairwell pressurisation systems ndash Vehicular access for large isolated

buildings




Part E2 Smoke Hazard Management

Operational Requirement Provide a fire detection and alarm system that will provide early warning to building occupants and that is monitored to provide automatic notification of fire to QFES



QFES note the following key statements from the Guide regarding smoke hazard management

ldquoThe Objective of Part E2 is to safeguard occupants from illness or injury by warning them of a fire so that they may safely evacuate and safeguard occupants from illness or injury while evacuating during a firerdquo

ldquoFunctional Statement EF21 ndash A building is to be provided with safeguards so that occupants are warned of a fire in the building so that they may safely evacuate and occupants have time to safely evacuate before the environment in any evacuation route becomes untenable from the effects of firerdquo

ldquoOccupants must be given time to evacuate before the onset ofhellip dangerous temperatures low visibility and dangerous levels of toxicityhellip taking into account of a range of factors includinghellip the firefighting operations of the fire brigade and the resources available to it which influences the extent to which afire can develop before the fire brigade is likely to bring it under controlrdquo

ldquoFire-isolated exits enable the safe evacuation of occupants and also aid fire brigade accesshellip smoke must not unduly affect the conditions in such exits during an evacuationrdquo

ldquohelliphigh risk occupancies require system monitoring requirements to enable a timely and appropriate response by the local fire brigade to emergenciesrdquo

QFES utilise evacuation routes to provide a means of firefighter access to the fire location Protected routes eg fire-isolated stairs may serve as a place of relative safety to connect to firefighting equipment and stage search and rescue and firefighting activities

A place of relative safety generally requires tenable conditions for firefighters maintained for the duration of the fire Efficiency of QFES operations to and within fire-affected areas will be impeded where one or more tenability conditions are exceeded

For example firefighters may access a fire-affected floor from a pressurised stair but are slowed in their search and rescue by smoke-logged conditions requiring them to return to the smoke-free stair once their air supply depletes and remove their breathing apparatus without being overcome by smoke

Therefore QFES Officers are likely to look for assurances that the building has smoke hazard management provisions that ensure the safe egress of occupants and that allow search and rescue and firefighting within the building during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to limit access to firefighting equipment or allow loss of tenable conditions for firefighters within a building it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a buildingrsquos provision for smoke hazard management not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building





stairwells ndash Ceiling height ndash Distances between alternative exits ndash Required Safe Egress Time (RSET) ndash Passive fire stopping of service

penetrations ndash Smoke lobbies ndash Smoke curtains or baffles ndash Discharge location of exits


ndash Fire detection and alarm systems ndash Fire hydrants ndash Services required under the NCC Vol



sprinklers ndash Stairwell pressurisation systems




Part E3 Lift Installations

Operational Requirement Provide facilities for the efficient movement of firefighters firefighting equipment and occupants requiring assisted egress in conditions free from the effects of fire and smoke


QFES note the following key statements from the Guide regarding lift installations

ldquoThe Objective of Part E3 is tohellipfacilitate access for emergency services personnel to carry out emergency procedures and assist in the evacuation of occupantsrdquo

ldquoLifts must help emergency services personnel to evacuate sick or injured people Lifts should also help the fire brigade to transport firefighters and their equipmentrdquo

ldquoFunctional Statement EF31 ndash Where a passenger lift is provided it is to facilitate safe and easyhellipevacuation of occupants who due to illness or injury need stretcher assistancerdquo

lsquoFunctional Statement EF32 ndash A building that is over 25m in effective height with a Class 9a part above a level with direct access to road or open space is to be provided with one or more passenger lifts to facilitate

ndash The safe access for emergency services personnel and ndash Safe and easy evacuation of occupants who due to illness

injury or disability cannot use stairways in the event of an emergencyrdquo

ldquohellip a lift must be able to assist emergency services personnel such ashellip the fire brigade with equipment Lifts in these buildings must also assist with the evacuation of any person unable to use a stairway unassistedrdquo

ldquoWhen a person becomes injured in a building a stretcher may be needed to evacuate themrdquo

The conditions within a building on fire can be dynamic and increasingly dangerous over time unless firefighters can respond quickly to the firersquos location

Where occupants are unable to self-evacuate andor QFES is required to traverse long distances QFESrsquo intervention may be severely delayed without an efficient means of internal transport

For example QFES would rely on a lift installation in a high rise or multi-storey health-care facility to avoid time and energy consuming actions such as walking multiple flights of steps with heavy equipment and carrying infirm patients to a place of safety

Therefore where lifts are provided in a building QFES Officers are likely to look for assurances that the building has lift installations that ensure the ability to transport firefighters equipment and occupants requiring assisted evacuation in conditions free from the effects of fire and smoke during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to permit lift installations to be compromised by the effects of fire or smoke or incompatibly sized for the transport of firefighters firefighting equipment andor occupants of the building that require assisted evacuation it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a buildingrsquos lift installations not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building






stairwells ndash Fire Resistance Levels (FRLs) ndash Passive fire stopping of service

penetrations



systems for emergency purposes ndash Fire detection and alarm systems ndash Smoke and heat venting systems ndash Smoke exhaust systems ndash Stairwell pressurisation systems




Part E4 Visibility Exit Signs and Warning Systems

Operational Requirement Provide clearly identifiable and direct evacuation routes that allow occupants to complete their evacuation in conditions free from fire and smoke


QFES note the following key statements from the Guide regarding visibility exit signs and warning systems

ldquoThe Objective of Part E4 is in an emergency to safeguard occupants from injury by having adequate visibility having adequate identification of exits and paths of travel to exits and being made aware of the emergencyrdquo

ldquoFunctional Statement EF41 ndash A building is to be provided with adequate visibility upon failure of normal artificial lighting during an emergency and adequate means of warning occupants to evacuate to manage the evacuation process and to identify exits and paths of travel to an exitrdquo

ldquoArtificial lighting is often one of the first things to fail during a building emergency This can significantly impair the ability of the occupants to evacuate the buildingrdquo

ldquoMany of the emergency protection systems built into the NCC are time related particularly those designed to protect occupants from a fire The effectiveness of this protection maybe negated if occupants are not made aware of the need to evacuaterdquo

ldquoEmergency evacuation requires all evacuations to maximise the opportunity for occupants to reach a place of safetyrdquo

ldquoOccupants need to be able to identify their route to safety without hesitationrdquo

