capital development guideline - human services … development guideline 7.4 fire risk management in...

Capital Development Guideline7.4 Fire Risk Management in Supported Community-Based HousesCapital Management Branch September 2001

Fire

Ris

k M

anag

emen

t

Capital DevelopmentGuideline7.4 Fire Risk Management inSupported Community-Based Houses

Capital Management Branch

September 2001

7.4 Fire Risk Management in Supported Community-Based Houses, Edition 2 © State of Victoria, September 2001

Acknowledgments(c) Copyright State of Victoria 2001.

Published by the Capital Management Branch, Resources Division,

Victorian Government Department of Human Services.

Design and production by Human Services Corporate Communications Unit

Prepared by: Warrington Fire Research Aust. Pty Ltd

Edition 2This publication is available at Department of Human Services Intranet address:http://intranet_1/capital/contents.htm

AccreditationThe Building Control Commission has granted a Certificate of Accreditation to Capital DevelopmentGuideline 7.4 Fire Risk Management in Supported Community Based Houses. The Certificate ofAccreditation references the October 1999 version of the guideline which is now published as Edition 2.

ValidityThis guideline will be revised on an as-needs basis. The reader should check the status of thedocument prior to implementing any requirements.

The copyright in this guideline is owned by the State of Victoria. Photocopying or other reproductionof this material without permission is prohibited. All other rights reserved.

DisclaimerCompliance with this guideline alone should not be considered as automatically satisfying thebuilding regulations or occupational health and safety obligations of a building owner or operator, noras satisfying applicable legislation.

No liability will be accepted for any loss or injury occurring in relation to the use of this document forany purpose.

It is the responsibility of the fire safety engineer and/or the relevant building surveyor undertakingthe consultancy works to formulate a fire safety strategy that would satisfy the nominated Departmentof Human Services’ objectives and relevant statutory requirements.

ii


Contents

1. Introduction 1

2. Fire Risk Management Objectives and Minimum Standards 3

3. Definitions 5

4. Field of Application 7

5. Fire Risk Management Requirements 9

6. Prioritisation 15

7. Implementation 17

Bibliography 19

Appendix 1: Application 21

iii

iv 7.4 Fire Risk Management in Supported Community-Based Houses, Edition 2 © State of Victoria, September 2001

1. Introduction

1.1 This guideline specifies the minimum firerisk management requirements for supportedcommunity-based houses operated by theDepartment of Human Services or Department-funded organisations. The target groups for thisguideline are accommodation services funded byDisability Services, Aged Care Services, andMental Health Services.

1.2 The primary users of this document areexpected to be facility designers, fire safetyengineers, building surveyors and staffresponsible for fire risk management

1.3 This guideline forms part of a series ofdocuments presenting consistent fire riskmanagement principles for the Department ofHuman Services. The format of the series ofguidelines is shown below in Figure 1.

1.4 This guideline has been prepared to clarifythe fire risk management requirements includingbuilding requirements and the buildingregulations for the type of buildings concerned. Itis intended to provide guidance on the selection,operation and protection of supportedcommunity-based houses, in order to achieve alevel of fire risk management consistent withcommunity expectations and the goals of theDepartment of Human Services.

1.5 This guideline has been prepared to beconsistent with the performance based BuildingCode of Australia 1996 (BCA 1996) and theBuilding Regulations, as amended including the1997 amendments.

1.6 A building surveyor may deem that the firerisk management requirements given in section 5of this guideline satisfy the performancerequirements of the BCA 1996. The Departmentof Human Services has gained accreditation ofthis guideline by the Building ControlCommission.

1.7 The Fire Risk Management Guidelinesprovide a general indication of the Department ofHuman Services expectations for fire riskmanagement in buildings owned or occupied bythe Department of Human Services or by

Department-funded agencies. The guidelinesenable appropriately qualified professionaladvisers, such as registered fire safety engineersand building surveyors, to assess fire risk,recommend steps to minimise fire risk, and toassess and report on acceptable standards of firesafety, in specific settings.

