20 minute read
What does an Authority Need to Accelerate the Building Permit Process?
A study to understand a building permit process
By: Avinash Gupta, P.Eng., CBCO, CRBO, LBO Dominic Esposito, P.Eng.
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Background
The value of building permits issued by Canadian municipalities rose 6.1% to $9.0 billion in August 2019, largely because of increases in multi-family and industrial permits. Gains were reported in seven provinces, with over one-third of the national increase in Québec. {Source(s): Statistics Canada Table 34-100066-01}
The value of permits for multi-family dwellings rose in every province, except Nova Scotia, increasing 18.8% to $3.3 billion in August 2019. Québec also contributed to the increase, up $143 million compared with July 2019. The value of permits for single-family dwellings rose 3.2% to $2.4 billion nationally, led by Ontario. These gains were largely attributable to several developers filing additional permits prior to an upcoming increase in development costs in the region.
Industrial permits were the only component in the non-residential sector to increase in value, rising 18.9% to $675 million. The increase was largely due to a high-value permit for a biopharmaceutical company in the Canadian Medical Association (CMA) of Toronto.
The value of commercial permits declined 5.9% to $1.9 billion, following gains in July 2019. Québec showed some strength in the commercial component (+$73 million) despite the national decrease.
Five provinces reported declines in the value of institutional permits, down 10.7% to $651 million.
The value of permits was down in all three non-residential components in British Columbia, which also reported the most significant provincial declines in the values of commercial (-$118 million) and institutional (-$48 million) permits.
Purpose
This educational article explains the following: •Drawings and specifications that must be submitted to the Authority
Having Jurisdiction (AHJ) to obtain a building permit quickly, •Information that must be included in the building permit submission, •The building permit’s purpose, when it is required, when it can be refused and when it can be revoked, •Which and when drawings are required to be sealed and signed by a professional licensed to practice in the province/territory, and •The professional designer's seal's purpose and intent.
Limitation
The article attempts to illustrate the building permit process's essence, and the designer must refer to the local bylaws for more specific information. The building permit's anatomy is immense, and each municipality has its building permit process; therefore, it is not practically feasible to pack all the information in this article.
Impact of Delay in Obtaining a Permit The delay in obtaining a valid building permit has enormous consequences on an overall project in terms of financial budget, schedule over-run, arbitration,
Setbacks are created essentially for public safety, privacy, environmental protection, ensuring uniform appearance in the neighbourhood, and preventing houses from crowding adjacent structures or streets. On the other hand, spatial separation is the safe distance required by the building code for protecting the adjacent properties from a building in a fire; the Zoning bylaws enforce setbacks, and the adopted building code enforces spatial separation requirements. Usually, in most municipalities, there is no coordination between the plans examiner and the zoning officer.
disputes, lawsuits, and finally, moving to desertion or abandonment of a project. In a case where a project is abandoned, the law may investigate the role of the AHJ to scrutinize if the AHJ has abused their power. Nonetheless, the AHJ enjoys immunity, and the local bylaws notifies under what circumstances a building permit can be refused or revoked by the AHJ.
Development, Zoning and Building Permits
A development permit is not a building permit. A permit means a legal authorization in writing by the AHJ to begin constructing a proposed building, and in case of an occupancy permit, to occupy a building or part thereof. A valid permit must be obtained before the start of any construction, and it includes building, demolition, plumbing, mechanical, heating, ventilation and air-conditioning (HVAC) electrical, structural, sprinkler, occupancy, or any other permit required by the AHJ.
Differentiating Between the Zoning and Spatial Separation Requirements
A zoning development permit is required for any change in land use or site development. It is a tool used by municipalities and planning districts to regulate the use and development of land and buildings. Zoning primarily works by dividing land into zones like residential, industrial, commercial, etc. A zoning bylaw prescribes general development requirements for each zone. These regulate the use of land and construction or use of buildings, ensure incompatible uses do not get built next to each other like a liquor store adjacent to a school. Fixing dimensions for the front and rear setbacks for a lot, the distance of the land/lot from a waterbody and, establishing the Airport Vicinity Protection Area (AVPA) are the parts of zoning bylaws. The AVPA defines land uses and development restrictions in areas surrounding the airport and along designated flight paths to reduce residential exposure to aircraft noise.