The conditions within a building on fire can be dynamic and increasingly dangerous as the fire grown and consumes fuel occupants and firefighters move throughout the building and the buildingrsquos fire safety system reacts to the fire Subsequently QFES prioritise search and rescue operations when responding to a fire

Where occupants become trapped unable to negotiate egress paths or exposed to the effects of a fire QFES intervention may be impeded as resources and activities are altered to accommodate this situation

For example firefighters may undertake search and rescue activities instead of attempting to extinguish the fire or contain further fire spread this may require prolonged exposure of QFES the effects of fire and increase the risks associated with uncontrolled fire growth and spread

Therefore QFES Officers are likely to look for assurances that the provisions for visibility exit signs and warning systems in a building ensure efficient and effective self-egress during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to permit occupants to become trapped or allow occupant exposure to the effects of fire if they do not reasonably react to warnings it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a buildingrsquos visibility exit signs and warning systems not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building







ndash Sound systems and intercom systems for emergency purposes

ndash Fire detection and alarm systems ndash Smoke and heat venting systems ndash Smoke exhaust systems ndash Sprinklers including wall-wetting

sprinklers ndash Specials automatic fire suppression

systems ndash Stairwell pressurisation systems



411 Departures from QDC MP22The following information is intended to inform preliminary discussions between stakeholders and QFES A Building Approval Officer from the relevant QFES Regional Community Safety Office is best placed to advise on the local operational matters and operational requirements applicable to this fire safety aspect with respect to the specific building design proposals under consideration

QDC MP22 Fire Safety in Residential Care Buildings

Operational Requirement Provide an automatic suppression system and other necessary provisions to contain fire and smoke spread to allow for safe occupant evacuation and for firefighters to undertake search and rescue and extinguish the fire

QFESrsquo Jurisdiction for Performance Solutions under QDC MP22hellip

Operational considerations includehellip

Before a decision can be made on a development application under Part 3 of the Planning Act 2016 it is a requirement that a Referral Agency Response is sought from relevant referral agencies

QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 as a Referral Agency for amongst other things a Performance Solution for a buildingrsquos fire safety system assessed against the Performance Criteria of QDC MP22

Section 22(2) of the Planning Regulation 2017 provides that QFES must also assess the development application against the laws it administers and reasonably identifiable policies it applies

Residential care buildings have been identified around the world as ldquohigh risk occupanciesrdquo due to the limited ability of residents to self-evacuate in the event of a fire leading to instances of multiple fatalities during fire events in these types of facilities

The conditions within a building on fire can be dynamic and increasingly dangerous as the fire grows and consumes fuel occupants and firefighters move throughout the building and the buildingrsquos fire safety system reacts to the fire Subsequently QFES prioritise search and rescue operations when responding to a fire event Residential care buildings will have occupants that are evacuation-impaired and there may be a phased evacuation strategy Some occupants will require assistance to evacuate such as from staff or emergency services

Where occupants are unable or impeded in their ability to evacuate (self or assisted evacuation) QFESrsquo intervention will be affected as resources and activities are altered to accommodate this situation

Therefore QFES Officers are likely to look for assurances that a Performance Solution ensures safe egress for occupants compatible with the operational capability of QFES during the worst fire that is credible in the design life of the building

Where a buildingrsquos fire safety system is designed or intended to permit protect in place or to require assisted evacuation by QFES firefighters it is important that this is clearly known by QFES Officers upfront

This may result in QFES Officerrsquos considering a Performance Solution not suitable for QFESrsquo operational requirements andor a limitation on the operational tactics that can be safely and effectively deployed at the building

What QDC MP22 sayshellip

QFES note the following key statements from the Performance Criteria of QDC MP22

ldquoP1 ndash Fire Suppression System ndash In all residential care buildings an automatic fire suppression system monitored by an approved system must be installedhelliprdquo

ldquoP2 ndash Evacuation Support ndash In all residential care buildings a level of immediate on-site evacuation assistance must be maintained to ensure occupants of the building can be safely evacuatedhelliprdquo

ldquoP3 ndash Early Warning System ndash In all residential care buildings not required to have a smoke detection system installed occupants must be provided with appropriate automatic warning on the detection of smoke so they may evacuatehellipto a safe placehelliprdquo










Queensland Development Code Mandatory Part 22 applies in addition to the requirements of the National Construction Code




QDC MP37 Farm Buildings

Operational Requirement Provide facilities for the safe evacuation of occupants and firefighting equipment that is compatible with QFES procedures and equipment and is capable of extinguishing the fire




QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 as a Referral Agency for amongst other things a Performance Solution for a buildingrsquos fire safety system assessed against Performance Criteria P1 or P3 of QDC MP37


Farm buildings are generally very large buildings that are isolated from urban utility services and so rely on efficient self-evacuation of occupants and on-site facilities for firefighting

The type distribution and performance of on-site firefighting equipment must be compatible with numerous factors including the fuel building site and operational capability of QFES

Where equipment is inadequate for the fire event the operational capability of QFES will be limited or impeded entirely and may result in life safety risks to occupants and firefighters

For example a fire in a large farm building for processing fruit may require multiple hose lines from hydrants in multiple locations to extinguish the fire To be operationally effective this may require site access for QFES vehicles capacity for water supply flow and pressure suitable for the fire hazard and hydrant locations that can reach the fire without placing firefighters at risk from structural collapse of the building

Therefore QFES Officers are likely to look for assurances that a Performance Solution ensures firefighting equipment that is accessible and useable by QFES to extinguish the worst fire that is credible in the design life of the building