The use of the guidelines is subject to thefollowing:

a) The guidelines do not constitute specific firesafety advice and are provided for assistance indetermining appropriate fire safety measures. Itis up to individuals acting with appropriateprofessional advice to determine their applicationto particular situations.

b) Each guideline should be used for purposesonly within the field of application defined ineach document. In addition to the fire safetyrequirements and standards in the guidelines,owners and operators of facilities may be subjectto various statutory, common law andcontractual obligations. They should seek specificlegal advice on the existence and scope of theseobligations.

1.8 The Department of Human Services makeno representation that the guidelines are suitablefor any particular situation, and accepts noresponsibility for any loss or damage arising outof any decision to apply the guidelines to anyparticular situation.


Refer to section 3 for definitions of the occupancy types.

2 7.4 Fire Risk Management in Supported Community-Based Houses, Edition 2 © State of Victoria, September 2001

Figure 1: Department of Human Services Fire Risk Management Guidelines

CDG 7.1 Fire Risk Management Policy and Procedures

Fire Risk Management Guidelines for Specific Occupancy Types

Fire and Emergency Response Procedures andTraining Framework

CDG 7.2 Fire Risk Management EngineeringGuidelines

Fire Statistics forResidential Properties

Fire Statistics forHealth Care Facilities

CDG 7.3Secure

Facilities

CDG 7.4Supported

Community-Based Houses

CDG 7.5Congregate

Care Facilities

CDG 7.6Hospitals

CDG 7.7Community-Based Houses

CDG 7.8Single

Dwellings

CDG 7.9Multi-storey

housing

CDG 7.10BoardingHouses


(emergency) management as an integral part ofany fire risk management strategy. Since theseare not adequately addressed in the BCA 1996,this document includes additional guidance.

2.4 The individual performance requirementsspecified in the BCA 1996 must be satisfied, orequivalency with deemed-to-satisfy solutionsdemonstrated, to comply with the BCA 1996.

2.5 To aid interpretation of these statutoryrequirements, the objectives and functionalstatements presented in the various parts of theBCA 1996 (Class 2 to Class 9 buildings) havebeen consolidated and are listed below:

BCA Objectives• Safeguard people from illness or injury due to

fire in a building.• Facilitate the activities of emergency services

personnel in the event of a fire.• Protect other buildings and property from

physical damage due to collapse or firespread.

• Maintain fire protection equipment to satisfythe above objectives.

BCA Functional Statements • A building is to be constructed to maintain

structural stability during a fire to:• Allow occupants time to evacuate safely.• Allow for fire brigade intervention.• Avoid damage to other property.

• A building is to be provided with safeguardsto prevent fire spread:• To adjoining fire compartments.• To sole occupancy units (SOUs) and public

corridors.• So that occupants have time to evacuate

safely without being overcome by the effectsof fire.

• To allow for fire brigade intervention.

2.6 In many types of facility it must beacknowledged that the buildings are clients’homes and it is desirable to minimise theperception of an institution.

2. Fire Risk Management Objectives and Minimum

Standards 2.1 The Department of Human Services fire riskmanagement objectives comprise the following:

Primary Objectives• To safeguard people from illness or injury due

to a fire in a building.• To comply with building regulations and

other appropriate legislation.

In order to satisfy the first objective ofsafeguarding people, the Department of HumanServices requires:• A fire safety audit and risk assessment to be

undertaken by an appropriately qualified firesafety engineer to determine fire hazards andreasonable practicable precautions to addressthe hazards.

or• Full compliance with the prescriptive

requirements of this guideline.

Secondary Objectives• Maintain services to the local community.• Continue operation (minimise business

interruption).• Protect assets.• Enhance public image and satisfy moral

obligations.

A judgement is required as to the relativeimportance of a facility or part thereof, in orderto ascertain if there is a need for additionalprecautions to satisfy secondary objectives. Thefacility management, in consultation with theDepartment of Human Services, will normallymake this judgement.

2.2 The objectives, functional statements andperformance requirements of the BCA 1996,supplemented by the Building Regulations, infercommunity expectations for fire riskmanagement. The Department of HumanServices has adopted these as a benchmark forfire risk management in its facilities.