Setbacks and Spatial Separation
The purpose of the front or rear setback differs from the spatial separation requirements of the building code and should not be confused. However, setbacks and spatial separation are two distinguished components of a building permit process. Setbacks are decided by the zoning bylaws of the municipality and spatial separation by the adopted building code of the province or the territory. In land use, a setback is a minimum distance from which a building or other structure must be set back from a street or road, a river or stream, a shore or flood plain, or any other place that is considered to need protection. Setbacks are created essentially for public safety, privacy, environmental protection, ensuring uniform appearance in the neighbourhood, and preventing houses from crowding adjacent structures or streets.
The zoning bylaws decide the gross floor area, height, and the use of a building based on the firefighting capabilities and adequate water supply. However, the Code does not restrict the size of a building based on the capability of the local municipal fire department. It is the responsibility of the local municipality to ensure that buildings' size and height do not exceed their firefighting capabilities and available water supply. The Code assumes that firefighting resources are available in the event of a fire emergency.
The applicant must fully understand which documents/ construction plans are required to be sealed and signed by the respective professional/designer, what types of permits are issued by the Authority, what is the turnaround time for issuing a permit, any program that is available with the Authority for bringing a permit under fast-track permitting. A few Authorities issue a building permit for certain types of buildings based on letters of assurance from the professionals/designers responsible for designing a building.
On the other hand, spatial separation is the safe distance required by the building code for protecting the adjacent properties from the building in a fire. A zoning officer enforces setbacks required by the zoning bylaws, while a plans examiner regulates spatial separation requirements based on the adopted building code. Usually, there is no visible coordination between a plans examiner and a zoning/development officer in most municipalities. Therefore, a decisive and rhythmical coordination process between the municipality's two independent departments (inspection and planning) is beneficial for developing safe buildings.
Purpose of a Permit and When it is Required and When it is Not
A plan review of the building permit drawings allows the AHJ to review the project design before construction begins to ensure compliance with the adopted codes, other related bylaws, and regulations.
The proponent must understand which work requires a permit before applying for a permit. This list provided for the work requiring a building permit is not exhaustive; however, most municipalities require a permit for the following: Construction and occupancy of all new buildings, reconstruction, demolition, removal and relocation of buildings, additions (horizontal or vertical or both) to existing buildings, alterations (interior or exterior), change of use and occupancy,
Figure 1: Schematic Sketch Showing Setback and Spatial Separation (Note: The distance ‘Z’ is regulated by the zoning bylaws)
site-built and factory-constructed buildings, tents and air-supported structures, underground and storage tanks inside buildings, farm buildings, a detached building (garage, storage shed, gazebos, and other similar structures) more than 10 m2 in building area, open decks over 600 mm high from ground level, swimming pools or any device capable of holding more than 600 mm of water, finishing previously unfinished spaces in a home such as a basement, attics etc., foundation repairs, installing a wood stove or a fireplace, ramps for wheelchairs, temporary structures larger than the building area prescribed in local bylaws.
However, most municipalities do not require a permit for patching, painting, and decorating, installing cabinets and shelves, replacing doors and windows with the same material and frame size. A permit is not required for repair works or replacement of all types, like stucco, siding of identical types or shingles with identical material. Repair work includes interior or exterior alterations and pertains to replacing existing building components with functionally compatible components. It includes removing and replacing any existing part, component, equipment, or fixture using a new part, component, equipment or fixture that serves the same purpose having the identical or better configuration, performance or characteristics. Repair work includes replacing any part or component of an existing building to maintain or correct damage or failure. For example, maintenance or repair of fire alarm systems, exits, elevators, automatic sprinkler systems, standpipe systems, smoke control systems.