QFES note the following key statements from the Guide and Performance Criteria of QDC MP37

ldquohellipthe QDC part does not apply to building work for farm buildings that have an excessive fire hazard requiring a sprinkler system to be installed or provision for special fire hazards to be made underhellipthe NCCrdquo

ldquoP1 ndash Access and Egress ndash The building work must comply with the NCC Volume 1 DP2 - DP6rdquo

ldquoP3 ndash Fire Hydrant Systems and Water Supply ndash The building work musthellipprovide either a fire hydrant system or a water supply for fire-fightinghellip to facilitate the needs of the fire brigade appropriate to fire-fighting operations the floor areahellipand the fire hazardrdquo

ldquoP1 simply replicates the requirements in DP2 ndash DP6 and does not vary those requirementshellip which continue to apply under the NCChellipin contrast to P1 P3 varies the Performance Requirements in the NCC Volume 1 EP 13





ndash Fuel load ndash Fuel orientation (eg stacking and

shielding) ndash Ventilation openings ndash Separation distances between fire

source features

ndash Fire detection and alarm systems ndash Fire hydrants ndash Fire mains ndash Smoke and heat venting systems ndash Vehicular access for large isolated

buildings




5 QFES Position StatementsQFES supports the flexibility and innovation facilitated by Performance Solutions and advocate that a buildingrsquos fire safety system be lsquofit-for-purposersquo

As the fire safety landscape constantly evolves to accommodate new technology and ideas QFES has developed a list of Position Statements intended to provide details of QFESrsquos position on specific building fire safety matters

Section SystemMethodology QFES Position Statement

51 QFES Scope Reduction Initiative

Building work that meets published scope reduction criteria for a lsquominor performance solutionrsquo is not required to be assessed by QFES to receive QFESrsquo Referral Agency Response

52 Fire Safety Verification Method Scenarios assessed should represent the worst fire(s) that are credible in the design life of the building with respect to QFESrsquo Operational Requirements in the Built Environment

53 Tenability Criteria for Firefighters

Scenarios that quantitatively assess the effects of fire in and around a building must report on the circumstances leading to optical density temperature and heat flux exceeding 01m-1 120degC and 3kWm2 respectively

54 Fire Brigade Intervention Model Use of the Fire Brigade Intervention Model to quantify the activities of QFES in the event of a fire emergency at a building must be undertaken in conjunction with input from QFES Officers

55 Use of Combustible External Cladding

Combustible external cladding should not compromise safe egress or impede firefighters in undertaking search and rescue or extinguishing the fire using the equipment provided

56 Use of Jet Fans in Carparks The use of jet fans in a carpark should not contribute to evacuation routes being compromised by smoke or impede the effective operation of a buildingrsquos fire safety systems

57 Self-Storage Buildings The special hazard presented by self-storage buildings should be controlled by active andor passive fire safety systems to contain the fuel load and fire intensity appropriate to QFESrsquo Operational Requirements in the Built Environment during the worst fire(s) that are credible in the design life of the building particularly with respect to Fire Resistance and Stability Firefighting Equipment and Smoke Hazard Management

58 Automated Vehicle Parking Systems (Car Stackers)

The use of Automated Vehicle Parking Systems (AVPS) also known as lsquoCar Stackersrsquo is considered to be a special hazard and outside the scope of the Deemed-to-Satisfy (DTS) provisions of the NCC Car stackers should therefore be addressed as a Performance Solution Performance Solutions should be developed with consideration to AFACrsquos lsquoFire Safety Requirements for Automated Vehicle Parking Systemsrsquo Guideline and should also satisfy QFESrsquo Operational Requirements in the Built Environment

Important Notes1 General commentary for each Position Statement is provided within the corresponding section of this site accessed by using the

left-hand navigation menu

2 QFES seeks to provide relevant and useful information to stakeholders to a Performance Solution therefore it is intended that the QFES Position Statements will be subject to periodic addition renewal or withdrawal as industry familiarity and best-practices emerge

3 QFES Position Statements are intended to be read in conjunction QFESrsquo Operational Requirements in the Built Environment so deliberately refrain from specifying requirements for developing a Performance Solution for a buildingrsquos fire safety system that is lsquosuitablersquo for QFES

4 Specific requirements for a Performance Solution should be informed from stakeholder consultation between the Assessment Manager the appropriately qualified and registered design professional(s) and a Building Approval Officer from the relevant QFES Regional Community Safety Office who is best placed to advise on the relevant local interpretation and application of QFESrsquo Operational Requirements in the Built Environment


51 QFES Scope Reduction InitiativeThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement Building work that meets published scope reduction criteria for a lsquominor performance solutionrsquo is not required to be assessed by QFES to receive QFESrsquo Referral Agency Response

Jurisdictional Matters Under Section 57(1) of the Planning Act 2016 QFES as a Referral Agency is entitled to provide its Referral Agency Response before a proposed development application is made

Where building work satisfies the published scope reduction criteria for a lsquominor performance solutionrsquo QFES provides its Referral Agency Response as lsquothe agency has no requirements for the applicationrsquo in accordance Section 56(1)(a) of the Planning Act 2016 No statutory fees will be charged if the Assessment Manager uses this approach

The Assessment Manager may in their discretion decide to refer the application to QFES for a Referral Agency Response In this case the Position Statement does not apply and QFES will undertake a Referral Agency Assessment and provide a Referral Agency Response consistent with legislative requirements and charge relevant statutory fees

QFESrsquo understanding of the systemmethod ishellip Operational considerations includehellip

Buildings with certain characteristics require minimal fire safety systems by the NCC In these cases the intended performance of the building in a fire is presumed to be understood driven by the absence of certain fire safety systems and the construction methods used

Subsequently where certain methods of Performance Solution are proposed in these buildings the impact on the fire safety system is limited and any impact on the likely growth and spread of a fire and likely impact on intervention tactics of QFES is predictable

To provide clarity to stakeholders adopting Performance Solutions in these types of buildings QFES can provide its key fire safety advice to stakeholders without engaging in an assessment process

QFES intends to use its discretionary power to provide its Referral Agency Response before a development application is made without charging statutory fees to encourage the use of Performance Solutions in a timely and cost-effective way

The capacity for firefighters to effectively undertake search and rescue and firefighting depends on the compatibility between the fire hazard the firefighting equipment provided and the operational capability of QFES

A common scope reduction criteria for a lsquominor performance solutionrsquo is that the building uses the prescriptive fire hydrant solution for the building which requires no more than a single street hydrant for compliance This sets QFESrsquo operational capability at the building