2.3 The Department of Human Servicesconsiders fire prevention and fire safety

3

2.7 The Building Regulations in the 1 August1997 amendment, prescribe automatic sprinklerprotection to existing buildings classified in thisguideline to be supported community-basedhouses.

Reference to Acts, Regulations,Codes and Standards andGuidelines2.8 Throughout this document reference to anyAct, regulation, code, standard and guidelineshall be taken as referring to the current versionas amended at the time of use.


3. Definitions

Congregate Care FacilityA ‘residential care building or group ofbuildings’, as defined in the BuildingRegulations, with 24-hour on-site support or carestaff, and having a floor area greater than 350m2or accommodating more than six residents where10% or more require significant (or physical)assistance to evacuate the building during anemergency.

Community-Based HousesHouse of a typical domestic type constructionand layout with a total floor area up to 350m2

with 24-hour staff, accommodating no more than12 persons of which not more than one requireassistance to evacuate the building during anemergency.

Evacuation CapabilityThe ability of the occupants (including residents,visitors and staff) to evacuate a building. Theevacuation capability takes account of the abilityof staff and residents to assist each other duringthe evacuation.

Fire Resistance LevelThe grading periods in minutes determined inaccordance with specification A2.3 of BCAVolume One.

Fire Risk AssessmentIn the context of these guidelines a fire riskassessment is one or more, normally acombination, of:• a qualitative fire risk assessment• a quantitative fire risk assessment• a regulatory assessment

Depending on the particular application.

Fire Safety EngineerAn engineer, who is registered under the categoryof engineer, Class of Fire Safety Engineer by theVictorian Building Control Commission and hasappropriate experience in conducting fire safetyaudits and risk assessments.

Fire Safety StrategyA combination of physical and humanmeasures/factors including maintenance andmanagement systems which have been specifiedto achieve nominated fire risk managementobjectives.

Human Factors (Measures orPrecautions) Occupant characteristics, management practices,emergency control organisation, training and thelike that may impact on fire safety. Humanmeasures or precautions typically relate tofacilities/building management issues.

Interim Fire Safety PrecautionsTemporary or permanent fire safety measures toaddress severe fire hazards prior to theimplementation of the full fire safety upgradeworks. Interim measures do not, as a matter ofcourse, bring facilities to compliance.

Non-CombustibleNot deemed combustible by the BCA or whentested to AS1530.1—combustibility tests formaterials.

Physical Factors (Measures orPrecautions) Fire protection equipment, lining materials,architectural layout, egress provisions and thelike that may impact on fire safety. Physicalmeasures or precautions generally relate tocapital works.

Practical (practicable) Practical (practicable) having regard to:(a) The severity of the hazard or risk in question.(b) The state of knowledge about the hazard or

risk and any ways of removing or mitigatingthat hazard or risk.

(c) The availability and suitability of ways toremove or mitigate that hazard or risk.

(d)The cost of removing or mitigating that hazard or risk.


Primary Means of ExitA continuous and unobstructed way of gettingfrom any point in the building to a road or openspace which would be likely to be the first choicefor an occupant in a fire emergency.

Relevant Building SurveyorThe building surveyor appointed to the project.

Relevant Fire Safety EngineerThe fire safety engineer appointed to the project.

Risk AssessmentAn assessment of the potential for the realisationof an unwanted event, which is a function of thehazard, its probability and consequences. See alsoFire Risk Assessment.

Secondary Means of ExitAn alternative means of escape, which can beused if the primary means of escape is notavailable. Windows that can open and the likemay be used as a secondary means of escape butnot as a primary means of escape.

Single DwellingA detached house or one or more attacheddwellings, each being a building separated by afire-resisting wall, and housing a family unit.

Sole Occupancy Unit (SOU) The BCA 1996 definition of a sole occupancy unitis a room or other part of a building foroccupation by one or joint owner, lessee, tenantor other occupier to the exclusion of any otherowner, lessee, tenant or other occupier.