Familiarization and Documents to be Submitted for Preventing Delays
Part 2, Division C of the National Building Code of Canada (NBCC), covers the information required for submission to obtain a valid permit. However, for preventing delays in the approval process, the design team/owner should familiarize themselves with at least with the following documents before applying for a permit: Bylaws and regulations of the local Authorities (City, Federal, and Provincial) where a project is located, Act or Acts providing specific powers to building officials for review and inspection of buildings, and adopted codes and standards, including amendments and dispute resolution process.
The applicant must fully understand the following: Which documents/construction plans required to be sealed and signed by the respective professional/designer? What types of permits are issued by the Authority, and what is the turnaround time for issuing a permit? Any program that is available with the
Authority for bringing a permit under a fast-track permitting. A few Authorities issue a building permit for certain types of buildings based on the letters of assurance from the professionals/designers responsible for the design. Any program that is available for issuing a building permit, with a limited or without a review. Such programs like the ‘Certified Professional (CP) Program’ for the City of Vancouver and
‘Certified Permit Coordinator Program’ for the City of Winnipeg are available. Any provision for a pre-review or presubmission meeting with the Authority's plan examiner, zoning officer, and other relevant staff to discuss the questions related to a proposed project. The number and set of drawings and specifications required for submission. In addition to the information in Section 2.3., Division C of NBCC, the proponent must check the format in which an alternative solution proposal must be submitted to the AHJ. Check with
the Authority, who must seal and sign an alternative solution; a few Authorities require a fire protection engineer.
One of the significant and most common reasons for a delay in obtaining a building permit is the misconception of applying the fire-resistance rating Tables embedded in Part 9 of Division B of NBCC. The design team must clarify with the AHJ if the Part 9 Tables are acceptable for use for buildings covered under Part 3 of Division B of NBCC.
Documents to be SubmittedScope of Work
The design team should include the following in the scope of proposed work in the submission document: Estimated cost, date of start of work, construction time, and expected occupancy date.
In addition, the use of the proposed building should be clearly stated along with the building area and building height (number of storeys). The use of a building determines the building’s classification; therefore, explaining the building’s use is of significant consequence.
Documents submitted to the Authority must include what type of work is proposed; for example, new construction, an interior alteration, an addition (horizontal or vertical or both) to an existing building, or a change of use of an existing building? Whether the proposed building is designed as per Part 9 of Division B (Housing and Small Buildings) or Part 3 of Division B (buildings not covered in Part 9) of the building code should be specified in the scope. Also, it should be stated what type of permit is requested from the Authority and if the proposed building is a heritage building.
Types of Permits
The owner or their authorized agent may request any of the following types of permits: a full permit, a shell permit, a partial permit, a conditional permit, an interior alteration or tenant fit-up, a demolition permit, and an occupancy permit. Full Permit A full permit means approval of a site layout plan, fire, life safety and accessibility, structural, mechanical (HVAC), plumbing, and electrical design. Nevertheless, mechanical, and electrical systems such as commercial cooking operations and manufacturing processes are permitted to be excluded from the full plan review; in such a case, separate permits are required for the mechanical and electrical systems.
Shell Permit A shell permit means approval of a site layout plan, fire, life safety and accessibility, and a building's structural design to a shell stage. In case of a shell permit, occupancy of a building constructed to the shell stage is not permitted. Separate permits and review of fire, life safety and accessibility for the interior configuration, electrical, and mechanical are required before granting an occupancy permit.
Partial Permit A partial permit means allowing construction to proceed before a full plan review has been completed by the AHJ. The review process for the partial permit consists of either preliminary plans of construction or plans of construction that do not include final architectural- fire, life safety and accessibility, structural, electrical, and mechanical drawings. However, partial permits are issued in stages based on submitting final construction plans for the work submitted for review and approval. The following types of partial permits are issued for a building: a) Partial foundation permit, b) Partial structural frame permit, and c) Partial superstructure permit.
Partial Foundation Permit
A partial foundation permit means allowing construction to proceed for completing the foundation works up to grade level only. The review process for a partial foundation permit includes a final review of a site layout plan, complete foundation drawings, preliminary review of architectural drawings; and a preliminary review of superstructure drawings, including a review of vertical design loads, lateral loads, and the structural framing system for transferring loads to the foundation.