Similarly the scope reduction criteria are targeted at buildings that require no or very few Special Fire Services Combined with the requirements of Part C2 of Volume 1 of the NCC the fire hazard would be predicted to be a fire capable of fully involving the proposed structure Separation distances from the site boundaries and pedestrian access for firefighters from the street would be relied on to prevent fire spread to adjacent properties

QFESrsquo organisational perspective as a Referral Agency ishellip

Performance Solutions must legislatively be prepared by suitably competent and registered professionals Where the impact of a Performance Solution on QFES is predictable QFES is willing to accept the solution prepared by a responsible professional on face value and provide advice without an assessment This is not a waiver of QFESrsquo involvement in the process QFES still relies on the documentation received through the referral process to effectively perform QFESrsquo Roles and Responsibilities it concurrently holds

To responsibly accommodate the methodology and QFESrsquo operational considerations QFES still require the Assessment Manager to submit the relevant certificates and supporting documentation related to a Performance Solution at the completion of the building work

Local Application of QFES Position Statements

For QFES all buildings are unique structures The use of Performance Solutions adds another layer of individuality to buildings as do many characteristics such as use size geography and fire safety system

Therefore while QFES Position Statements provide an organisational perspective on a specific system or method the nuanced impacts and issues that may arise for each unique Performance Solution in each unique building cannot be anticipated and addressed

Stakeholders to a Performance Solution should contact a Building Approval Officer from the relevant QFES Regional Community Safety Office who is best placed to advise on the local application of QFESrsquo Position Statements for a proposed development in the Region


52 Fire Safety Verification MethodThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement Scenarios assessed should represent the worst fire(s) that are credible in the design life of the building with respect to QFESrsquo Operational Requirements in the Built Environment

Jurisdictional Matters Part A2 of Volume 1 of the NCC states that compliance with the NCC is achieved by demonstrating compliance with the Performance Requirements which must be satisfied a Performance Solution a Deemed-to-Satisfy Solution or a combination of both A Performance Solution is subsequently defined as including a Verification Method

QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 as a Referral Agency for a Performance Solution for a buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the NCC

Therefore a development application based on the Fire Safety Verification Method is required to be referred to QFES for a Referral Agency Response


The Fire Safety Verification Method puts forward a series of scenarios that are informative in testing the redundancy and sensitivity of a buildingrsquos fire safety system that has been modified from the prescriptive requirements

The intention is to demonstrate that the buildingrsquos fire safety system is lsquofit for purposersquo

As one of the primary purposes of a buildingrsquos fire safety system will be to facilitate fire brigade intervention several assumptions regarding operational requirements and capability are inherently adopted in the method

However due to the national approach of the NCC it cannot anticipate the local operational requirements and capabilities of a specific QFES Region for a specific development proposal

Subsequently the scenarios are incomplete or at least unconfirmed in their suitability to be appropriately representative of QFESrsquos operational requirements for the specific building under consideration until confirmed or amended in consultation with a QFES Officer


Subsequently the life safety of these firefighters is reliant on the buildingrsquos fire safety system functioning independently of firefighters to create conditions that facilitate their ability to undertake search and rescue and firefighting

For example keeping the fire contained to a single fire compartment and maintaining fire-isolated stairs that contain hydrants free from smoke

To effectively and efficiently perform these activities responding firefighters need confidence that the buildingrsquos fire safety system appropriately satisfies QFESrsquo Operational Requirements in the Built Environment in the worst fire(s) that are credible in the design life of the building

Where this confirmation is not provided at assessment operational tactics may need to be altered or delayed to ensure appropriate risk management at a fire event


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution proposing to use the Fire Safety Verification Method should provide QFES Officers with confirmation that the scenarios assessed represent the worst fire(s) that are credible in the design life of the building with respect to QFESrsquo Operational Requirements in the Built Environment






53 Tenability Criteria for FirefightersThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement Scenarios that quantitatively assess the effects of fire in and around a building must report on the circumstances leading to optical density temperature or heat flux exceeding 01m-1 120degC and 3kWm2 respectively

Jurisdictional Matters This Position Statement is intended to be a readily identifiable policy applied by QFES as a Referral Agency for the purposes of Section 22(2) of the Planning Regulation 2017


The International Fire Engineering Guidelines Edition 2005 identifies numerous engineering equations or programs which may be used to directly measure or predict the developing conditions in and around a building during a fire event

This information can then be compared to the physiological limitations of people who may be exposed to the developing effects of fire to determine the time until tenability for that person expires

This is broadly referred to as the Available Safe Egress Time (ASET) for evacuating building occupants and is often represented as a complex interaction between the human behaviour of occupants as they respond to fire cues and navigate evacuation routes the operation of the buildingrsquos fire safety system as it responds and actively or passively reacts to a fire and the physiological impacts of the developing effects of fire on a human

Due to the extensive range of variables in such a calculation characteristic scenarios are used to represent lsquoworst casersquo events that if survivable infer survivability during lsquolesserrsquo events

QFES firefighters rely on their equipment to operate in environments that would otherwise be untenable for humans

While this equipment enhances the firefighterrsquos ability to resist the effects of fire it does not make a firefighter immune to these effects indefinitely

For example firefighter personal protective equipment provides a passive layer of protection that permits firefighters to resist higher levels of radiant heat flux and air temperatures for a longer duration than human skin can tolerate however eventually the material and circulating air will exceed tenable levels and incapacitate a firefighter

This duration an of exposure can also be limited by the air supply that firefighters carry with them requiring firefighters to cease search and rescue and suppression activities and make their way to a clean air environment within these air supply limitations

Certain conditions can also impede or prevent firefighter operations for example low visibility during search and rescue


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution proposing to quantitatively demonstrate the effects of fire in and around a building should provide QFES Officers with confirmation of the circumstances leading to optical density temperature or heat flux exceeding 01m-1 120degC and 3kWm2 respectively

The circumstances relevant to this occurrence that may need to be discussed to provide essential context to this information may include but not limited to

ndash Time after ignition that criteria exceeded ndash Location(s) within a building where criteria is exceeded ndash Duration that criteria is exceeded in a specific location ndash Height above finished floor level that criteria is exceeded in a specific location ndash Operation and contribution of special fire services to the developing conditions and ndash Location activities and contribution of egressing occupants and intervening firefighters with respect to the developing

conditions






54 Fire Brigade Intervention ModelThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement Use of the Fire Brigade Intervention Model to quantify the activities of QFES in the event of a fire emergency at a building must be undertaken in conjunction with input from QFES Officers