Supported Community-Based HousesHouses of a typical domestic type constructionand layout, which may be on separate sites orgrouped together on one site with 24-hour on-sitesupport or care staff and having a floor area notgreater than 350m2 and accommodating no morethan six residents and where any of the residentsrequire significant (or physical) assistance toevacuate the building during an emergency.


4.1 The fire risk management requirementsgiven in section 5 of this guideline are applicablewithin the following field of application:• One or two storey houses of typical domestic

style construction and layout with a total floorarea not greater than 350m2.and

• With a maximum of six clients who requirephysical assistance with daily activities and toevacuate the building during an emergency.

and• With 24-hour on-site support or care staff.

4.2 Any variations from the Fire RiskManagement Requirements specified in section 5must be evaluated against the objectives andminimum standards given in section 2 of thisguideline and against the relevant performancerequirements of the BCA 1996, the BuildingRegulations and Occupational Health and SafetyRegulations.

4.3 Refer to appendix 1, section A1, forprogram-specific applications of this guidelineand section A2 for program specific exclusions.

4.4 Units separated by firewalls complying withthe deemed-to-satisfy provisions specified insection C2.7 of the BCA 1996 may be treated asseparate buildings.

4. Field of Application


5. Fire Risk Management Requirements

5.5 As a minimum, the smoke detection/alarmsystem shall comply with AS3786 and AS1670.6,be connected to the main power supply withbattery back up, and have all smoke alarmsinterconnected. Smoke detection systemscomplying with AS1670.1 with an alarmsatisfying the requirements stated above areacceptable.

5.6 If the responsible staff member is located ina different building on the same site, thefollowing additional measures shall beincorporated in the detection/alarm system:• The smoke detection and alarm facilities in the

supported community-based houses shall beprovided with a means of alerting the staff atall times and identifying, as a minimum, thebuilding in which the detector was activated.

• If sleeping facilities are provided, the alarmshall not be less than 75dBA at the pillow inthe staff accommodation.

Automatic Fire Sprinkler Systems5.7 An automatic fire sprinkler systemcomplying with AS 2118.4 as a minimum must beprovided in all new supported community-basedhouses.

Notes:

Consideration should be given, where practical,to providing means of activating the smokedetection system alarm(s) upon operation of asprinkler head and providing valve monitoringwhere appropriate.

AS2118.4 requires roof space sprinklerprotection when combustible materials arepresent. Timber trusses and joists are generallyignored when determining if roof spacesprinklers are required.

In some cases, removal of combustiblematerials may be a more cost-effective solutionthan providing coverage to the roof space.

The provision of automatic sprinkler systemsprior to August 2002 is mandated by the BuildingRegulations for all existing supportedcommunity-based houses. See section 6 of this


Hierarchy of Requirements5.1 Mandatory requirements are stated usingverbs such as ‘shall’ and ‘must’.

Where it is recognised that it may not be practicalto implement some less critical measures in allexisting supported community-based houses andsome new facilities, these measures have beennominated using verbs such as ‘should’ and ‘may’.Such measures are considered to represent goodpractice and shall be incorporated where practicalin new buildings, and at the time of major buildingor refurbishment in existing buildings.

Additional guidance is provided in some of thefollowing sections on the implementation of non-mandatory measures

Number of Storeys5.2 All new supported community-basedhouses shall be of single storey construction and,where practicable, existing two-storey supportedcommunity-based houses should be phased out.

Smoke Detection/Smoke AlarmSystems5.3 Smoke detectors or smoke alarms shall beinstalled in every bedroom, in primary exitroutes, hallways, living areas, staff offices/areasand the like.

5.4 Upon activation of any smoke detector orsmoke alarm, an audible alarm must operate toprovide an A-weighted sound pressure levelthroughout the building as defined below:• Exceed the noisiest background by at least

15dBA.• Not be less than 65dBA at any point in the

building and 75dBA at the pillow position ofthe bed used by staff members if sleepoversare permitted.

• Not be more than 105dBA at any point.

Note:

It is preferable that the sound pressure level is

• Not less than 75dBA at all pillow positions.