One of the significant and most common reasons for a delay in obtaining a building permit is the misconception of applying the fire-resistance rating Tables embedded in Part 9 of the Model Code. The design team must clarify with the AHJ if the fire-resistance ratings listed in the Part 9 Tables are acceptable for Part 3 buildings covered in the Code.
For a horizontal or/and vertical addition to an existing building, the document that the AHJ sometimes requires along with the structural drawings; a letter sealed and signed by the designer validating that the addition conforms to 'Commentary L-Application of NBC Part 4 of Division B of the Structural Evaluation and Upgrading of Existing Buildings'.
Figure 2: Typical Flow Chart Explaining the Building Permit Process
A partial foundation permit includes a fire, life safety and accessibility review of the following: Use of building to determine the major occupancy classification, building construction requirements (type of construction), exit locations, passenger elevator/lift locations, spatial separations, fire access route to a building, and the location of accessible parking spots.
Partial Structural Frame Permit A partial structural frame permit is generally issued after obtaining a partial foundation permit. A partial structural frame permit is similar to a shell permit. A partial structural frame permit is issued after reviewing fire, life safety and accessibility and a complete review of a building's structural design drawings. However, separate permits and review of fire, life safety and accessibility for the interior configuration, electrical, and mechanical design are mandatory before granting an occupancy permit. An AHJ issues partial permits in stages based on the final construction plans for
the work submitted for review and approval.
Proper use of a professional seal is essential, not only for complying with the Professional Engineers Act /Architects Act/ qualifications (BCIN) required by the adopted building code but assuring the public of the profession’s commitment to standards of care and excellence. Use of the seal is not automatic. It is done after the professional/designer has evaluated and accepted the responsibility they are assuming.
Partial Superstructure Permit A partial superstructure permit is comparable to a full permit except that a separate permit is required for doing tenant fit-ups in a building if details of the interior configuration of the space are not included in the architectural drawings. Similar to a full permit, a partial superstructure permit means approval of a site layout plan, fire, life safety and accessibility, structural, mechanical (HVAC), plumbing, and electrical design drawings.
Conditional Permit A conditional permit is a building permit where not all approvals required for a full building permit have been received. Conditional permits are in practice, for larger development applications. A conditional permit is issued at the Authority's discretion when the applicant can show that the outstanding applicable law approvals are in the process of being obtained, and the approval timeframes are causing unreasonable construction delays. For example, delays in the approval of a fire access route or a street address for the proposed building or delays from the public works department.
However, for considering granting a conditional permit, the Authority evalu-
ates the potential difficulty in restoring the site to its original state and use if required approvals are not obtained. Not all Authorities issue conditional permits.
Conditional versus Partial Permits Conditional and partial permits are different from each other; partial permits are issued at the design team's request because of the delay at their level. In comparison, conditional permits are issued due to delays attributed to the Authority's departments.
Tenant Fit-up Permit The terms tenant fit-up and interior alteration permits are interchangeable. Interior alteration is the term typically used for existing buildings and tenant fit-up for new buildings. However, both terms are quite prevalent in the building industry. A tenant fit-up is essentially an act of transforming a space to accommodate the specific requirements for a tenant, including configuring interior walls, washrooms, and means of egress.
Typically, a tenant fit-up does not involve change of existing exits, fire-protection systems, occupancy, and structural design. A tenant fit-up permit is mandatory for obtaining an occupancy permit after a shell and a partial structural permit is issued. An interior alteration permit is compulsory for conducting alterations in an existing building.
The purpose of carrying an interior alteration is similar to a tenant fit-up; however, no change of use of an existing building or part of a building is permitted under an interior alteration permit. A separate permit is mandatory if the proposal is to change the use of an existing building or part of a building. However, a single permit consisting of tenant fit-
up and change of use of a building or part of a building is permitted.
Documents to be Submitted for Obtaining a Permit
The permitting process's anatomy, as stated earlier, involves familiarization with the Authority, types of permits, permit issuing process, and drawings required to be submitted to the AHJ. The last leg of the permitting process for receiving a building permit is what details need to be included on the drawings?