Jurisdictional Matters QFES relies on a buildingrsquos fire safety system (defined by Schedule 24 of the Planning Regulation 2016) to effectively and safely undertake operational activities including search amp rescue and structural firefighting

Due to the operation of Clause A07 and A15 of Volume 1 of the National Construction Code QFES anticipate that any Performance Solution impacting a Performance Requirement related to a buildingrsquos fire safety system will be relevant to fire brigade intervention must be referred to QFES for a Referral Agency Response and should be developed holistically against QFESrsquo Operational Requirements in the Built Environment in its entirety


One of the six sub-systems under the International Fire Engineering Guidelines is lsquoFire Services Interventionrsquo Within this sub-system the Fire Brigade Intervention Model developed by the Australasian Fire and Emergency Service Authorities Council is put forward as a tool for quantifying fire service intervention

QFES is a member of the Australasian Fire and Emergency Service Authorities Council

Understanding the time required for firefighters to be notified of a fire attend the site prepare for intervention and undertake search and rescue and firefighting activities can be useful to understand many interacting elements of a fire strategy including

ndash The interaction between egressing occupants and intervening firefighters using the same evacuation route

ndash The developing conditions that firefighters are exposed to during their intervention activities and

ndash The effectiveness of the firefighting equipment provided and accessible to firefighters to extinguish the fire

Based on the understanding of the varied interactions of fire service intervention as part of the fire strategy allows designers to confidently make conclusions about Performance Solution designs

The Fire Brigade Intervention Model is intended to quantify 16 key stages of operational activities broadly in connection with QFES arrival incident assessment set-up search and rescue fire control and fire extinguishment

This information may be used to justify design aspects of a buildingrsquos fire safety system including the design of the firefighting equipment fire containment and conditions during access staging search and rescue and firefighting

The inputs used for the Fire Brigade Intervention Model will be indicative of the possible scenario that firefighters may be involved

However it is of paramount importance that the buildingrsquos fire safety system is itself capable of satisfying QFESrsquo Operational Requirements in the Built Environment if it is to be assumed that QFES can effectively progress through the 16 stages of operational activities within the Fire Brigade Intervention Model


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution that use the Fire Brigade Intervention Model must consult with QFES Officers on the appropriateness of model inputs assumptions and outputs

Under no circumstances should the outputs of the Fire Brigade Intervention Model be considered as a comprehensive model of QFESrsquo likely actions during a real fire event The Fire Brigade Intervention Model is a tool intended to be used by competent professionals who appreciate that the outputs are indicative






55 Use of Combustible External CladdingThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement Combustible external cladding should not compromise safe egress or impede firefighters in undertaking search and rescue or extinguishing the fire using the equipment provided

Jurisdictional Matters QFES is a Referral Agency for all Performance Solutions for a buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the NCC including Departures from NCC Volume 1 ndash Part C1


Cladding is the visible layer on the external wall system of a building It can be attached to a buildingrsquos framework or an intermediate layer of battens or spacers creating air cavities and space for other construction materials like insulation

Cladding is mainly used to stop wind and rain from entering the building but can also provide sound and additional thermal insulation Cladding is often used to make the building faccedilade look more attractive

Some types of cladding may contribute to the spread of fire on buildings which has resulted in substantial property damage in Australia and multiple fatalities overseas

Subsequently the use of combustible cladding on buildings is a safety concern for Queenslanders

The Queensland Government has recently included Part 4A to the Building Regulation 2006 and Part 6AA to the Queensland Building and Construction Commission Act 1991 to address those concerns for existing buildings and new buildings respectively

A fire involving the external cladding of a building can have serious detrimental impacts on QFESrsquo operational capability to safely access a building on fire undertake search and rescue and extinguish the fire with the equipment provided

For example where a fire propagates on the outside of a building it can rapidly spread to other areas of a building degrade the cladding to produce falling flaming debris that also spreads fire to other areas of the building or adjacent properties or create a fire exposure that can spread to adjacent properties

The ability to conduct external firefighting operations is greatly influenced by the access to the site access around the site and the height of the building and combustible cladding may facilitate fire spread to areas beyond the capacity of QFES aerial appliances or falling flaming debris that could harm firefighters

Additionally QFES rely on internal building compartmentation to undertake effective search and rescue and firefighting operations within a building with the equipment provided

Where a fire may spread to other fire compartments life safety risks to firefighters such as direct exposures compromised conditions and ineffective fire safety systems may be introduced


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution involving combustible external cladding should provide QFES Officers with confirmation that combustible cladding used on a building

1 Does not compromise occupant life safety or prevent the safe evacuation of occupants from the building2 Does not compromise firefighter life safety or the notification access conditions and equipment required by the QFES3 Does not contribute to vertical fire spread beyond the storey of fire origin4 Does not contribute to fire spread beyond fire compartment boundaries and other fire separating elements5 Does not contribute to fire spread between buildings on the same allotment or on adjacent properties and6 Does not produce fallingflaming debris that could cause fire spread andor harm occupants or firefighters

This information should be provided in addition to satisfaction of QFESrsquo Operational Requirements in the Built Environment






56 Use of Jet Fans in CarparksThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement The use of jet fans in a carpark should not contribute to evacuation routes being compromised by smoke or impede the effective operation of a buildingrsquos fire safety systems

Jurisdictional Matters Depending on the jet fan arrangement and functional operation in the event of a fire the use of jet fans in a carpark can constitute either a departure from AS 16682 or AS 16681 which are both referenced standards by the NCC

A departure from one or both of these Australian Standards would require a Performance Solution and due to the operation of Clause A07 and A15 of Volume 1 of the National Construction Code be relevant to one or more aspects of the buildingrsquos fire safety system and subsequently required to be referred to QFES for assessment against QFESrsquo Operational Requirements in the Built Environment and a Referral Agency Response


Traditionally ducted ventilation systems are used for the ventilation in carparks to satisfy the requirements of AS 16682