• Not more than 95dBA at any point.

guideline for information on the prioritisation ofhouses for the provision of automatic firesprinklers.

Means of Exit5.8 A primary means of exit must be provided.

All doors on the primary exit path and doorsleading to the primary exit path must be readilyopened without a key from the side that faces aperson exiting the building.

5.9 Where security measures are required toprevent doors on a path of travel to an exit beingreadily opened without a key, electric strikes orequivalent, which release the door uponactivation of the fire alarm system or upon powerfailure, may be used to comply with the aboverequirements.

5.10 If bedroom doors are capable of beinglocked by residents (for example, to secure theirbelongings and/or provide privacy from otheroccupants) each staff member must be providedwith a master key capable of opening all doors.The doors must, however, be easy to openwithout a key from inside the bedroom.

5.11 A security chain may be fitted to thebedroom door of a carer on ‘sleepover’ where itis considered there is a risk of attack and it isdesired to leave the bedroom door ajar tomonitor residents.

5.12 Kitchen and lounge areas should, wherepractical, be separated from the primary exitpaths and from bedrooms by non-combustiblewall construction, for example, plasterboard andwith solid core doors or equivalent.Consideration should be given to fitting smokeseals and door closers to these doors.

5.13 A secondary means of exit should, wherepractical, be provided. This may comprise:• An alternative means of escape which satisfies

the requirements for a primary exit.or• Windows, easily opened without a key from

inside provided in each bedroom with a clearopening not less than 500mm x 610mm high

and not more than 1.2m above floor level, toserve as a secondary means of escape. Thisshould provide access to an area that is notland locked or an open space at least 6m x 6m.

Note:

Some of the above requirements have not beenmade mandatory because it is recognised that inmany existing domestic style dwellings it maybe impractical to achieve full compliance.

Fire Separation of Buildings5.14 Fire separation of supported community-based houses shall, as a minimum, comply withthe requirements of the BCA 1996 for Class 1bexcept for the case of existing buildings, whereeither:a) It can be shown that the safety of the building

occupants and the risk of spread of fire to orfrom adjoining buildings will not be adverselyaffected.

orb) A determination is obtained from the Building

Appeals Board.

Protection against ExternalEnvironmental Hazards5.15 If dwellings are built in bushfire proneareas, the additional precautions as nominated inthe BCA 1996 Volume 2 Part 3.7.4 shall becomplied with to the extent required by theBuilding Regulations.

5.16 If dwellings are built in alpine areas,additional precautions as nominated in the BCA1996 Volume 2 part 3.7.5 shall be complied withfor new buildings and as required by theBuilding Regulations. For existing buildings,which are not required under the BuildingRegulations to be brought into compliance withthe BCA 1996, all external doors as a minimumshould open inward.

Linings5.17 Wall and ceiling linings should be non-combustible (for example, plasterboard, cementsheeting) except that finishes such as wallpaper


and/or paint of thickness not greater than 1mmmay be acceptable.

5.18 If major building works are undertaken onexisting houses and for new houses, wall andceiling linings shall be non-combustible exceptthat wallpaper and/or paint of thickness notgreater than 1mm thick may be acceptable, andvinyl wall and floor linings may be permitted inbathrooms and toilets.

Floor Coverings

5.19 For new houses and in existing houseswhen carpets are being replaced, considerationshould be given to selecting a carpet with a lowflammability and low flame spreadcharacteristics.

Note:

A pure wool carpet or equivalent may beconsidered to exhibit low flammability and lowflame spread characteristics in the context offloor coverings in buildings complying withthis guideline.

Fire Extinguishing Equipment5.20 A fire blanket complying with AS3504 andas a minimum a 2.1kg or 20B(E) powder typeportable extinguisher complying with AS1841.5,or equivalent, shall be located in each kitchenarea. Extinguishers shall be easily accessible andin full view.

5.21 If it is considered that a dry powderextinguisher presents a significant risk to theoccupants by, for example, initiating asthmaattacks, or other types of extinguishers suitablefor the application are already provided for thebuilding, alternatives shall be considered. Ifappropriate, the relevant fire authority or othersuitably qualified person/organisation may beconsulted.