FULL PERMIT Drawings and specifications required to obtain a 'Full Permit' are final site plan drawing showing the natural contours and finished grade, final architectural drawings, final structural drawings, final mechanical drawings, final electrical drawings, building information typically found on a building code checklist or matrix, original copy of an alternative solution-if proposed by the designer, approval from relevant departments like zoning, public works, and others, and complete set of 'Letters of Assurance' from the respective professionals responsible for the design of project-if required by the local Authority.
SHELL PERMIT Drawings and specifications required to obtain a 'Shell Permit' are the final site plan drawing showing the natural contours and finished grade, and all other drawings and building information typically found on a building code checklist or matrix complete up to a shell stage.
PARTIAL PERMITS Partial Foundation Permit Documents required to obtain a ‘Partial Foundation Permit’ are the final site plan drawing showing the natural contours and finished grade, final structural foundation drawings, and all other preliminary drawings. Building information typically found on a building code checklist or matrix limited to the foundation, firefighting access route, classification of a building, type of construction, location of exits, elevators, and accessible parking spots and spatial separation requirements shall be included in the submission.
On a similar basis, drawings and specifications are required to obtain a 'Partial Structural Frame Permit' (Similar to a shell permit), and a 'Partial Superstructure Permit' (similar to a full permit) shall be submitted to the Authority for obtaining a permit.
continued…
However, it must be understood that the holder of a partial permit is responsible for proceeding without assurance that a permit for the entire building will be granted.
Conditional Permit A conditional permit is generally issued under unprecedented conditions like unreasonable construction delays that would occur if it was not granted. It is at the discretion of the AHJ to issue a conditional permit.
Most of the provinces and territories do not issue conditional permits; however, the Ontario Building Act contains the provisions for issuing a conditional permit. A conditional permit can be issued for any stage of construction.
In addition to the drawings and specifications required for the type of permit requested, a written agreement between the applicant and AHJ is mandatory. The agreement includes that the applicant assumes the entire risk of proceeding with the construction. The applicant is responsible for obtaining all the approvals within the time decided in the agreement. The agreement includes removing the building and restoring the site in a specified manner if permissions are not obtained and submitted to the AHJ within the time stipulated in the agreement. A complete set of 'Letters of Assurance' from the professionals responsible for designing a project shall also be submitted, if required by the AHJ.
Purpose of a Professional Seal of a Designer
In most provinces and territories, buildings covered under Part 3 of Division B of the building code are reviewed based on sealed and signed drawings of the respective professional designer. However, a few authorities like Ontario, for specific types of buildings and specific types of permits, allow designers to own the design responsibility, where a designer provides information about their registration, qualification, Building Code Identification Number (BCIN), and signs on every document and drawing submitted for obtaining a building permit.
The professional seal of a designer or a letter of assurance does not exempt or waive the building plan review process automatically. The professional seal of a designer or the letters of assurance does not abandon or relax any stakeholder's professional, ethical, and financial liability.
The professional seal is the distinguishing mark of the profession and an indication to recipients and users of engineering documents that the content of the documents was prepared by or under the personal supervision of a professional. By affixing the seal, the professional assumes responsibility and is answerable for the quality of the work presented therein.
Proper use of the seal is essential, not only for complying with the Professional Engineers Act /Architects Act/ qualifications (BCIN) required by the adopted building code but assuring the public of the profession’s commitment to standards of care and excellence. Use of the seal is not automatic. It is done after the professional/designer has evaluated and accepted the responsibility they are assuming.
In conclusion, the details illustrated above, without a doubt, will help the designer to obtain a permit from the Authority faster and without a glitch.
Avinash and the coauthor Dominic are experienced professionals currently working in the building code industry. The views expressed by the authors are for educational purposes only. The educational piece is for generating an objective, transparent, nonpartisan, and unpolluted conversation to help obtain a permit from the AHJ quicker and without a glitch. For any clarification, please contact Avinash Gupta at avinashguptap.eng@gmail.com u