Ducted ventilation generally involves two networks of metal ducting with one providing supply air and the other exhausting air through large continuously operating mechanical fan units

Although simple in principle ducted ventilation systems can be considerably costly installations in complicated or expansive carpark structures due to large tracts of ductwork large fan units and high energy demand as the system is constantly operating

AS 16682 now permits concessions for traditional systems by using lsquohellipan additional air-moving device such as a jet fanhelliprsquo and a performance route for maintaining safe Carbon Monoxide levels

Axial or induction jet fans operating continuously or in an lsquoimpulsersquo action upon detection of excess Carbon Monoxide levels have been used to achieve this performance

These jet fans are a self-contained unit that incorporates its own supply air intake fan unit and high velocity exhaust outlet This operation allows the jet fan to very effectively lsquomixrsquo large volumes of air in the immediate vicinity upon activation




For example smoke-logging of evacuation routes and the surrounding areas can delay or impede firefighter access to incapacitated occupants and the fire itself

This issue is exacerbated where QFESrsquo activities could introduce a path for smoke travel to the evacuation routes

If a system such as jet fans forces the mixing of smoke instead of forming a stratified smoke layer in a carpark then smoke-logged conditions are likely to happen more quickly

If the velocity and direction of the exhaust air from a jet fan is enough to displace the firesmoke plume this is also likely to cause effects such as lsquoskippingrsquo of sprinkler heads and activations remote from the fire location where the water is needed


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution involving the use of jet fans in carparks should provide QFES Officers with confirmation that

1 There is a means to shut down all jet fans in the very early stages of fire development 2 The air flow conditions contributed to by the jet fans will not cause smoke to compromise evacuation routes or fire exits and3 The air flow conditions contributed to by the jet fans will not cause the activation of suppression systems to be delayed







57 Self-Storage BuildingsThis Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement The special hazard presented by self-storage buildings should be controlled by active andor passive fire safety systems to contain the fuel load and fire intensity appropriate to QFESrsquo Operational Requirements in the Built Environment during the worst fire(s) that are credible in the design life of the building particularly with respect to Fire Resistance and Stability Firefighting Equipment and Smoke Hazard Management

Jurisdictional Matters QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 as a Referral Agency for a Performance Solution for a buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the NCC Therefore QFES consider this Position Statement to be relevant to any Performance Solution for a self-storage buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the NCC

QFES considers NCC clauses E110 and E23 (provision for special hazards) to be applicable and that compliance with applicable NCC Performance Requirements may be demonstrated via a Performance Solution that appropriately addresses and provides for the special hazards


Self-storage buildings have an intended use that promotes a consistently high-density fuel load but consisting of highly variable content and fuel orientation

This represents a high fuel hazard which cannot be easily controlled by eliminating the hazard (ie fuel load) as this would be counter-productive to the intended use

To some extent the fire risk to occupants may be managed by a very limited occupancy and provisions for fire detection and warning for those limited occupants present at the time of a fire

Self-storage buildings also tend to incorporate gantry style walkways partially open-cell walls between storage units and limited to no fire compartmentation

It is understood that this is to amongst other things maximise lettable space for storage and promote efficient air-circulation in larger multi-level buildings

A fire in a self-storage building can be very large and volatile with serious detrimental impacts on QFESrsquo operational capability to safely access the fire undertake search and rescue contain fire spread and extinguish the fire with the equipment provided

For example where a fire can grow rapidly and spread from storage unit to storage unit the production and accumulation of heat and smoke can quickly make conditions in the building untenable for firefighters and grow beyond the capacity of the provided internal hydrant system This may result in firefighter retreat paths being cut-off by fire places of relative safety being used for fire brigade staging operations becoming compromised andor the partial progressive or total collapse of the building trapping or harming firefighters

These risks are compounded where hidden hazards exist including the presence of unknown quantities of explosive or hazardous substances and highly volatile combustibles


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution involving self-storage buildings should provide QFES Officers with confirmation that

1 There is an enforceable means to restrict the presence of explosive or hazardous substances and2 There are active and passive provisions to contain the fuel load and fire intensity to a size

a) Within the operational capacity of QFES and the extinguishing capacity of the equipment providedb) That prevents the partial progressive or total collapse of the building andc) Contains the spread and accumulation of smoke to allow firefighters to undertake search and rescue and extinguish the

fire using the equipment provided



For QFES all buildings are unique structures The use of Performance Solutions adds another layer of individuality to buildings as do many characteristics such as use size geography and fire safety system Therefore while QFES Position Statements provide an organisational perspective on a specific system or method the nuanced impacts and issues that may arise for each unique Performance Solution in each unique building cannot be anticipated and addressed



58 Automated Vehicle Parking System (Car Stackers)This Position Statement provides stakeholders with details of QFESrsquos position on a specific building fire safety matter This Position Statement is current at the time it is viewed

QFES Position Statement The use of Automated Vehicle Parking Systems (AVPS) also known as lsquoCar Stackersrsquo is considered to be a special hazard and outside the scope of the Deemed-to-Satisfy (DTS) provisions of the NCC Car stackers should therefore be addressed as a Performance Solution Performance Solutions should be developed with consideration to AFACrsquos lsquoFire Safety Requirements for Automated Vehicle Parking Systemsrsquo Guideline and should also satisfy QFESrsquo Operational Requirements in the Built Environment

Jurisdictional Matters QFES is regulated by Schedule 9 Part 3 Division 3 of the Planning Regulation 2017 (Qld) as a Referral Agency for a Performance Solution for a buildingrsquos fire safety system assessed against the Performance Requirements of Volume 1 of the NCC

NCC Clauses E110 and E23 (Provision for special hazards) are considered to be relevant

QFES considers that the use of car stackers is a Performance Solution and that compliance with all relevant NCC Performance Requirements must be demonstrated in accordance with the NCC Part A2

In accordance with the AFAC guideline QFES considers that relevant NCC Performance Requirements include (but are not necessarily limited to) CP1 CP2 EP11 EP12 EP13 EP14 EP15 EP16 and EP22


The Australasian Fire and Emergency Service Authorities Council (AFAC) has produced a detailed guideline on car stackers - lsquoFire Safety Requirements for Automated Vehicle Parking Systemsrsquo QFES is an AFAC member agency and endorses the content of the guideline document