Electrical Protection5.22 Earth leakage protection must be installedto electrical switchboards.

5.23 All new electrical services must be inaccordance with AS3000.

Where the mains, main earth, or switchboard ofexisting installations are not in accordance withAS3000, they shall be brought into compliance assoon as practicable. The adequacy of the existingelectrical system shall be checked by a qualifiedelectrician. The electrician shall recommend thefrequency of subsequent inspections, takingaccount of the age and state of the existingwiring and nominate any urgent works requiredto address any hazards. These urgent works shallbe undertaken as soon as practicable.

Appliance Safety

5.24 No gas or electric cookers or portableheating appliances are permitted within internalstairways or corridors.

5.25 Individual heaters, where provided, shall befixed in position and should be constructed,installed and guarded in accordance withappropriate Australian Standards, the BCA 1996,the manufacturers instructions and other relevantacts and regulations.

It is strongly recommended that portable heatingappliances should not be used or stored insupported community-based houses. If it is notpracticable to use fixed heaters, appropriateportable heaters, such as oil filled columnheaters, must be used.

5.26 Solid fuel heating equipment must not beused in supported community-based houses.

5.27 Gas and electric meters should be externallymounted, where practical.

5.28 Where operation of an automatic firesprinkler system or other automatic firesuppression system may extinguish an applianceflame, the appliance shall be fitted with:a) A flameguard system.orb) A system that will shut off the gas supply and

cause lockout when a fire extinguisher systemoperates.

5.29 Electrical, heating and similar equipmentshall be serviced and maintained in accordancewith the manufacturer’s recommendations and, if



the equipment appears faulty or it may present arisk of ignition or fire hazard, it must bewithdrawn from service until repaired by anappropriately qualified person or replaced.

Ducted Heating and VentilationSystems5.30 It is recognised that ducted heating/coolingsystems present a risk of smoke and fire spreadand the use is not recommended from a firesafety perspective. However, in manycommunity-based houses it is the most practicalform of heating/cooling. In these applicationswhere ducted systems have been, or are to be,installed precautions shall be taken to address therisk of rapid flame and smoke spread.

5.31 The following measures shall beimplemented for all installations

• The system (heating unit and ducting) shall beserviced and filters cleaned at a maximum of12-month intervals and in accordance with themanufacturer’s instructions.

• The provision of adequate fire preventionmeasures at the heat source, for example,reliable thermal cut-outs.

• Immediate shutdown of the system uponactivation of the fire alarm.

5.32 The following additional provisions aremandatory for new installations:• The heat-source must be external to the building.• Ducting shall be non-combustible if tested in

accordance with AS1530.1.

5.33 The provision of an automatic fire sprinklersystem will offset the risks associated withexisting installations that do not meet theseprovisions and therefore houses with ductedheating should be treated as priority B (amedium priority) for the installation of automaticfire sprinklers. Refer to section 6.

Siting of Telephones5.34 Where practicable, a fixed telephone shouldbe installed as near as possible to the finalprimary exit. The emergency numbers shall beprominently displayed at the telephone position.

Portable Torches or EmergencyLighting5.35 Emergency lighting shall be provided in allcorridors or battery powered torches shall beprovided as described below.

5.36 The emergency lighting, if installed, shallcomply with AS2293 and be located in every stairpassageway, corridor hallway and the like that ispart of the path of travel to the primary exit.

5.37 If emergency lighting in accordance with theabove is not provided, two battery poweredtorches shall be maintained in an operationalstate in all supported community-based houses;one being located in the staff room, the otherwhere practicable should be prominentlydisplayed close to the final primary exit.

Note:

Spare batteries shall be retained at the premisesand torches checked at maximum intervals ofone week by the staff to ensure they are fullyoperational.

Special Provisions5.38 Appropriate measures must be taken tominimise the risk to occupants associated withadopting the nominated fire safety measures.

For example, if clients are likely to be prone toinflicting self-harm, care must be taken in theselection and installation of fire protectionequipment to reduce, as far as practicable,hazards and minimise harm to clients duringevacuation.