The guideline contains detailed information about the fire safety considerations associated with the use of car stackers

The primary objectives of the AFAC guideline are summarised as being to

ndash describe the specific issues affecting occupant life safety and fire brigade intervention associated with car stackers

ndash identify the limitations of the relevant building regulations with respect to car stackers

ndash identify special hazards associated with car stackers ndash provide guidance to practitioners that design and certify

building solutions for car stackers

Practitioners should refer to the guideline for full information The guideline can be downloaded from the AFAC website

httpswwwafaccomauinsightdoctrinearticlecurrentfire-safety-requirements-for-automated-vehicle-parking-systems

The AFAC guideline contains detailed guidance on operational firefighting concerns and the hazards involved in fighting vehicle fires To assist designers to better understand the importance of providing access and fire safety systems in these buildings the fire hazards and considerations are included (but are not limited to) the following

ndash accelerated horizontal and vertical fire spread potentially compromising fire brigade intervention times for search rescue control and extinguishment activities

ndash rapid development of heat and dense smoke limiting firefighting operations prior to the onset of firefighter tenability limits

ndash difficulties in applying effective firefighting medium due to shielding of fire by other vehicles consideration to be given to two access points for firefighters to provide alternative means of attack to shielded fires in a dense storage configuration

ndash shielded fires resulting in the need for firefighters to manually force bonnets doors boots panels etc risks to firefighters exacerbated due to poor access in a car stacker situation

ndash risks of firefighter injury due to dragging hoses and negotiating around vehicles and other obstructions etc

ndash other hazards eg electric hybrid vehicles storage batteries LPG-fuelled vehicles and BLEVE failure of vehicle brake systems fuel fires failure of the car stacker structure etc

Note refer to the AFAC guide for further detailsinformation


To inform QFESrsquo Referral Agency Response stakeholders to a Performance Solution involving the use of lsquocar stackersrsquo should provide QFES Officers with suitable evidence demonstrating that the Performance Solution has addressed the AFAC lsquoFire Safety Requirements for Automated Vehicle Parking Systemsrsquo Guideline This includes consideration of AS 5124 (Safety of machinery - Equipment for power driven parking of motor vehicles etc) Appendix ZX - Additional Considerations for Australia in particular ZX5 - Fire Brigade Requirements



For QFES all buildings are unique structures The use of Performance Solutions adds another layer of individuality to buildings as do many characteristics such as use size geography and fire safety system Therefore while QFES Position Statements provide an organisational perspective on a specific system or method or hazard controls local advice through engagement of QFES Regional representatives is recommended QFES Regional Community Safety Office


6 QFES Referral ProcessQFES broadly endorses the stakeholder engagement process detailed within the International Fire Engineering Guidelines Edition 2005 and will make a QFES Building Approval Officer available to participate as a stakeholder

QFES Building Approval Officers represent QFES in this process as they are highly experienced operational firefighters with specialist knowledge and training in the built environment These QFES Officers are supported more broadly by technical specialists within QFES in the fields of fire engineering and special operations

Applications for QFES Building Approval Officer involvement should be made via QFES e-lodgement

61 Stages of QFES Referral

62 Unwanted AlarmsStakeholders should also be aware of QFESrsquo Guideline for the Reduction of Unwanted Alarms and the process for informing QFES about the reduction of unwanted alarms in certain types of buildings

63 Independent Third Party ReviewWhere QFES is concerned that a Performance Solution could produce detrimental outcomes for occupants or firefighters QFES may recommend that the Assessment Manager seeks an independent assessment of the proposal from a suitably qualified and registered professional

QFES may recommend this during the stakeholder engagement process or as a condition to its Referral Agency Response under Section 56(1)(b)(i) of the Planning Act 2016 with the intention of determining

1 Whether the buildingrsquos fire safety system (including proposed Performance Solutions) intends to satisfy QFESrsquo Operational Requirements in the Built Environment

2 Whether the assessment methods proposed are appropriate to form a conclusion that QFESrsquo Operational Requirements in the Built Environment are or are not satisfied and

3 Whether the inputs assumptions and application of assessment methods are appropriate to be confident in a conclusion that QFESrsquo Operational Requirements in the Built Environment are or are not satisfied

64 QFES Assessment FeesPart 6 of the Building Fire Safety Regulation 2008 obliges QFES to charge statutory fees for assessment activities undertaken in connection with its role as a Referral Agency

QFES has developed a QFES Fees Calculator to assist stakeholders to a Performance Solution to calculate the statutory fees likely to be incurred based on the characteristics of their referral to QFES


7 Inspection Testing amp CommissioningQueensland legislation imposes obligations on several parties to ensure that a Performance Solution is installed tested and commissioned as intended by the approval documentation

71 Inspection of Special Fire Services amp Performance Solution AspectsSection 74 of the Building Act 1975 imposes a condition on any approval for a building served by a Special Fire Service that QFES must be given a notice to inspect the installation and later test the service

Section 39 of the Building Regulation 2006 states that on receiving the notice the referral agency may inspect the building work or inspect or test the service to check the referral agency aspects comply with the building development approval Following inspection of the work or testing of the service the referral agency must give the builder and building certifier a notice stating that (i) the referral aspects comply with the building development approval or (ii) the referral aspects do not comply with the building development approval and the reasons why they do not

A Performance Solution can involve or relate to any aspect of a buildingrsquos fire safety system potentially utilising both passive and active systems beyond the limited definition of Special Fire Services to warn people of an emergency provide for safe evacuation restrict the spread of fire and extinguish a fire

As one of the primary purposes of a buildingrsquos fire safety system will be to facilitate fire brigade intervention where an aspect of a Performance Solution that substantively contributes to satisfying QFESrsquo Operational Requirements in the Built Environment it will be important to QFES that it is appropriately implemented

Therefore QFES may advise that an aspect of a Performance Solution be inspected by QFES upon implementation as a condition to its Referral Agency Response under Section 56(1)(b)(i) of the Planning Act 2016

The intention of such a condition is ensuring the aspect of the Performance Solution is implemented in a way that is compatible with QFES operational needs