Resident Capability and CaseManagement5.39 Documented client management plans shallbe in place to ensure the appropriate assessmentand selection of residents.

5.40 The management plan must take intoaccount issues such as medication, substanceabuse, fire lighting behaviour, mobility,intellectual/physical disabilities, mental health,age, staff/resident ratio, seclusion, absconding


and so on, all of which may affect the evacuationcapability. The management plan shall includestrategies to address any risks identified.

Fire Prevention and Fire SafetyManagement5.41 SmokingThe Department of Human Services has a policyof smoke-free workplaces. For the health andsafety of all residents and staff, smoking isbanned in all Department-staffed premises.

5.42 FurnishingsThe use of furnishings treated with flame-retardants and/or which exhibit low rates of firedevelopment if ignited can significantly reducethe fire risk and is recommended. However, it isrecognised that supplies and choice of flame-retardant furnishings are limited and the use maybe impractical for some applications. For highrisk residents such as those exhibiting firelighting behaviour it is more appropriate toutilise furnishings treated with flame-retardantand/or which exhibit low rates of firedevelopment and to compromise on the range offurnishings available.

5.43 Exit PathsAll exit paths must be kept free of anyobstruction and not used for storage purposes.These should be checked weekly by staff, withmanagement systems in place to ensureimmediate corrective action is taken.

5.44 Emergency ResponseThe fire precautions nominated in this guidelinehave been based on the principle that clientsimmediately vacate the premises and should notattempt to fight the fire. Fire emergencyinstructions for clients should be restricted to thisprinciple.

5.45 Roof Spaces and Underfloor AreasRoof spaces and underfloor areas shall not beused for the storage of combustible materials asfar as practicable.

Fire and Emergency EvacuationPlans and Emergency Procedures5.46 Emergency procedures, fire orders andevacuation plans shall be developed,prominently displayed and maintained for eachhouse.

Fire Emergency Procedures andTraining5.47 All staff in supported community-basedhouses must receive adequate training in fireprevention, fire risk management and emergencyprocedures. The training should be repeated atregular intervals.

5.48 Reference should be made to theDepartment of Human Services Fire andEmergency Response and Procedures and TrainingFramework for further details.

5.49 The staff shall provide training/induction toensure all residents, as far as practicable, arefamiliar with the fire safety and evacuationstrategy.

Drills and Exercises5.50 Fire drills shall be performed for each shiftso that every staff member participates in at leastone drill per year.

5.51 In addition to the drills, exercises shall beperformed for each shift every year.

5.52 Clients, where practical, should beencouraged to participate in the drills andexercises.

5.53 Records must be made, submitted tomanagement and retained, including:• The facility name.• The aim and objectives of the drill or exercise.• Staff on duty.• Date and time.• Fire scenario simulated and anticipated

results.• Names of clients who participated.• Time taken to evacuate.


• Observers.• Comments.• Follow up actions.

5.54 Where necessary, the frequency of drillsshall be increased to maintain the requiredevacuation capability.

5.55 A system must be provided for drawing anyweaknesses in the evacuation system and otherfire risk management issues to the notice ofmanagement and ensuring appropriate correctiveaction is taken.

Maintenance5.56 All fire protection systems and theassociated buildings services must be regularlychecked and maintained in accordance with Part11 of the Building Regulations.

Maintenance contracts should be in place,supplemented by staff checks on a weekly ormonthly basis as appropriate.

An annual Essential Services Report (Form 15)must be completed in accordance with theBuilding Regulations 1994 as amended.

6. Prioritisation


Category B—Medium PriorityHouses that do not meet the requirements asspecified for:• Combustible linings (section 5.17).• The requirements for a secondary exit (section

5.13).• Houses with ducted heating and/or cooling

systems where the precautions prescribed fornew buildings in sections 5.31 and 5.32 havenot been implemented

Category C—Lowest PriorityAll remaining facilities not considered in priorityCategories A and B.

6.5 If a facility is identified during a fire safetyaudit as having a particularly high risk to lifewith regard to fire safety, then the priority ofimplementation of the sprinkler upgrade andother measures required to address the high riskshould be increased appropriately.