72 QFES Inspection FeesPart 6 of the Building Fire Safety Regulation 2008 obliges QFES to charge statutory fees for inspections undertaken in connection with its role as a Referral Agency


73 Fire Engineer VerificationTo ensure that all Performance Solution requirements are satisfactorily implemented on site QFES advises that the responsible Fire Engineer should be involved in the construction testing commissioning and final inspection stages to the extent necessary to verify that the building has been constructed in accordance with the requirements of the Performance Solution and other associated fire safety aspects of the building development approval The Fire Engineer should also verify that all ongoing fire safety management requirements are in place

Prior to issuing a final inspection notice QFES may request that the Fire Engineer provides a reportcertification confirming satisfactory completion and implementation of all Performance Solution and associated requirements


8 Occupation amp MaintenanceQueensland legislation imposes obligations on various parties to ensure that a Performance Solution is maintained to its designed standard and that critical fire safety information is available for the life of the building

81 Certificate of ClassificationSection 103 of the Building Act 1975 specifies the form and content requirements for the Certificate of Classification including information about any Alternative (Performance) Solution including the materials systems methods of building management procedures specifications and other things required under the Alternative (Performance) Solutions Section 107 of the Building Act 1975 requires that the Building Certifier provide QFES with a copy of the Certificate of Classification a list of all fire safety installations and drawings identifying their locations

82 Permanent Notice about Performance SolutionsWhile not legislatively required it is strongly recommended by QFES that a notice identifying any Performance Solution(s) and a statement of their impactfunction is permanently fixed at the buildingrsquos entrance (eg at the Fire Indicator Panel) to assist in the coordination of QFESrsquo response to a fire emergency at the building

83 Maintenance of Performance Solution AspectsSection 104D of the Fire and Emergency Services Act 1990 requires the occupier of a building to always maintain every prescribed fire safety installation to a standard of safety and reliability in the event of a fire This includes maintaining all aspects of Performance Solutions which formed part of the buildingrsquos approval certificates

The definition of fire safety installation provided in Schedule 2 of the Building Act 1975 includes any ldquothingrdquo required to comply with the Alternative (Performance) Solution

Part 5 of the Building Fire Safety Regulation 2008 requires that prescribed fire safety installations be maintained in accordance with Queensland Development Code Mandatory Part 61 It includes maintenance requirements for Performance Solutions and specifies to the extent of any inconsistency that the requirements of the Performance Solution prevail In other words if the Performance Solution specifies maintenance requirements that differ from those set out in MP61 then those specified requirements must be complied with

84 Fire and Evacuation PlanSection 104D of the Fire and Emergency Services Act 1990 requires the occupier of a building to always maintain a Fire and Evacuation Plan for the building This must include the information specified in Part 4 of the Building Fire Safety Regulation 2008 Section 24 of the Regulation requires that a Fire and Evacuation Plan must include any fire safety management procedure required under an Alternative (Performance) Solution where the fire safety management procedure is a condition of the occupation and use of the building

85 Information Storage amp SharingSection 25 of the Building Fire Safety Regulation 2008 requires the occupier of a building to take reasonable steps to obtain and keep relevant approval documents (eg the Fire Engineering Report relied upon for approval) with the buildingrsquos Fire and Evacuation plan Therefore it is important that stakeholders to a Performance Solution share or make readily available relevant approval documents to parties who hold an obligation described above and impart the importance of transferring that information to the appropriate party upon each change of occupation or ownership of a building

86 Management-in-Use Plan While not legislatively required it is strongly recommended by QFES that a Management-in-Use Plan is produced to supplement the Certificate of Classification Fire and Evacuation Plan and relevant approval documents with a clear summary all Performance Solution aspects to be maintainedobserved to comply with the above obligations

Version 102020

41

1Introduction

11Purpose of this Guide

2QFES Jurisdiction

21NCC Performance Requirements Relevant to QFES Operations

22Submission Requirements

3QFES Roles and Responsibilities

31QFES as the Emergency Response Service and Fire Safety Advocate

32QFES as the Regulator

33QFES as the Employer

4Operational Requirements in the Built Environment

41Departures from NCC Vol 1 ndash Part C1



44Departures from NCC Vol 1 ndash Part D1



47Departures from NCC Vol 1 ndash Part E1




411Departures from QDC MP22


5QFES Position Statements

51QFES Scope Reduction Initiative

52Fire Safety Verification Method

53Tenability Criteria for Firefighters

54Fire Brigade Intervention Model

55Use of Combustible External Cladding

56Use of Jet Fans in Carparks

57Self-Storage Buildings

64QFES Assessment Fees

62Unwanted Alarms

61Stages of QFES Referral

7Inspection Testing amp Commissioning

72QFES Inspection Fees

8Occupation amp Maintenance

86Management-in-Use Plan


1 IntroductionWelcome and thank you for accessing Queensland Fire and Emergency Servicesrsquo (QFES) Guide to the Referral of Performance Solutions QFES trusts that this resource will prove a valuable starting point for your interaction with QFES in our role as a Referral Agency for Performance Solutions for a buildingrsquos fire safety system

11 Purpose of this GuideThe main purpose of this guide is to communicate QFESrsquo expectations of referred Performance Solutions to facilitate effective stakeholder engagement with QFES and encourage desirable Referral Response outcomes

This Guide is intended to be read by all stakeholders to a Performance Solution however primarily used by the Assessment Manager and the Fire Engineer responsible for the buildingrsquos fire safety system

Secondary purposes include guidance on

bull QFESrsquo position with respect to certain aspects of referred Performance Solutionsbull The process of referring Performance Solutions to QFESbull QFESrsquo submission expectations for referred Performance Solutionsbull QFESrsquo inspection and commissioning practices related to Performance Solutionsbull The ongoing role of QFES in occupied Performance Solution buildings including QFESrsquo maintenance

monitoring practices related to Performance Solutions

Important Notes1 This document is a guide only Reference should be made to all relevant legislation and associated codes standards and other

guidance documents for full details of applicable legislative requirements

2 This Guide should not be considered as a replacement for seeking independent professional advice on matters of fire engineering or legislative requirements for lawful development applications

3 Users should ensure that any printed copies of this document within their possession and any referenced codes or standards are the latest revisions or include the latest amendments












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