6.1 If facilities are not provided with a smokedetection or smoke alarm system satisfying therequirements of this guideline, as a minimum,the detection and alarm system shall beupgraded as soon as possible and a programshall be nominated for implementing theremaining requirements.

6.2 The Building (Amendment) Regulations1997 mandate automatic sprinkler protection forexisting buildings classified in this guideline tobe supported community-based houses. The five-year period for the sprinkler implementationexpires in August 2002.

6.3 It is recognised that it is not practicable forthe Department of Human Services toimmediately install automatic fire sprinklersystems in all supported community-basedhouses. This is recognised in the Building(Amendment) Regulations that provide a five-year period to install an automatic sprinklersystem. Priority should be assigned inimplementing the works in accordance with thefire risk associated with the house.

6.4 Broad categories have been developed toestablish priority for upgrades. These categoriesare:• Category A - Highest priority.• Category B - Medium priority.• Category C - Lowest priority.

Specific priority ratings should be assigned toindividual facilities within these broadcategories, based on the level of fire risk.

Category A—Highest Priority• Two-storey buildings without the upper floor

being separated from the lower floor bybarriers having fire resistance level (FRL) of atleast 30/30/30, or not being provided with anexternal exit from both levels.

• Houses with an evacuation capability (asdetermined through drills) that is inferior tothat of a typical family residence. (Theevacuation time for a typical family residencecan be assumed to be less than three minutesfor the purposes of this guideline.)

7. Implementation


7.1 Compliance checks shall be carried out inaccordance with Guideline 7.1. A checklist for thecompliance checks can be obtained from theDepartment of Human Services, CapitalManagement Branch.

7.2 A registered building surveyor havingappropriate qualifications and experience mustcertify building works for compliance with theBCA 1996 and this guideline. A building permitshall be obtained prior to commencement ofworks, if required by the Building Regulations.The building works shall be inspected by aregistered building practitioner in the Categoryof Building Inspector or by the relevant buildingsurveyor and an Occupancy Permit or Certificateof Final Inspection shall be obtained uponcompletion.

Bibliography


Reference was made to the followingpublications during the development of thisdocument:

Australian Building Codes Board (ABCB), 1996,Building Code of Australia 1996.

Building Act 1993.

Building (Amendment) Regulations 1997.

Building Regulations 1994.

Department of Health and Community ServicesDraft Guideline for Fire Detection and Alarm Servicesin Domestic Accommodation (Class 1B).

Department of Human Services CapitalDevelopment Guidelines 7.1 Fire Risk ManagementPolicy and Procedures, Edition 2.

Department of Human Services CapitalDevelopment Guidelines 7.2 Fire Risk ManagementEngineering Guidelines, Edition 2.

Health Technical Memorandum 88 Fire RiskManagement in Healthcare Premises: Guide to FirePrecautions in National Health Services Houses in theCommunity for Mentally Handicapped (or MentallyIll) People, 1986.

National Fire Protection Association, USA,National Fire Protection Association Code for Safetyto Life from Fire in Buildings and Structures 1997.

A1 Program-Specific ApplicationsFor services delivered or funded by DisabilityServices, ‘24-hour staffing’ refers toaccommodation in which staff support isprovided whenever clients are in residence andincludes active night rosters, sleepover rostersand the 24-hour worker model.

A2 Program ExclusionsOffice of Housing-managed properties are notcovered by these guidelines, except thoseproperties where 24-hour staffing is present on-site.

Residential units in gazetted Juvenile JusticeCentres (also commonly known as YouthTraining Centres, Youth Residential Centres andYouth Remand Centres) are not covered by theseguidelines, due to specialised security and safetyrequirements for young people held in custody.These residential units are subject to fire safetyguidelines that have been specifically developedfor such facilities. See Department of HumanServices Capital Development Guideline 7.3 Fire RiskManagement in Secure Facilities.

Appendix 1: Application


capital development guideline - human services … development guideline 7.4 fire risk management in...

Documents